Update on regional developments in Europe
Update on regional developments in Europe
EC/47/SC/CRP.17
EXECUTIVE COMMITTEE OF THE HIGH COMMISSIONER'S PROGRAMME
STANDING COMMITTEE
9 April 1997
7th Meeting
I. INTRODUCTION
1. This document is structured in the following manner:
II Western Europe and the Baltic States
III. Central Europe
IV. Eastern Europe (Commonwealth of Independent States and Turkey)
2. The text for each of the above sub-regions starts with an overview of events and objectives in the sub-region, followed by "Country Reviews" for each of the countries in the particular sub-region. Information on Regional Special Programmes is included in the texts wherever relevant. Two annexes summarize budgetary information and post levels.
II. WESTERN EUROPE AND THE BALTIC STATES
A. Sub-regional overview
Western Europe
3. Since 1992, Western Europe has seen a downward trend in the number of asylum-seekers arriving in the sub-region. Available figures indicate that some 250,000 asylum-seekers arrived during 1996, representing an overall decrease of nearly 10 per cent as compared to 1995. However, the pattern of arrivals is not homogeneous in that some countries have had an increased number of asylum applications as compared to 1995.
4. UNHCR is fully aware of the difficulties Governments face in responding to mixed population movements requiring them to determine the difference between refugees and illegal aliens. The challenge is to identify adequate measures to safeguard the institution of asylum while recognizing the necessity for proper border control. The restrictive measures taken against illegal migration have to be carefully considered in view of the potential negative repercussions. Relatively high levels of unemployment in Western Europe have further emphasized the volatile situation of immigrants and refugees. UNHCR, together with Governments and non-governmental organization (NGO) partners, has a role to play in sensitizing the public to the plight of refugees and in distinguishing their situation from that of illegal migrants.
5. While significant return movements from European host-countries to Bosnia and Herzegovina occurred and intensified during the summer months of 1996, they were much lower than initially expected. In an important initiative taken by a number of countries, a transit agreement was concluded to facilitate the visa-free travel of refugees to Bosnia and Herzegovina through these countries, which greatly facilitated return movements.
6. The process of harmonization of policies on asylum and refugees by member countries of the European Union seems to have lost some momentum in 1996 after the position reached in November 1995 on the harmonization of Article 1A of the 1951 Geneva Convention. UNHCR continues to engage in an informal dialogue in matters pertaining to asylum and refugees and has, in the course of 1996, made contributions to this process in such areas as the treatment of unaccompanied minors seeking asylum and the conditions for the reception of asylum-seekers. UNHCR sees the 1996 Inter-governmental Conference of the European Union (ICG) as a possibility for a positive outcome for the future of European Union asylum policy. The Office has addressed its views to the Member States, as well as to organs of the Union. UNHCR hopes that any changes in the Treaty will, inter alia, facilitate the adoption of a coherent and comprehensive European asylum policy based on common standards of protection which are consonant with internationally accepted standards.
7. The IGC process can also contribute to openness in decision-making in the area of asylum, with parliaments perhaps gaining enhanced responsibilities and additional ways being found to achieve harmonization of jurisprudence on asylum claims. It is also the hope of the IGC that the existing consultative arrangements between the European Union and UNHCR can be improved by putting them on a more formal basis. Links with institutions in Europe remain a priority for UNHCR. The Office recently established a liaison function in Strasbourg to strengthen relations with the Council of Europe and with the other European institutions headquartered there.
8. UNHCR's strategic direction in Western Europe is based upon a gradual reduction of programmes and a shift of these resources to the Baltic and the Commonwealth of Independent States (CIS) regions. Priority in Western Europe will be given to the areas of advocacy, public awareness, training and network-building, with a decrease in assistance activities. Details are provided in the individual country reviews which follow.
Nordic countries
9. During 1996, a total of 14,142 applications for asylum were lodged with the appropriate authorities in the five Nordic countries (Denmark, Finland, Iceland, Norway, Sweden). Although this constituted an overall decrease as compared to 1995, the pattern was not consistent throughout the countries of the Nordic region, with some noting increases in the number of applications and others recording decreases.
10. Three Nordic countries (Sweden, Denmark and Finland) signed the Schengen Implementation Agreement in late 1996, with Norway and Iceland signing the related agreement, thus enabling the continuation of the Nordic Passport Union. These countries continue to cooperate closely with each other and with UNHCR on asylum and refugee issues. During 1996, a Trust Fund in the area of resettlement was initiated in order to launch new initiatives. The Nordic countries also agreed to receive for resettlement 108 refugees who had been detained in Latvia.
11. The UNHCR Regional Office in Stockholm is concentrating on the regionalization of policies throughout the five Nordic countries with a view to influencing, when appropriate, the overall direction of national policies, maintaining current standards of refugee protection in the concerned States, improving these standards where necessary, and conducting comprehensive public information campaigns. UNHCR continues to arrange and participate in training seminars and courses throughout the region.
12. The Nordic countries continue to liaise closely with each other, and with UNHCR, on the provision of assistance to the three Baltic States, including support for the establishment of immigration procedures and border controls and training initiatives.
13. UNHCR's Inspection and Evaluation Service issued a report in March 1996 on the Regional Office in Stockholm's role and activities in the countries under its responsibility. The main recommendations were: to maintain the stated Baltic objectives and to convey them to key policy and decision-makers; to propose the creation of a roving "Senior Liaison Officer" for the Baltic region; to narrow the scope of the Nordic objectives, focusing on national refugee policies and legal/protection monitoring; to continue close cooperation with Governments and NGOs; and to increase public awareness initiatives, involvement in European Union-related refugee matters, and overall Nordic cooperation. The report also recommended increased regional cooperation with other UNHCR offices and the establishment of a plan for inter-regional cooperation, as well as continued strengthening of governmental counterparts and NGOs in the Baltic countries, the latter with the help of Nordic NGO support. A mass information programme for the Baltic region was also recommended. The majority of the recommendations have been implemented.
Baltic States
14. Asylum-seekers continued to arrive in the three Baltic States (Estonia, Latvia, Lithuania). However, their number is difficult to establish in the absence of a refugee registration process. In the meantime, a number of important developments took place in the field of refugee and asylum policy and practice, culminating in the accession of two of the Baltic States (Estonia and Lithuania) to the 1951 Convention and its 1967 Protocol. Furthermore, the respective Ministries of the Interior have indicated the intention of working together in establishing a joint Baltic policy on migration-related issues. The three countries have also become candidates for European Union membership. In early 1997, the European Union provided substantial financial assistance to the Baltic States for border control and immigration procedures.
15. UNHCR will continue to focus on capacity-building in the Baltic States with the aim of assisting authorities in establishing functioning determination procedures and reception facilities, with special consideration for training activities required in this regard. The Office is also involved in coordinating additional support from donors in the Nordic region, and facilitating the exchange of information between Nordic and Baltic States on refugee and asylum matters, as well as providing support and assistance to local NGOs working in this domain. Public information and awareness-building activities are also an important part of UNHCR's work in this region.
Albania
16. The recent crisis in Albania has caused spontaneous movements of people mainly towards Italy and Greece. The origins of the crisis are numerous, with the immediate cause being the collapse of the "pyramid schemes" in which many Albanians had invested their savings, and the resulting serious economic hardship all over the country. This is compounded by the disillusionment amongst the population over the way in which the recent elections were conducted, some citizens believing that fraud was involved. An increasing number of persons appear to be leaving the country due to the general critical economic situation, partly caused by the unrest, which has resulted in shortfalls of food, medicines and other basic necessities.
17. To date, information available indicates that some 13,000 persons have arrived in Italy and some 14,600 in Greece, most of the latter holding Greek entry visas. Very few crossed into the Federal Republic of Yugoslavia and the Former Yugoslav Republic of Macedonia. Both the Italian and the Greek Governments have allowed Albanians to enter their territory and have granted permission to remain there on a temporary basis. Simultaneously, they have provided accommodation facilities and material support, including medical care, to those in need.
B. Country reviews
1. Belgium
(a) Beneficiaries
18. The total number of asylum applications lodged in Belgium during 1996 was 12,232 as compared to 11,420 in 1995. The main countries of origin were the former Yugoslavia (2,843, including 1,393 Kosovars and 836 Bosnians), 1,767 from the former Soviet Republics, 841 from Zaire, 751 from Romania, 695 from Turkey and 599 from Bulgaria. During 1996, the "Commissariat Général aux Réfugiés et aux Apatrides" considered a total of 5,944 cases, of which 1,581 were recognized as refugees under the 1951 Convention, 4,065 were rejected and 298 were withdrawn. The appeals board reviewed a total of 1,352 cases, of which 105 were accorded refugee status, 1,171 were rejected and 76 withdrew.
(b) Recent developments and objectives
19. On 28 June 1996, the Belgian Parliament adopted amendments to the asylum law. Extensive debates preceded the amendments and focused on developments in Belgian asylum policy. The main changes to the law allow a longer period of detention for rejected asylum-seekers and impose a strict regime of sanctions on airline carriers for transporting aliens who do not have proper travel documents. An NGO legal centre, to which the Regional Office provided extensive support, was established. One of the centre's primary tasks is to work on individual cases for whom intervention in the procedure has been requested.
20. The UNHCR Regional Office in Brussels will continue to intervene in individual cases as provided for in the national legislation, and will continue to share country of origin information with governmental and NGO counterparts. The Office will pursue the further expansion and consolidation of its network of contacts, through the PARinAC forum as well as bilaterally, and will concentrate on furthering protection aims through training activities. Public information activities are also expected to expand.
(c) Implementing partners/arrangements
21. The Regional Office has signed a sub-agreement with the "Comité Belge d'Aide aux Réfugiés", an umbrella organization of all NGOs in Belgium with an interest in refugee-related matters, to take over the handling of individual cases of asylum-seekers or refugees who would otherwise approach the Office for assistance and advice relating to legal problems or family reunion. Other activities are directly implemented by the Regional Office.
(d) Budget
22. In accordance with UNHCR's policy for Western Europe, overall funding for assistance programmes in Belgium was slightly decreased in 1997. As in previous years, some public information and training activities are funded through a donation from the Belgian Government.
(e) Post situation
23. A post of Liaison Officer was created in 1996 to cover issues related to the former Yugoslavia. No changes in the post situation are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
24. The Regional Office continues to monitor and discuss with the relevant national authorities the issues of refugee status determination of women and gender-based persecution, and has participated in seminars organized by NGOs dealing with these concerns. Input was also provided on guidelines compiled by the authorities on the reception of female asylum-seekers. In the context of PARinAC, the Office has produced a paper identifying the main problems facing unaccompanied minors in current asylum practice and proposing appropriate solutions with a view to establishing a specific legal framework adjusted to their needs.
(g) Oversight reports
25. No reports were initiated during the reporting period.
2. Denmark
26. The number of asylum applications in Denmark rose to 5,896 in 1996 as compared to 5,109 in 1995. UNHCR liaises closely with NGO partners and governmental authorities on the development of asylum and refugee policy and jurisprudence, and works in close cooperation on the question of repatriation to the former Yugoslavia.
27. Denmark continues to maintain an interest in activities in the Baltic States and Eastern Europe. UNHCR cooperates closely with the appropriate authorities on these matters.
28. Further information on developments and activities in the Nordic countries is provided under the sub-regional overview (above).
3. Estonia
(a) Recent developments and objectives
29. In February 1997, the Estonian Parliament adopted a national refugee law and ratified the 1951 Convention together with its 1967 Protocol. The law will enter into force at the same time as the Convention, the date of which, in turn, depends on the date of deposit of the ratification instruments with the United Nations Secretary-General. UNHCR Stockholm was consulted during the drafting of the refugee law and provided comments. Currently, UNHCR is working closely with the Estonian authorities in establishing a detailed plan for the implementation of the law and the Convention.
(b) Implementing partners/arrangements
30. Activities in the three Baltic States are implemented through a number of partners; with UNDP in each Baltic State for assistance with project implementation and liaison functions; with the respective Ministries of Interior and Social Security and Labour for support in establishing refugee status determination procedures and enacting appropriate legislation.
(c) Budget
31. The budget for care and maintenance of refugees and asylum-seekers in the three Baltic States, which also covers institutional support, was increased in 1997 due to the need to establish the required status determination procedures. The budget will be reviewed for coming years in the light of developments in these countries.
(d) Post situation
32. Activities in the Baltic States are covered by the Regional Office in Stockholm, which is working closely with the UNDP offices located in the Baltic capitals. Each UNDP office has recruited a national UNHCR Liaison Officer, who works in close cooperation with UNHCR's Regional Office. A sub-office for the Baltic States may be established in Riga in late 1997 or early 1998.
(e) Implementation of policy priorities (women, children, environment)
33. As part of its training role, UNHCR will promote application of the respective guidelines on protection of refugee women and children, and raise awareness of these issues amongst appropriate authorities and NGOs.
(f) Oversight reports
34. As mentioned in the sub-regional overview above, the Inspection and Evaluation Service issued a report in March 1996 on the Regional Office in Stockholm's role and activities in the countries under its responsibility, including the three Baltic states. The main recommendations of the report have been implemented.
4. Finland
35. The number of asylum requests remained relatively low in Finland; a total of 711 applications were received in 1996 as compared to 854 in 1995.
36. The Committee on Immigration and Asylum Policy, established in October 1995, submitted its report to the Minister of the Interior in January 1997. This comprehensive report reviews all aspects of Finnish policy and practice related to immigration and asylum matters, and provides for a wide range of recommendations as regards future policy lines. The Committee's recommendations are currently under consideration by the Government.
37. Finland took over the Presidency of the Council of Europe for a six month period in November 1996. Finland has also indicated its intention to increase its development aid for projects supporting human rights, democracy and equality.
38. Further information on developments and activities in the Nordic countries is provided under the sub-regional overview (above).
5. France
(a) Beneficiaries
39. During 1996, the total number of asylum applications in France fell to 17,405 from 20,170 in 1995. Of the 22,203 cases considered throughout the year, 17,859 were rejected and 4,344 were given refugee status in accordance with the Convention, representing an acceptance rate of 19.5 per cent.
(b) Recent developments and objectives
40. During 1996, the Branch Office in Paris began visits to reception areas at ports of entry ("zones d'attente") in implementation of a 1995 agreement with the French authorities on this process. The Office continues its participation in the Refugee Appeals Commission (CRR) and in the Administrative Board of the French Office for the Protection of Refugees and Stateless Persons (OFPRA), thereby contributing to the development of jurisprudence in asylum matters.
41. The Office is expanding its network of contacts and has begun a training programme aimed at raising public awareness and sensitivity on refugee issues in close cooperation with several academic institutions. Training of governmental and NGO partners also continues. Furthermore, the Office cooperates with NGOs in matters relating to refugee status and asylum issues, and frequently participates in the joint organization of special events. For 1997, an ambitious public information strategy was established.
(c) Implementing partners/arrangements
42. Implementing partners for activities in the areas of legal assistance, family reunion and social counselling include the International Organization for Migration (IOM), "France Terre d'Asile", the "Service Social d'Aide aux Emigrants" and the "Association Nationale d'Assistance aux Frontières pour les Etrangers". Training and public information activities are directly implemented by the Branch Office.
(d) Budget
43. In accordance with UNHCR's policy for Western Europe, the assistance programme budgets for 1997 and 1998 were reduced as compared to 1996. The French Government provides funds for UNHCR's participation in the CRR.
(e) Post situation
44. A post of Senior Liaison Officer in Strasbourg was created in 1996 to strengthen relations with the European institutions based there, and a post of Senior Protection Clerk in Paris was discontinued as of 28 February 1997. No other changes in the post situation are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
45. The Branch Office has been involved in refugee status determination of women and gender-based persecution in the context of its participation in the CRR. A distinct case law is developing regarding the situation of female asylum-seekers where the latter claim specific persecution resulting from discriminatory practices towards them. In matters relating to refugee children, and following the ratification of the Convention on the Rights of the Child, the Office has noted a number of measures taken to improve their position as regards asylum.
(g) Oversight reports
46. No reports were initiated during the reporting period.
6. Germany
(a) Beneficiaries
47. 1996 saw a continued decrease in the number of asylum-seekers in Germany. A total of 149,193 persons filed asylum applications during the course of the year (116,367 new applications and 32,826 repeat applications) as opposed to a total of some 167,000 in 1995. During the year, some 24,000 persons were recognized as refugees in the first instance of the asylum procedure under the 1951 Convention and the German Constitution (16 per cent of material decisions), while 124,575 were rejected. The ten main countries of origin were Turkey, the Federal Republic of Yugoslavia, Iraq, Afghanistan, Sri Lanka, the Islamic Republic of Iran, Armenia, Zaire, India and Pakistan.
48. According to the German Government, there were approximately 1,596,000 refugees and asylum-seekers in Germany as of 31 December 1996. This figure includes 316,000 persons granted asylum or refugee status, either themselves or as family members of refugees, 103,000 "quota" refugees (admitted to Germany as part of a humanitarian relief operation), 17,000 stateless persons who have remained in Germany since the end of the Second World War, 500,000 de facto refugees, 310,000 civil war refugees from Bosnia and Herzegovina and 350,000 asylum-seekers whose cases have not yet been definitively adjudicated.
(b) Recent developments and objectives
49. In May 1996, the German Constitutional Court upheld the constitutionality of Germany's "safe third country" and "safe country of origin" regulations as well as the airport procedure. As a result, UNHCR has increased its efforts at ensuring that asylum-seekers have access to a full and fair procedure in the designated safe third countries in the region. Throughout 1996, UNHCR continued its monitoring of the German asylum procedure. Special attention has been paid to the issue of persons seeking protection from persecution by non-state agents and victims of civil war. The Branch Office in Bonn has also been instrumental in the provision of country of origin information, in particular through the submission of expert reports and position papers in court proceedings. The Office has continued to decrease its involvement in individual casework by supporting a number of NGOs devoted to legal assistance and to the provision of counselling to asylum-seekers and refugees. Training and public information activities remain priorities for the Office.
50. Following the signing of the Dayton Peace Agreement in December 1995, the German Federal and State Governments adopted a plan for the return to Bosnia and Herzegovina based on the premise of voluntary return as well as the possibility of compulsory return beginning in two phases as of 1 October 1996. The Branch Office in Bonn is actively engaged in efforts to promote and support voluntary repatriation, as well as ensuring that Bosnians in need of international protection are not forcibly returned.
(c) Implementing partners/arrangements
51. UNHCR has signed sub-agreements with a number of partners such as the "Deutsche Caritasverband", the "Diakonisches Werk", the German Red Cross, the "Deutsche Stiftung für UNO-Flüchtlingshilfe", the "Bundesverband Information und Beratung für NS-Verfolgte" and "Zentrale Dokumentationsstelle der Freien Wohlfahrtspflege". Many major voluntary organizations also implement their own programmes of assistance to refugees and asylum-seekers.
(d) Budget
52. As in other Western European countries, the 1997 and 1998 assistance programme budgets have been decreased as compared to 1996.
(e) Post situation
53. The UNHCR Sub-Office in Zirndorf (including three UNHCR posts) moved in late 1996 to new premises at the German Federal Office for Recognition of Refugees in Nüremberg. In order to adequately cover repatriation to the former Yugoslavia, two Liaison Officer and one Repatriation Officer post were created. No other post changes are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
54. UNHCR has been engaged in efforts to improve safeguards for unaccompanied minors who seek asylum in Germany, and in particular those between 16 and 18 years of age, who are treated as adults in the German asylum procedure. The Office closely monitors developments relating to the refugee status determination of unaccompanied minors, as well as of women, and has actively promoted an improved understanding of issues related to gender-based persecution. The Office has also participated in numerous seminars and meetings on the subject of refugee children and refugee women, in particular on the impact of war and displacement on these groups. Furthermore, UNHCR is participating in the training of twelve Special Commissioners from the Federal Office (four each to cover women, children and victims of torture).
(g) Oversight reports
55. No reports were initiated during the reporting period.
7. Greece
(a) Beneficiaries
56. During 1996, a total of 1,564 asylum applications were lodged in Greece, a slight increase over the 1995 figure of 1,312. The main countries of origin are Iraq, the Islamic Republic of Iran and Turkey.113 persons were granted refugee status. In addition, the Greek authorities granted temporary protection to 1,815 Iraqi Kurds. During the first two months of 1997, over 500 new arrivals were noted and, according to the authorities, some 14,600 Albanians arrived legally in Greece during the first three weeks of March 1997.
(b) Recent developments and objectives
57. The revised draft legislation on asylum and refugee status was approved by Parliament in December 1996, amid little publicity. UNHCR was closely involved in the initial drafting stages and will continue to monitor the implementation of the new law.
58. The Greek authorities have been faced with an increasing influx of Iraqi Kurds arriving in Greece via Turkey. Temporary protection was granted to the initial caseload, but the authorities are concerned that this has become a factor encouraging new arrivals. In an effort to prevent further arrivals, and to stem efforts of illegal migrants to enter Greece, border controls have been augmented through the reinforcement of police, army, navy and coastguard units.
59. The authorities are also closely monitoring developments in Albania and the arrivals of Albanians in Greece. Greece has received an official request from the Albanian Government for assistance, inter alia, for medical supplies and fuel.
60. The UNHCR Branch Office in Athens continues to hold frequent discussions with the appropriate authorities on access of all asylum-seekers to the procedures and to help ensure that national asylum policy and practice are in accordance with international standards. The Office continues to assist local NGOs in dealing with individual casework. In this context, a shift in UNHCR funded programme activities has taken place in 1997 from care and maintenance to a focus on local settlement work, particularly skills and language training, job placement opportunities for refugees and income-generation projects, following provisions in the legislation on the right of refugees to work.
61. In line with UNHCR's regional policy for Western Europe, the Office in Athens continues to reinforce its activities in training and public information campaigns.
(c) Implementing partners/arrangements
62. The main implementing partner for activities in Greece is the Greek Refugee Council. Other partners include the Social Work Foundation, International Social Counselling and Médecins sans Frontières.
(d) Budget
63. For 1997, there was a reduction in assistance programme activities, and it is expected that further savings will be identified for 1998.
(e) Post situation
64. In November 1996, it was agreed to convert the posts of Protection Officer and Public Information Officer from the international to the National Officer category. No other post changes are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
65. No specific guidelines apply in Greece to the determination of refugee status of either women or children, although unaccompanied minors are entitled to special treatment in relation to social and medical care. The Office has widely disseminated UNHCR standards, mostly translated into Greek, and has organized training activities to teach techniques for interviewing female asylum-seekers. Furthermore, community-based assistance projects for refugees are sensitive to the special needs of refugee women, who are given preferential access to assistance and to participation in various projects.
(g) Oversight reports
66. No reports were initiated during the reporting period.
8. Iceland
67. The number of asylum requests is very low, with a total of four asylum-seekers having entered Iceland during 1996. Nevertheless, UNHCR's Regional Office in Stockholm maintains regular contacts with the Icelandic authorities and the Icelandic Red Cross, which is the lead NGO involved in asylum issues.
68. Although lacking a regular resettlement quota, Iceland accepted 30 refugees from the former Yugoslavia for resettlement during 1996.
69. Further information on developments and activities in the Nordic countries is provided under the sub-regional overview (above).
9. Ireland
(a) Beneficiaries
70. During 1996, Ireland registered a total of 1,179 persons claiming asylum. This marked increase as compared to 1995 strained the administrative structure and relatively few decisions were taken, leaving a pending caseload at the end of 1996 of 1,071 applicants. During 1996, the Department of Justice took 65 decisions, mostly relating to claims from previous years. Of these, 33 were recognized, 26 were rejected and six were granted humanitarian leave to remain.
(b) Recent developments and objectives
71. The Refugee Act was approved by the Irish Parliament in June 1996, and is expected to enter into force towards the middle of 1997. The Department of Justice, the Irish Refugee Council and UNHCR have therefore had to continue administrative refugee status determination. Under this procedure, UNHCR has to give an opinion on each individual case. Since February 1997, a team has been employed to clear the backlog of cases prior to the coming into force of the Refugee Act. UNHCR continues to cooperate closely with the authorities on the setting up of procedures within the framework of the new legislation and in providing assistance to the Irish Refugee Council which refers asylum-seekers to appropriate legal practitioners and trains solicitors in asylum measures.
72. During 1997, UNHCR foresees that the refugee determination procedures will be fully functioning, thus enabling the Office to disengage from individual casework in compliance with its policy in Western Europe. Focus will shift to local settlement activities and to promoting awareness and understanding of local and global refugee issues.
(c) Implementing partners/arrangements
73. Legal assistance for refugees and asylum-seekers is provided by the Irish Refugee Council, with UNHCR support. Training and public information activities are covered from the Branch Office in London.
(d) Budget
74. The 1997 budget was increased in order to continue assistance to the Irish Refugee Council pending the full-functioning of the determination procedures.
75. In early 1997, a donation was made to UNHCR by the Irish Government for the clearance of the backlog of asylum applications. It is expected that this backlog will be cleared by July 1997.
(e) Post situation
76. There is currently no established UNHCR presence in Ireland. All activities are covered from the Branch Office in London.
(f) Implementation of policy priorities (women, children, environment)
77. Although specialized agencies with the expertise to deal with the situation of refugee children exist, this is still a relatively new field in Ireland. UNHCR, together with the appropriate agencies, is therefore looking at other States' models of care for refugee minors in order to improve the present response.
78. Training activities give emphasis to both procedural and substantive issues as far as they apply to refugee women, such as appropriate interviewing techniques. NGOs are also aware of the particular needs of refugee women and respond to them effectively.
(g) Oversight reports
79. No reports were initiated during the reporting period.
10. Italy
(a) Beneficiaries
80. During 1996, a total of 675 new applications for asylum were lodged in Italy, a decrease as compared to the number of applications in 1995. Approximately 50 per cent of the applicants originated from Africa. A total of 694 requests were examined by the Italian Eligibility Commission which recognized 172 cases (a recognition rate of 25 per cent) as falling within the Convention and rejected 522 cases. The number of refugee applicants in Italy continues to be strikingly low as compared to those in other Western European countries.
81. In addition, some 49,000 individuals from the former Yugoslavia have been granted special humanitarian leave to remain in Italy, while some 10,000 Somalis also benefit from similar status.
82. During the first quarter of 1997, over 13,000 Albanians arrived in Italy as a result of the situation in their country of origin. So far, only 1,700 have applied for asylum, with most of the others being given temporary protection in Italy until the situation in Albania allows for their return.
(b) Recent developments and objectives
83. Part of the electoral campaign of the newly-elected Government was full implementation of the asylum-related provisions of the Italian Constitution, which will require enactment of appropriate legislation, and of the Schengen Agreement. The Branch Office in Rome will therefore work closely with the appropriate authorities on these issues.
84. As a follow-up to the Dayton Peace Agreement and UNHCR's operational plan for repatriation to Bosnia and Herzegovina, the Office in Rome is maintaining regular contacts with the appropriate government counterparts, and with interested NGOs. The Government has indicated agreement with UNHCR's plan, confirming its intention not to push for any non-voluntary return but to maintain, for the time being, the temporary protection regime.
85. The influx of illegal migrants into Italy continued, with relatively large numbers arriving irregularly, especially on small boats. Border controls have been reinforced, particularly in light of the recent crisis in Albania. It is expected that these controls will be maintained as part of Italy's obligations under the Schengen Agreement. UNHCR is in close contact with the authorities on the issue of Albanian arrivals, and jointly monitors the evolving situation.
86. The Office has, in coordination with the Italian Refugee Council, supported the establishment of an Information Centre for asylum applicants at Rome's main international airport, and is considering expanding this service.
87. The Branch Office in Rome has submitted a Pro-Memoria to the Government suggesting the inclusion of specific provisions to improve the current refugee legislation. A governmental working group has been established to draft legislation on refugee and asylum issues which should be ready by the end of March 1997. The Office continues to implement training and public awareness activities, including translations of key materials into Italian, and has also consolidated its activities in the sphere of private sector fund raising, with positive results.
(c) Implementing partners/arrangements
88. UNHCR's main implementing partner is the Italian Refugee Council which implements activities relating to both local settlement and the provision of care and maintenance assistance to refugees and asylum-seekers. In addition, the Office has a small project with the Ministry of Interior for one-time assistance to vulnerable cases and recently recognized refugees, with the Ministry directly contributing the majority of the required funds.
(d) Budget
89. In accordance with UNHCR's policy for Western Europe, reductions were made in the 1997 General Programmes budget. Within the local settlement programme, the Ministry of Interior increased its financial support and UNHCR's financial participation was consequently reduced to a minimum. It is hoped that in 1998, the Ministry will take over full responsibility for this project. The local integration project with the Italian Refugee Council is being phased out gradually as the agency obtains alternative funding. The care and maintenance project has also been reduced.
90. Private sector fund raising activities are financed from a Trust Fund established for this purpose. This Fund also covers the costs of two posts in the Branch Office related to these activities. Funds raised in 1996 totalled some $ 3.5 million.
(e) Post situation
91. Seven posts related to activities in the former Yugoslavia were discontinued during 1996. No post changes are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
92. No particular provisions exist in domestic legislation relating to the status determination of women. However, it has been agreed that women will, whenever possible, be interviewed by female eligibility officers. In terms of material assistance, women benefit, as a vulnerable group, from special measures targeted to meet their needs. A specific project for refugee families has also been launched by the Italian authorities. With regard to refugee children, the Guidelines on the Protection and Care will be translated into Italian and will be disseminated to local authorities and other appropriate bodies.
(g) Oversight reports
93. No reports were initiated during the reporting period.
11. Latvia
94. A draft law on asylum-seekers and refugees was submitted by the Latvian Cabinet to Parliament in February 1997. The UNHCR Regional Office in Stockholm was consulted during the drafting process and provided comments. Latvia has furthermore indicated its intention to ratify the 1951 Convention. UNHCR is thus working closely with the authorities in establishing a detailed plan for the implementation of the law and the Convention.
95. The claims of the asylum-seekers detained in Olaine, Latvia, were individually assessed by UNHCR together with the Latvian authorities. Those meeting the refugee criteria were subsequently accepted for resettlement in the Nordic countries in December 1996.
96. A UNHCR sub-office for the Baltic States may be established in Riga in late 1997 or early 1998. In Latvia, UNHCR works with CARITAS to provide humanitarian assistance to asylum-seekers.
97. Further information on developments and activities in the three Baltic States is provided above under the sub-regional overview and the country review on Estonia.
12. Liechtenstein
98. In December 1996, Liechtenstein hosted 255 persons, mostly originating from Bosnia and Herzegovina, who benefit from temporary protection. Liechtenstein has also granted asylum to 19 Tibetans.
99. A draft Law on Asylum was submitted to UNHCR for comments in 1996 and should be discussed in Parliament in 1997. If adopted, the law would become the first asylum law in Liechtenstein's history.
100. UNHCR's activities in Liechtenstein are covered by the Unit for Switzerland and Liechtenstein, based at UNHCR Headquarters in Geneva.
13. Lithuania
101. In January 1997, the Lithuanian Parliament ratified the 1951 Convention and the related 1967 Protocol. The Lithuanian Parliament had already adopted a national refugee law in July 1995. However, the law will only enter into force at the same time as the 1951 Convention, the exact date depending on the deposit of the ratification instruments with the United Nations Secretary-General.
102. With support from the Nordic countries and UNHCR, the Lithuanian authorities have been preparing the infrastructure for the implementation of the law. A Council of Refugee Affairs was opened in June 1996, a refugee reception centre became ready to receive asylum-seekers in December 1996, and an elaborate training scheme started with the Ministry of the Interior in September 1996.
103. Further information on developments and activities in the three Baltic States is provided above under the sub-regional overview and the country review on Estonia.
14. Luxembourg
104. The total number of asylum applicants in Luxembourg during 1996 was 263. The main countries of origin were the former Yugoslavia (157, including Bosnia and Herzegovina), Algeria (10), Poland (9), Zaire (8), Iraq (8), Romania (8), Turkey (7), The Russian Federation (7) and the Islamic Republic of Iran (7). Twenty-two persons were recognized as refugees under the 1951 Convention, 40 persons were rejected and 114 withdrew.
105. The Honorary Correspondent in Luxembourg, with the support and assistance of the Regional Office in Brussels, provides general information and legal advice relating to refugees and status determination, as well as refugee law training, and updates on UNHCR's position towards repatriation to Bosnia and Herzegovina.
106. The Office in Brussels will continue to conduct training in refugee law in Luxembourg, focusing on the protection of refugee women and children.
15. Malta
(a) Beneficiaries
107. During 1996, a drop in the number of asylum applications was noted, with only 75 applications being filed. The majority of applicants originate from North Africa and the Horn of Africa. There are also a number of Palestinians.
108. By the end of 1996, there were a total of 155 recognized refugee cases (285 persons) in Malta. Due to the fact that the Government of Malta maintains a geographical reservation to the 1951 Convention, all status determination is undertaken by UNHCR.
(b) Recent developments and objectives
109. UNHCR's primary objectives in Malta remain the removal of the geographical reservation by the Maltese Government and the establishment of eligibility procedures. In the meantime, UNHCR continues to focus on status determination and assistance to asylum-seekers and refugees in Malta and to seek the Government's agreement to grant work permits to refugees. Resettlement activities are also carried out, mainly for Iraqi mandate refugees, but with increasing difficulties due to the lack of resettlement places.
(c) Implementing partners/arrangements
110. Care and maintenance activities for refugees recognized under the UNHCR Mandate are implemented by the Emigrants' Commission.
(d) Budget
111. During 1996, reductions in assistance grants to refugees were introduced. As of 1997, assistance for all but the most vulnerable cases will be terminated after a period of two years. A reduction is thus foreseen in the 1997 project budget.
(e) Post situation
112. There is no UNHCR presence in Malta. Activities are covered from the Branch Office in Rome, in close cooperation with the local implementing partner.
(f) Implementation of policy priorities (women, children, environment)
113. The Branch Office in Rome will continue to pay special attention to the needs of refugee women, through provision of appropriate assistance to meet their needs.
(g) Oversight reports
114. No reports were initiated during the reporting period.
16. The Netherlands
(a) Beneficiaries
115. During 1996, there were a total of 22,857 applications for asylum, a decrease as compared to the 29,258 submitted in 1995. The main countries of origin were Iraq (4,378), Afghanistan (3,019), the Islamic Republic of Iran (1,521), Sri Lanka (1,483), Somalia (1,461), Bosnia and Herzegovina (984), the Federal Republic of Yugoslavia (797), Turkey (692), the Sudan (658) and Liberia (635).
116. In 1996, the Dutch authorities considered a total of 25,072 cases, of which 3,133 were recognized as refugees under the Dutch asylum law and 15,297 were rejected. A further 6,642 were granted temporary residence permits. The Appeals Board reviewed a total of 46,204 cases, of which 5,673 were accorded refugee status, 32,389 were rejected and 8,142 were given temporary residence permits.
(b) Recent developments and objectives
117. The UNHCR Liaison Office in The Hague continues to monitor developments in the field of refugee legislation and jurisprudence. The Office has participated in sessions of the State Council to provide interpretation on issues such as agents of persecution, civil war "refugees", de facto authorities and internal flight alternatives.
118. The Office will continue enhancing cooperation with relevant authorities through the sharing of country of origin information, training and public awareness activities. Coordination with NGOs is also an important area of work, including promotion of NGOs in refugee assistance programmes.
(c) Implementing partners/arrangements
119. There are no UNHCR implementing partners in the Netherlands.
(d) Budget
120. There are no UNHCR assistance programmes in the Netherlands.
(e) Post situation
121. The post situation remains unchanged for the 1996 to 1998 period.
(f) Implementation of policy priorities (women, children, environment)
122. The Liaison Office will continue to pay special attention to the needs of refugee women and children, through training and seminars, as well as monitoring of developments in jurisprudence.
(g) Oversight reports
123. No reports were initiated during the reporting period.
17. Norway
124. The number of applications for refugee status in Norway rose slightly from 1,460 in 1995 to 1,778 in 1996.
125. In December 1996, the Government proposed an amendment to the Aliens Law calling for a new appeals board to deal with persons in need of protection (asylum cases) while other immigration cases would be dealt with by a separate appeals body. The Office also participates in discussions with the authorities on issues relating to status determination.
126. The Government of Norway decided to permit Bosnian refugees to remain if they do not wish to repatriate to Bosnia and Herzegovina.
127. A special "Plan for the reception of minor asylum-seekers without parents or other legal guardian in Norway" has been implemented.
128. Further information on developments and activities in the Nordic countries is provided under the sub-regional overview (above).
18. Portugal
(a) Beneficiaries
129. The number of asylum applications decreased from 457 in 1995 to 269 in 1996. The main countries of origin are Romania (42), Zaire (28), Liberia (26) and Sierra Leone (21).
Of the 227 decisions in 1996, there were 167 rejections and five recognitions under the 1951 Convention. A further 55 persons were granted humanitarian status.
(b) Recent developments and objectives
130. The drafting phase of the proposed new asylum law was completed in November 1996. UNHCR participated in this process, in close cooperation with the governmental working group appointed for this purpose. The foreseen consultative role of UNHCR in all stages of the refugee status determination procedure and appeal opportunities, in both the admissibility and asylum procedures, are important improvements to the existing asylum regime in Portugal. The Office in Lisbon will cooperate closely with the authorities and NGOs on these proposals, as well as on the establishment of an improved social support mechanism for refugees and asylum-seekers.
131. The UNHCR Office in Portugal continued to strengthen training activities and the promotion of refugee law, including extensive translations of material into Portuguese, and established a Documentation Centre on Refugees for the Portuguese-speaking world, with CD-ROM and Internet facilities. Close ties with the media have also been established.
132. UNHCR's local integration programme continues to provide assistance to refugees, with a gradual transfer of individual cases to a local NGO.
(c) Implementing partners/arrangements
133. Special assistance to vulnerable refugees, and a few asylum-seekers, is provided by the Regional Centres of Social Security under a UNHCR funded project. Legal assistance activities for the benefit of refugees and asylum-seekers are implemented by the Portuguese Refugee Council, under a sub-agreement with UNHCR.
(d) Budget
134. The budget for local settlement activities has been maintained with only a slight reduction in 1997. It is expected that more substantial reductions will occur in 1998, particularly in the light of the provisions of the new draft legislation.
(e) Post Situation
135. The post situation remains unchanged for the 1996 to 1998 period.
(f) Implementation of policy priorities (women, children, environment)
136. The Branch Office in Lisbon will continue to pay special attention to the needs of refugee women and children in the status determination procedure through appropriate training courses. Assistance targeted to the needs of these groups will be incorporated in the general assistance measures provided for needy refugees and asylum-seekers.
(g) Oversight reports
137. No reports were initiated during the reporting period.
19. Spain
(a) Beneficiaries
138. A total number of 4,730 persons requested asylum in Spain in 1996, as compared to 5,678 in 1995. The main countries of origin were Romania, the Islamic Republic of Iran, Cuba, Liberia, Nigeria, Armenia, Iraq, Equatorial Guinea, Ecuador and Algeria.
139. During 1996, the Inter-ministerial Eligibility Commission for Asylum and Refuge examined 2,107 claims, of which 246 were recognised (11 per cent) and 1,861 were rejected.
(b) Recent developments and objectives
140. The new Government, in place after the 1996 election, has indicated its intention to increase its financial contribution to Spanish NGOs operating in developing countries. During the year, a new pro bono legal assistance law was enacted which establishes, inter alia, the right of aliens, regardless of their legal status in Spain, to access free legal assistance at all instances of any criminal or administrative procedure, the latter relating to asylum applications.
141. The Spanish Government is currently discussing the establishment of a resettlement quota, and UNHCR is expected to be associated in its implementation.
142. UNHCR in Spain works in close cooperation with governmental and non-governmental counterparts in the refugee status determination procedures and in the implementation of assistance programmes for refugees and asylum-seekers. The Office is actively involved in accelerated and regular status determination procedures and employs four lawyers for this purpose, of whom two are funded by the Spanish Government. During 1997, the Office will continue these functions, as well as focusing on strengthening links with the NGO community. Refugee law training activities will be enhanced, and public awareness activities will be continued, in close cooperation with the UNHCR Spanish Committee "España con ACNUR".
(c) Implementing partners/arrangements
143. Legal assistance activities are implemented through a sub-agreement with the Spanish Committee for UNHCR, as are a number of public awareness and fund raising activities.
(d) Budget
144. A slight reduction as compared to 1996 was made in the 1997 local settlement project. Within this programme, funds for the salaries of two lawyers are received from the Spanish Government. An allocation from the Government is also received to pay for public awareness activities, including the translation of public information materials into Spanish.
(e) Post situation
145. The post situation remains unchanged for the 1996 to 1998 period.
(f) Implementation of policy priorities (women, children, environment)
146. The Branch Office in Madrid will continue to pay special attention to the needs of refugee women and children through appropriate training activities and the dissemination of public information material focusing on these issues.
(g) Oversight reports
147. No reports were initiated during the reporting period.
20. Sweden
(a) Beneficiaries
148. During 1996, 5,753 applications for refugee status were lodged in Sweden, a decrease of 36 per cent as compared to the 1995 total.
(b) Recent developments and objectives
149. In December 1996, the Swedish Parliament passed amendments to the Aliens Act which provide for an expanded definition of "refugee" to include persecution by non-state agents. The legislation now provides for a new category of protection to cover those applicants fleeing from armed conflict or environmental catastrophe as well as those fleeing from persecution on grounds of sexual orientation or gender.
150. In November 1996, the Ministry of Foreign Affairs decided that 2,500 Bosnians with Croatian passports could return to Croatia, and those coming from Bosnia and Herzegovina could return to areas where their own ethnic group is in the majority. This applies only to those who arrived in Sweden after the signing of the Dayton Peace Accord. The Ministry suggested that those persons in mixed marriages and/or coming from minority areas should be given 1951 Convention refugee status.
151. The UNHCR Office in Stockholm has transferred routine individual casework to appropriate NGOs and has recently discontinued funding to them following the identification of alternative funding mechanisms. However, the Office continues to maintain a close dialogue with NGOs, as well as with governmental counterparts. The Office also arranges and participates in training seminars and is engaged in an active public information campaign.
152. Further information on developments and activities in the Nordic countries is provided under the sub-regional overview (above).
(c) Implementing partners/arrangements
153. There are no UNHCR implementing partners in the Nordic countries. All training and public information activities are directly implemented by the Regional Office in Stockholm.
(d) Budget
154. The only UNHCR funded programme in the Nordic countries is for public information and training purposes, and is administered and implemented directly by the Regional Office in Stockholm.
(e) Post situation
155. All UNHCR activities in the Nordic and Baltic countries are covered by the Regional Office in Stockholm. A post of Senior Liaison Officer for the Baltic States and another post of Liaison Officer for issues related to the former Yugoslavia were created in 1996. No changes in the post situation are foreseen for 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
156. The Regional Office in Stockholm continues to monitor developments in legislation and jurisprudence which impact on refugee women or children. The Office is involved in an ongoing dialogue with Governments and NGOs on these issues, and disseminates widely the UNHCR Guidelines on the Protection of Refugee Women and Refugee Children: Guidelines on Protection and Care.
21. Switzerland
(a) Beneficiaries
157. As of 1 January 1997, Switzerland hosted 22,614 refugees (12,218 men and 10,396 women) as compared to 24,581 at the end of 1995. During 1996, a total of 18,001 new asylum applications were filed. The main countries of origin were the Federal Republic of Yugoslavia (6,228), Sri Lanka (1,965), Turkey (1,317), Bosnia and Herzegovina (1,265) and Somalia (700). The recognition rate of cases reviewed in 1996 (1,317) was 12 per cent as compared to 14.9 per cent in 1995.
(b) Recent developments and objectives
158. The draft revision of the asylum law was submitted to Parliament on 4 December 1995 and should be discussed and voted on in the May/June 1997 parliamentary session. The revised law is expected to enter into force in the beginning of 1998. The Swiss Federal Council has decided that all Bosnians displaced by the war should return to Bosnia and Herzegovina, single persons by 30 April 1997, and families with minor children by July 1998.
159. A bilateral readmission agreement with the Federal Republic of Yugoslavia should be signed in March or April 1997 which would concern the return of around 12,000 rejected asylum-seekers of Albanian ethnicity from Kosovo.
160. During 1997 and 1998, emphasis will continue to be placed on network building and legal training of NGOs to strengthen their capacity to provide legal advice to asylum-seekers and refugees. Refugee law training and country of origin seminars will target the Swiss Appeals Board as well as police officers. UNHCR will work to expand its role in influencing general policy issues relating to asylum-seekers and refugees and reducing its intervention in individual cases which are not of a precedent-setting nature.
(c) Implementing partners/arrangements
161. Implementing partners in Switzerland include the "Organisation Suisse d'Aide aux Réfugiés" and the "Fondation Suisse du Service Social International".
(d) Budget
162. The 1997 budget was slightly reduced and a more significant reduction is planned for 1998 by reducing UNHCR's financial support to the two implementing partners while assisting them to obtain alternative funding.
(e) Post situation
163. The staffing requirements for UNHCR's Unit for Switzerland and Liechtenstein are included under the Headquarters budget. An additional post dealing with the Swiss airport procedure will possibly be funded through a contribution by the Swiss Government.
(f) Implementation of policy priorities (women, children, environment)
164. Special procedural guidelines for the treatment of asylum requests from female asylum-seekers were issued in February 1997 by the Swiss authorities, which implemented the UNHCR recommendations as laid out in the Guidelines for the Protection of Refugee Women.
(g) Oversight reports
165. A report evaluating UNHCR's present role in the Swiss airport procedure in regard to asylum-seekers was compiled in 1996 and provided several options, including UNHCR's withdrawal from the procedure. After discussion with the Swiss Federal Office for Refugees, it was agreed that UNHCR would continue to participate in the procedure but that financial support for this would be provided by the Swiss authorities. On the basis of the study, UNHCR also proposed improvements to the procedure.
22. United Kingdom
(a) Beneficiaries
166. During 1996, a total of 27,875 applications for refugee status were received in the United Kingdom as compared to 43,965 in 1995. The main countries of origin include Nigeria, Somalia, India, Pakistan, Turkey, some countries of the former Soviet Union and Sri Lanka.
167. A total of 38,965 decisions were made, of which 2,240 were recognized as refugees (5.7 per cent), 31,670 were rejected and 5,055 were given exceptional leave to remain. The number of pending cases at the end of 1996 was 55,645.
(b) Recent developments and objectives
168. The introduction of restrictive social security measures for asylum-seekers was a main preoccupation of the Branch Office in London during 1996. The Office has accordingly worked with the concerned authorities and NGOs on this issue.
169. The Office has also been actively working with the national committee, UK for UNHCR, in the setting up of the organization itself and in developing its fund raising strategy. Initial activities have had positive results, and will be further consolidated in 1997.
170. Priority issues for 1997 include monitoring of legislative and jurisprudential developments, enhancing links with partners, both governmental and non-governmental, a focus on issues such as the increasing level of detention of asylum-seekers, and continued cooperation in training activities. The local settlement programme will continue to support the activities of the British Red Cross and the Refugee Legal Centre. A separate voluntary repatriation project with the International Organization for Migration (IOM) will also be implemented.
(c) Implementing partners/arrangements
171. Implementing partners include IOM (for the voluntary repatriation of refugees), the Refugee Legal Centre (for legal assistance and protection activities) and the British Red Cross Society (for family reunion and resettlement related activities).
172. Public awareness activities and private sector fund raising are carried out within the terms of an agreement with UK for UNHCR.
(d) Budget
173. The budget for local settlement activities was slightly decreased in 1997, in accordance with UNHCR's policy in Western Europe. However, the voluntary repatriation project with IOM was augmented as a result of an increase in the number of beneficiaries. A Trust Fund has also been established with a view to supporting the activities of UK for UNHCR.
(e) Post situation
174. The post situation remains unchanged for the 1996 to 1998 period.
(f) Implementation of policy priorities (women, children, environment)
175. The Branch Office in London has established regular contact with a panel of advisors supporting unaccompanied children. The detention of unaccompanied children has also been a subject of concern to the Office which maintains discussions on the issue with relevant interlocutors. In a climate of restrictive policies vis-à-vis asylum-seekers in general, the Office is paying special attention to the needs of women by focusing on particular areas of concern, and is also maintaining a dialogue on these issues with partners, as well as implementing appropriate training courses.
(g) Oversight reports
176. No reports were initiated during the reporting period.
III. CENTRAL EUROPE
A. Sub-regional overview
177. In Central Europe, efforts continue which are aimed at influencing the legislative process leading to the establishment of fair and accessible refugee determination procedures. In the context of the prevention of statelessness, UNHCR has been advising the Czech Republic and Slovakia on the implications of their respective citizenship legislation. The new refugee law in Slovakia came into effect in January 1996 incorporating most of UNHCR's suggestions and, in May 1996, the Czech Parliament introduced a new amendment to the existing refugee law (1992) which deleted a provision limiting refugee status to a period of five years. The new provision provides opportunities for recognized refugees to apply for Czech citizenship after a five year stay in the Czech Republic. Following this amendment, UNHCR, with a local NGO, established a project aimed at providing counselling and administrative guidance to individuals wishing to legalize their Czech citizenship. UNHCR is grateful for the support lent by the Czech authorities to this project which benefits over 2,000 persons, mostly children under foster care and prisoners. UNHCR views its cooperation with the Czech Republic in this field as having been of a standard-setting nature.
178. In Romania, the asylum system is firmly established the country's legislation since the law relating to the Status and Regime of Refugees in Romania was promulgated in April 1996, and entered into force in May 1996. UNHCR has been actively involved at each stage of the elaboration of this new legislation. The Polish Parliament continues its debate on the new Aliens Law. It is anticipated that the law will be adopted in the course of 1997. UNHCR comments have been given careful consideration. In Hungary, the draft law on asylum is being finalized by the Government. It will be presented to Parliament in May 1997; simultaneously the Parliament will be requested to lift the geographical reservation.
179. As a result of the repatriation and resettlement of Bosnians returning from Hungary, the Czech Republic, Slovakia and Bulgaria, the number of de facto refugees in the sub-region has decreased. Nevertheless, the number of asylum-seekers in Poland has increased by 2,300 during 1996, putting considerable pressure on refugee authorities responsible for refugee status determination.
180. The temporary protection status for Bosnians in Austria was extended for another year and redefined to allow inclusion of some individuals with no legal status. In the Czech Republic, alternative solutions are being offered to those de facto refugees who opt to remain.
181. UNHCR continues to assist Governments in institution and capacity-building through training and the provision of limited assistance in countries where national structures for refugee status determination procedures are still rudimentary, or need to be further developed. UNHCR aims at sensitizing all States concerned (which implicitly includes Western European States) on the importance of comprehensively addressing the issue of integration of refugees in Central Europe.
182. The lack of affordable housing for asylum-seekers and refugees remains an obstacle for the rapid integration into the social structure of the host countries and tends to encourage movements to Western Europe. In this context, and in order to assist Governments in Central Europe, UNHCR commenced sensitizing institutions such as the PHARE3 programme and the Council of Europe Social Development Fund towards addressing the needs that cannot be covered by UNHCR.
Oversight reports
183. UNHCR's Inspection and Evaluation Service (IES) conducted a comprehensive inspection of UNHCR Offices and operations in Central Europe in late 1996. The mission, led by the Inspector, visited eight countries and undertook extensive consultations with UNHCR staff, government representatives, implementing partner staff as well as representatives of major donors and international organizations. A summary report was presented to the High Commissioner and shared with the Director of Operations for Europe.
184. The inspection addressed a number of issues from a regional perspective. These include: representation and policy coordination; external relations and public information; the management side of capacity-building; protection; assistance and durable solutions; and administration and staffing. In addition, the mission reviewed some issues of particular concern to the Office which include the impact of economic and social disarray on the condition of women and children. The mission also observed a link between the presence of refugees and the environment, for example in Hungary where a number of Bosnian refugees are engaged in agricultural activities.
185. Initial consultations on the summary report have already taken place with the Regional Bureau for Europe. The final report is expected to be issued in April 1997, after which a three-month follow-up process will be initiated, at the end of which the status of implementation of all recommendations will be reviewed.
186. The IES also carried out a review of capacity-building in both Central and Eastern Europe. Information on this evaluation is provided under the sub-regional overview for Eastern Europe (paragraphs 261 and 262).
B. Country reviews
1. Albania
(a) Beneficiaries
187. Some 3,000 to 5,000 persons from the former Yugoslavia are reported to have sought refuge in Albania. At present, there are 37 assisted asylum-seekers; others are being supported by Albanian families.
(b) Recent developments and objectives
188. UNHCR, in coordination with the Ministry of Local Power and the Albanian Red Cross, has established an Inter-agency Committee for emergency contingency planning for a possible influx from Kosovo. The Committee meets on a regular basis to update the plan.
189. Albania became a signatory to the 1951 Convention in 1992 and the Government makes efforts to adhere to its provisions. The UNHCR Liaison Office will continue to assist the Government in establishing refugee status determination procedures. Institution and capacity-building of government and NGO structures through training are also one of UNHCR's main objectives in Albania. The newly established migration office is now operational.
190. An update on the population movements, mainly to Italy and Greece, resulting from the recent crisis in Albania is provided under the sub-regional overview on Western Europe (see paragraphs 16-17).
(c) Implementing partners/arrangements
191. UNHCR's project for assistance to individual refugees is mainly implemented by the Albanian Red Cross; only a small part of the project is directly implemented by the Liaison Office.
(d) Budget
192. In 1996, a limited care and maintenance programme was established to cater for a small group of refugees. A provision to assist the activities of the Inter-agency Committee has also been introduced. The 1997 budget has been increased slightly to cater for the increasing number of needy asylum-seekers. It is anticipated that the 1998 budget will remain the same.
(e) Post situation
193. The staffing component (one international and three local posts) remains unchanged for the 1996 to 1998 period.
(f) Oversight reports
194. No reports were initiated during the reporting period.
2. Austria
(a) Beneficiaries
195. At the end of December 1996, the refugee population was estimated at 18,937. The number of Bosnians benefiting from the special federal/provincial care and maintenance programme decreased from 18,271 in January 1996 to 11,431 by the end of that year.
(b) Recent developments and objectives
196. UNHCR will continue to promote compliance of the Asylum Law and related legislation with international standards, in particular by advising the new Government on the amendment to this law which is currently under review as part of a process of reforms to four laws relating to aliens launched in July 1996. While certain compromises have been reached on basic problems, UNHCR continues to reiterate a number of concerns over respect for the procedural safeguards necessary to ensure that all persons in need of protection are able to obtain it. With regard to administrative practice, efforts will be geared towards maintaining a positive dialogue with the authorities, already facilitated by recent developments.
197. UNHCR will further strengthen the UNHCR-CARITAS legal counselling project and continue to support the establishment of local networks between lawyers and NGOs to ensure that asylum applicants have access to proper legal assistance and advice. In this connection, UNHCR will also continue to strengthen the coordination, planning and management capacity of the NGO community in the refugee field. To ensure that these organizations improve their capacities, it is of great importance that regular country-wide training of NGO staff in refugee determination procedures and other protection work continues. During 1997, the annual UNHCR-NGO Forum will be held for the fourth time.
198. No major developments were witnessed in 1996 in relation to a durable solution for Bosnian refugees. Temporary protection, however, was extended for another year to 31 August 1997, and was redefined to include a group of at least 150 persons previously denied residence permits. While this facilitated local integration to some degree, initiatives launched by Austria and other host nations to link reconstruction with repatriation did not produce the desired results. Very few refugees have chosen to repatriate spontaneously or with the help of local government or NGO initiatives. UNHCR, in cooperation with Austrian NGOs, continues to promote the recommendations of the meeting of the Humanitarian Issues Working Group of 16 December 1996. An official announcement of the national repatriation plan for 1997, including criteria applicable to persons who stay in Austria for humanitarian or protection reasons beyond 31 August 1997, is expected shortly.
(c) Implementing partners/arrangements
199. In order to maintain and strengthen the network of lawyers needed to adequately cover all the provinces of Austria in the implementation of the refugee counselling project mentioned above, UNHCR has signed a sub-agreement with CARITAS. Other activities are directly implemented by the Regional Office.
(d) Budget
200. The revised 1997 General Programmes budget has been increased slightly to include public information activities which were not foreseen in 1996. The 1998 budget remains the same as in 1997.
(e) Post situation
201. With the exception of the creation of a Liaison Officer post dealing with issues related to the former Yugoslavia, the staffing level for 1997 and 1998 remains unchanged. The Public Information Officer post in Vienna has been retitled Regional Public Information Officer.
(f) Implementation of policy priorities (women, children, environment)
202. In follow-up to the 1996 UNHCR-NGO Forum, UNHCR organized, in cooperation with two Austrian psychiatrists, a three-day training workshop on the psycho-social aspects of work with refugees. The course, which was attended by 25 government officials and NGO staff, served as the pilot course to plan a series of workshops in 1997. As a result of the course, a training module and related materials have been prepared and will be available in German in April 1997. These courses should enable government officials and refugee counsellors to identify individual needs for psycho-social counselling and to refer such cases to specialists. It is anticipated that most of the beneficiaries will be victims of torture and women who have experienced sexual violence or harassment.
(g) Oversight reports
203. UNHCR's Inspection and Evaluation Service (IES) undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185). Also in 1996, IES conducted an evaluation of capacity-building activities in Eastern and Central Europe, including Austria; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262).
3. Bulgaria
(a) Beneficiaries
204. As of January 1997, there were 1,600 asylum-seekers registered with the National Bureau on Territorial Asylum and Refugees (NBTAR), as compared to 1,320 persons in January 1996. A total of 240 persons were granted refugee status as compared to 113 persons in January 1996 and 29 in July 1995. Most of the asylum-seekers are from Afghanistan (537 persons), followed by stateless persons (mainly Palestinians from Kuwait) and asylum-seekers from Iraq, Bosnia and Herzegovina, Ethiopia, Armenia, the Islamic Republic of Iran and Turkey.
(b) Recent developments and objectives
205. In the course of 1996, two draft refugee laws were prepared; one by the Legal Adviser to the President and the other by NBTAR. The Bulgarian Parliament has yet to discuss the drafts, on which written comments were made by UNHCR. Legal assistance for asylum-seekers and refugees aims at providing counselling and advice on the refugee status determination process as well as on their rights. A conference on refugee law in Bulgaria is planned in 1997.
206. All needy asylum-seekers and refugees receive language classes, monthly subsistence allowances, medical care, transportation tickets and housing. UNHCR continues to organize voluntary repatriation for de facto refugees. Refugee law training activities in 1997 will focus on police judges and lawyers.
(c) Implementing partners/arrangements
207. The Liaison Office is gradually transferring more tasks to local NGOs such as the Bulgarian Red Cross and the Bulgarian Helsinki Committee. Efforts are also being made to identify and support more local NGOs, thereby allowing them to develop a more independent responsibility in relation to refugees and asylum-seekers.
(d) Budget
208 The 1997 allocation under General Programmes has been slightly increased to include small business grants, vocational training and a legal network as well as support to the Government to provide housing for asylum-seekers. It is anticipated that the 1998 budget will remain at the same level as in 1997.
(e) Post situation
209. The number of posts (two international and six local staff members) remains unchanged for the 1996 to 1998 period.
(f) Implementation of policy priorities (women, children, environment)
210. As of January 1997, there were 311 women and 369 refugee children and asylum-seekers registered with NBTAR. Most of the women are from Muslim countries (Afghanistan, Iraq, Bosnia and Herzegovina and Palestinians). In 1997, a special project developed to assist refugee women in Bulgaria, foresees a day centre to be used for different activities, including family planning and education of children. In addition, the centre will be equipped with sewing machines on which refugee women will be able to develop sewing skills. Refugee children in Bulgaria have the right to free primary and secondary education and attend kindergarten. They also benefit from the language and educational programmes offered to adult refugees and asylum-seekers.
(g) Oversight reports
211. UNHCR's Inspection and Evaluation Service undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185).
4. Czech Republic
(a) Beneficiaries
212. The total number of asylum applications lodged in the Czech Republic during 1996 was 2,156 as compared to 1,413 in 1995. The main countries of origin were Bulgaria (835), Romania (673), Afghanistan (133), Iraq (88) and Armenia (55). During 1996, 95 persons were granted refugee status, bringing the total number of recognized refugees to 1,479 since 1991. In addition, there are 787 de facto refugees, mostly Bosnians.
(b) Recent developments and objectives
213. The Czech Republic is in the process of drafting new legislation on asylum and aliens. The basic concepts of the new laws have been shared with UNHCR for comments. The draft Law on Refugees was viewed by UNHCR as positive, coherent and flexible as it contemplates a rectification of most of the inconsistencies of the present legislation and better defines a number of rights of asylum-seekers and refugees. The concepts of the future Law on Aliens, insofar as asylum is concerned, have been consistently amended by the Ministry of Interior in light of UNHCR's comments.
214. Meanwhile, the Czech Parliament approved, in May 1996, an amendment to the existing refugee law which deleted previous provisions limiting refugee status to a period of five years. Under the new provisions, refugee status continues until protection is no longer necessary and a recognized refugee can apply for citizenship after a five year stay in the Czech Republic.
215. Some 300 de facto refugees from Bosnia and Herzegovina were able to return to their country of origin within the framework of a joint repatriation programme implemented by UNHCR and the Czech Government. The Government earmarked funds for this programme which included reconstruction work in Bosnia and Herzegovina. The temporary protection regime for those who opt to remain in the Czech Republic (800 Bosnians) has been extended until end-September 1997 and alternative durable solutions are being offered to those refugees who are not willing or able to repatriate.
216. Along with other institutions, UNHCR continued to closely monitor developments related to the issues of statelessness resulting from the Czech Citizenship Law adopted following the dissolution of the Czechoslovak Federation. In May 1996, the Czech Parliament approved an amendment to the law which incorporated most of UNHCR's suggestions. Following the amendment, UNHCR, along with a local NGO, embarked on a project aimed at providing legal counselling and administrative guidance to individuals who are facing difficulties in attaining their Czech nationality. Over 2,000 persons, mostly children under foster care and prisoners, are presently benefiting from this project.
217. The objectives for 1997 and 1998 are to continue the monitoring of particular aspects of Czech asylum practice and ensuring that adequate procedural, legal and social counselling is made available to asylum-seekers and refugees as well as to persons facing difficulties in ascertaining their citizenship. Special attention will be paid to the integration of recognized refugees in the Czech Republic during 1997. Efforts will also concentrate on finding durable solutions for refugees benefiting from temporary protection. Training and public information activities will also continue to be among UNHCR's major objectives during 1997.
(c) Implementing partners/arrangements
218. Implementing partners for activities in the field of legal assistance and social counselling include the Czech Helsinki Committee, the Society of Citizens, the Organizace pro Pomoc Uprchlikum and the LOCUS Association for Social and Psychological Support. As part of UNHCR's capacity-building efforts, the Liaison Office in Prague will hold a series of legal and social training seminars for NGO and government staff.
(d) Budget
219. There was a slight increase in the 1996 local settlement budget due to the need to provide assistance in legal and administrative counselling to stateless persons. In 1997, a slight budget increase is foreseen due to the introduction of new assistance activities related to integration.
(e) Post situation
220. A post of Programme Assistant was created in January 1997. No further changes in the post levels are foreseen for 1997 or 1998.
(f) Oversight reports
221. UNHCR's Inspection and Evaluation Service undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185).
5. Hungary
(a) Beneficiaries
222. As of January 1997, there were 134 non-European refugees recognized under the mandate of UNHCR and 2,706 European refugees recognized under the 1951 Convention. In addition, there were 4,469 de facto refugees benefiting from temporary protection. Registration of new asylum-seekers from the former Yugoslavia under temporary protection ceased in January 1996, except for family reunion cases.
(b) Recent developments and objectives
223. The Government has prepared a draft declaration lifting the geographical limitation to the 1951 Convention which will be submitted to Parliament in the first half of 1997. At the same time, a Bill on Asylum regulating the status of refugees and other persons in need of international protection has been drafted. The Bill has been discussed with UNHCR, NGOs and independent experts who have had the opportunity to make comments.
224. Until such time as the geographical limitation is lifted, UNHCR will continue to provide assistance to non-European asylum-seekers and refugees. The assistance measures cover shelter, food and health, as well as language and vocational training and business grants to enable refugees to become self sufficient.
225. UNHCR has accelerated its efforts to train government officials in anticipation of the lifting of the geographical limitation to the Convention and to raise the capacity of NGOs to support government endeavours to assist refugees.
226. In cooperation with the Government, IOM and international NGOs, UNHCR has helped repatriate some 1,000 de facto refugees, primarily to Bosnia and Herzegovina. During 1997, repatriation is expected to start to Croatia (Eastern Slavonia). Simultaneously, those de facto refugees who are unable to return home will be assisted to resettle in third countries or to integrate in Hungary.
(c) Implementing partners/arrangements
227. The assistance programme for refugees from the former Yugoslavia, who have been granted temporary protection in Hungary and who will either return or integrate in the near future, is implemented through the Government, IOM, the Hungarian Maltese Charity Service and the Cordelia Foundation.
(d) Budget
228. While the level of assistance to non-European Mandate refugees has remained stable, assistance to de facto refugees decreased in 1996 as compared to 1995 as a result of repatriation. In view of planned repatriation and resettlement, assistance is expected to further decrease in 1997 and 1998.
(e) Post situation
229. The post of Head of Field Office, Pecs, has been redeployed to Budapest as a Programme Officer post. No changes in post levels are foreseen during the course of 1997, but three posts are scheduled for discontinuation by 31 December 1997.
(f) Oversight reports
230. UNHCR's Inspection and Evaluation Service (IES) undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185). Also in 1996, the IES conducted an evaluation of capacity-building activities in Eastern and Central Europe, including Hungary; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262).
6. Poland
(a) Beneficiaries
231. As of 1 January 1997, there were some 2,000 persons of concern to UNHCR, 700 of whom were recognized refugees. They are mainly from Afghanistan, Sri Lanka, Somalia, Iraq and Armenia.
(b) Recent developments and objectives
232 While Poland still remains a transit country for asylum-seekers and irregular migrants wishing to reach countries in Western Europe, the number of asylum-seekers in Poland has dramatically increased from 840 in 1995 to 3,200 in 1996. The increase is due, amongst other reasons, to stricter border controls to the west. Most of the asylum-seekers returned from Germany on the basis of a readmission agreement.
233. Legislation adopted in 1995 and 1996 on employment and social assistance now grants recognized refugees assistance similar to that available to Polish citizens. A new aliens law, which contains a section on refugees, is still under parliamentary review. UNHCR has made extensive comments on the draft law and has been invited to present its views to parliamentary committees. During 1996, the Government of Poland continued to finance and implement a programme of adaptation for recognized refugees which enables them to sustain self sufficiency.
234. UNHCR will continue to support and fund NGOs which provide social and legal counselling for refugees and asylum-seekers. Local integration support to complement government activities will also be provided through NGOs.
235. Promotion of institution and capacity-building through training for government officials, judges, lawyers and NGO staff will continue in 1997 and 1998, as will the promotion of public information activities.
(c) Implementing partners/arrangements
236. Polish Humanitarian Action, the Helsinki Foundation and CARITAS implement projects in legal and social counselling for refugees and asylum-seekers. The Polish Red Cross implements a project to complement activities carried out by the Government such as integration programmes for refugees and training courses for NGO and government staff.
(d) Budget
237. There are no major variations between the initial 1997, revised 1997 and initial 1998 budgets.
(e) Post situation
238. The number of posts (two international and five national staff) remains unchanged during the 1996 to 1998 period.
(f) Oversight reports
239. UNHCR's Inspection and Evaluation Service undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185).
7. Romania
(a) Beneficiaries
240. As of 1 March 1997, there were 154 recognized refugees and 871 asylum-seekers receiving direct material assistance from UNHCR. The majority of the beneficiaries are from Iraq, Somalia, the Islamic Republic of Iran, Afghanistan and Sudan. According to the authorities, some 1,100 asylum-seekers abandoned their applications for refugee status and all of them are believed to have left Romania.
(b) Recent developments and objectives
241. In 1991, Romania acceded to the 1951 Convention and the 1967 Protocol. In March 1996, the "Law relating to the Status and Regime of Refugees in Romania" was promulgated. The Government and Parliament of Romania extended full cooperation to UNHCR and, in a number of important areas, the Office's comments and recommendations were incorporated into the final text. While some of the shortcomings of the law, in terms of conformity with international standards and generally established state practice, were to a certain extent remedied by the subsequent implementing regulations issued in November 1996 (Government Decision No. 1182), UNHCR will continue to work closely with the authorities in pursuit of legislative initiatives to introduce the needed amendments to the legislation. Initiatives were also taken with respect to the citizenship legislation.
242. UNHCR continued to advise and assist the competent authorities in strengthening the refugee status determination procedure so as to ensure fairness, efficiency and accessibility in accordance with international standards. The Refugee Office in the Ministry of the Interior was created in November 1995 to replace the Technical Secretariat of the Romanian Committee for Migration. Considerable improvements have been made in the refugee status determination procedure. UNHCR organized a number of training activities for the Refugee Office through study visits abroad and by providing documentation and required information. Similar support was provided to NGOs working with refugees to help them further develop the skills and organizational capacity necessary to effectively carry out their day-to-day activities. UNHCR also continued its collaboration with Romanian educational institutions in the teaching and promotion of refugee law.
243. Romania continued to encounter difficulties in meeting the basic material needs of asylum-seekers and refugees. The provisions of the law relating to support of asylum-seekers and refugees remain unimplemented. As a result, asylum-seekers and refugees are being provided with short-term accommodation by the Government and the vast majority had to rely on UNHCR's care and maintenance programme. Funding of meaningful integration programmes had become impossible and virtually no refugee had been able to achieve relative self-sufficiency. Several proposals were made to the Romanian authorities to develop and implement reception and integration projects by making use of the facilities available from the Social Development Fund of the Council of Europe and the PHARE programme of the European Commission.
(c) Implementing partners/arrangements
244. The Romanian Independent Society for Human Rights is UNHCR's main implementing partner, focusing on care and maintenance activities involving subsistence, health care, community services, education and labour insertion. The Romanian Ministry of Interior will implement necessary improvements in the Gociu Camp, which is currently housing 200 beneficiaries.
(d) Budget
245. The initial 1997 allocation had to be augmented due to an increase in the numbers of beneficiaries and inflation. However, the 1998 requirements will be slightly lower than in 1997 in anticipation of some of the activities being taken over by the Government.
(e) Post situation
246. During the reporting period, the posts of Associate Protection Officer and Senior Translator/Interpreter were created, bringing the total number of posts as of 1 January 1997 to eight. No other changes are envisaged for 1997 and 1998.
(f) Oversight reports
247. UNHCR's Inspection and Evaluation Service undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185).
8. Slovakia
(a) Beneficiaries
248. As of 1 January 1997, there were some 1,098 persons of concern to UNHCR comprising 340 recognized refugees, 390 de facto refugees, 169 asylum-seekers, 184 stateless persons and 15 mandate refugees. The de facto refugees are from the former Yugoslavia, whereas most of the refugees and asylum-seekers are from Afghanistan, Iraq, Sri Lanka, and countries of the former Soviet Union.
(b) Recent developments and objectives
249. The new refugee law came into effect in January 1996. UNHCR continues to play a proactive role in lobbying for fair and comprehensive refugee and human rights legislation. UNHCR protection activities mainly focus on ensuring the unhindered and effective access of all asylum-seekers to the asylum procedure. Local integration remains the most desirable solution for refugees in Slovakia. While the social and economic rights for refugees have been partly confirmed by the Ministry of Labour and Social Affairs, absence of affordable housing hinders the rapid integration of refugees. The local settlement project in 1996 was designed to provide up to 1,000 asylum-seekers and refugees with social and legal counselling, making available vocational training and job-placement opportunities. In addition, provision was made for the rehabilitation of unused apartments for recognized refugees, and "integration grants" were given to recognized refugees to help defer the costs of housing during their search for training and employment.
250. Institution and capacity-building of government counterparts and NGOs through training and other forms of assistance remain UNHCR's main objectives in Slovakia. During 1997 and 1998, UNHCR will continue focusing on legal training for NGOs and government officials who deal with refugee status determination with the aim of improving the quality of the current status determination procedure and to create an overall awareness of refugee needs and problems.
(c) Implementing partners/arrangements
251. Several local NGOs, as well as the Ministry of Interior, implement the different components of UNHCR's programme.
(d) Budget
252. UNHCR and the Slovak authorities are continuing their integration scheme for refugees, with the Government contributing some $ 172,000 each year during 1996 and 1997 and requesting UNHCR to contribute the same. The 1996 and 1997 budgets reflect this increase. No increase is envisaged for 1998.
(e) Post situation
253. In 1997, the post of Assistant Programme Officer was created, bringing the staffing component to two international and six national posts. No further changes are envisaged for 1997 and 1998.
(f) Oversight reports
254. UNHCR's Inspection and Evaluation Service (IES) undertook an inspection of UNHCR Offices and operations in Central Europe in late 1996; further information is provided under the sub-regional overview on Central Europe (paragraphs 183-185). Also in 1996, the IES conducted an evaluation of capacity-building activities in Eastern and Central Europe, including Slovakia; further information is provided under the sub-regional overview on Eastern Europe which follows.
IV. EASTERN EUROPE (CIS COUNTRIES AND TURKEY)
A. Sub-regional overview
CIS Conference
255. At the request of a number of countries in the Commonwealth of Independent States (CIS), the United Nations General Assembly, in 1994, called upon the High Commissioner to convene a regional conference to address the problem of refugees, displaced persons, other forms of involuntary displacement and returnees in the countries of the Commonwealth of Independent States and relevant neighbouring States. The CIS Conference, as it became known, took place in Geneva 30 on 31 May 1996 and was attended by all 12 countries of the CIS, 70 other interested States, 30 international organizations and 77 international and national NGOs.
256. The CIS Conference adopted a Programme of Action comprising a comprehensive strategy for addressing problems of refugees and migrants based on a body of principles drawn from international humanitarian and human rights law. The Programme relates to eight different categories of persons of concern identified by the Conference and encompasses a wide range of issues, including policy formulation and institutional development in migration and refugee management, operational aspects of repatriation and return, emergency assistance, cooperation at national and international levels and preventive mechanisms.
257. The Conference process itself, and the thrust of the Programme of Action as a whole, is preventive in nature, seeking to alleviate the conditions which lead to all types of involuntary population movements. As a result of the Conference, UNHCR's activities in the region now include assistance to solve the problems of "formerly deported peoples" and of "involuntarily relocated persons" who were highlighted by the Conference as groups of concern. The problems faced by these groups require a multi-sectoral and multi-organizational response, and UNHCR is working with, inter alia, UNDP, TACIS4 and the Organization for Security and Cooperation in Europe (OSCE) High Commissioner on National Minorities.
258. UNHCR is also strengthening the capacity-building components of its programmes to help improve national capacities to deal with displacement and migration problems, for example where citizenship issues and statelessness are concerned, and in building independent judiciaries. This also entails close cooperation with, inter alia, the Council of Europe and TACIS. The Programme of Action emphasized the need to strengthen civil society. In the follow-up to the Conference, UNHCR has launched a number of NGO capacity-building initiatives in the CIS countries to stimulate their involvement in the legal sector, in assistance activities and in research related to persons of concern to the Conference, thereby helping the NGOs to establish better linkages with Governments, with international organizations and with each other.
259. National implementation plans have been drawn up with the concerned Governments for 1997, which indicate the Governments' priorities and the respective roles of the various actors. The plans formed the basis for UNHCR and International Organization for Migration (IOM) programmes in 1997, which were presented jointly in an appeal in November 1996.
260. A preliminary Steering Group meeting was held in October 1996 which established the role of the Group, participation by NGOs and reporting procedures, and which agreed on implementation and follow-up plans. The 1997 Steering Group meeting will take place in early July and will include the participation, as observers, of up to 150 NGOs.
Oversight reports
261. In 1996, UNHCR's Inspection and Evaluation Service carried out a review of capacity-building activities in Central and Eastern Europe which focused on the need to define and systematically develop these activities as a core function in these two sub-regions. The evaluation noted that, in the absence of a single methodology or approach to capacity-building, UNHCR Offices in Central and Eastern Europe had been given an opportunity to implement a comprehensive range of activities. While not proposing a model, the evaluation did define a number of areas requiring the attention of programme designers, including the development of a methodology and the relevant capacity within UNHCR, as well as the need for increased inter-institutional dialogue.
262. The report was welcomed by the Regional Bureau for Europe and immediate action was taken to implement those recommendations relating to issues addressed by the CIS Conference and its follow-up process. In order to increase UNHCR's focus on this important activity, the Director of Operations for Europe has requested that the issue of capacity-building also be included in the 1997 work plan of the Policy Committee.
B. Country reviews
1. Armenia
(a) Beneficiaries
263. Since 1989, some 340,000 persons have been registered as refugees by the Government, most of whom are ethnic Armenians who had left Azerbaijan when the conflict over Nagorno-Karabakh began. In addition, the Government estimates that some 72,000 persons are internally displaced, having been forced to leave villages exposed to shelling in areas bordering Azerbaijan. UNHCR's assistance programme addresses the needs of 150,000 refugees and displaced persons who have been identified as particularly vulnerable by the Armenian authorities.
(b) Recent developments and objectives
264. Despite sporadic efforts to promote a peace agreement between the parties to the Nagorno-Karabakh conflict, no tangible results have been achieved so far. The OSCE Presidency of the Minsk Conference was enlarged in February 1997 from two to three countries (France, The Russian Federation and the United States). It is hoped that this enhanced format of the OSCE negotiation mechanism will provide a new impulse to the peace process.
265. In support of the Armenian Government's policy of integration, UNHCR's programme aims at supporting the local settlement of refugees. The continued provision of permanent shelter, as well as ensuring equitable access to productive assets, will be pursued through housing construction and small scale income-generation activities.
266. In addition, UNHCR will continue promoting the establishment of the legal procedure required for refugees to acquire citizenship, and will continue encouraging the adoption of a refugee law. This legislation promotion process will be facilitated through a diversified programme of activities that will include seminars, workshops and training sessions on refugee rights and protection issues for local authorities, NGOs and other partners.
267. The Centre for Democracy and Human Rights (CDHR), a national institution being jointly developed by UNHCR, the Ministry of Foreign Affairs, the Yerevan State University, UNDP, OSCE and the International Committee of the Red Cross (ICRC), in the capacity of an observer, successfully continues to contribute towards democracy and human rights as well as other issues related to UNHCR's concerns.
(c) Implementing partners/arrangements
268. UNHCR implements its assistance programme in coordination with other international organizations as well as with international and local NGOs. Capacity-building activities are implemented with UNHCR's government counterpart in the area of refugee status determination and refugee registration procedures. Such activities are also undertaken with local non-governmental organizations interested in the provision of assistance and legal support to refugees.
(d) Budget
269. As in 1996, 1997 activities related to income-generation and shelter activities have been included in the UNHCR/IOM Joint Appeal for the CIS Countries. As compared to 1996, the 1997 financial requirements under General Programmes are significantly reduced given the prospect of a durable solution for the refugees through access to Armenian citizenship.
(e) Post situation
270. Three posts (one international and two local) related to the implementation of Quick Impact Projects are again included under the 1997 Special Programmes as presented in the UNHCR/IOM Joint Appeal for the CIS Countries. In support of other programme activities in 1997, it was decided to create two local posts (Programme Assistant and Assistant Field Officer), whilst discontinuing a post of Field Assistant, thereby bringing the post level to 26 for both 1997 and 1998 as compared to 25 during 1996.
(f) Implementation of policy priorities (women, children, environment)
271. The UNHCR Office in Armenia has included among its specific priorities for 1997 a particular focus on activities for refugee children in need of special care in urban communal refugee centres through the provision of educational, recreational and other appropriate support. Based on a needs assessment completed in early 1996, special attention will continue to be paid to development issues concerning refugee women and the care of elderly refugees.
(g) Oversight reports
272. UNHCR's Inspection and Evaluation Service undertook, in 1996, an evaluation of capacity-building activities in Central and Eastern Europe, including Armenia; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262).
2. Azerbaijan
(a) Beneficiaries
273. According to Government records, approximately 845,000 internally displaced persons and refugees have been registered in Azerbaijan since 1989. This population comprises 611,600 internally displaced persons who left the western districts of the country as a result of the conflict over Nagorno-Karabakh, 185,000 refugees from Armenia and 48,400 ethnic Meskheti Turks who fled from Uzbekistan in 1989.
(b) Recent developments and objectives
274. The cease-fire agreed in 1994 has been maintained throughout the past three years in spite of occasional shooting along the separation line around Nagorno-Karabakh. A fragile situation of "no-war-no-peace" prevails and no significant progress has been achieved in the negotiation process pursued under the auspices of the OSCE. It is estimated that some 58,000 internally displaced persons have spontaneously returned to areas liberated at the end of 1994 in the Fizuli and Agdam regions. In close consultation with other concerned international organizations, UNHCR has indicated its readiness to assist the parties to the conflict over Nagorno-Karabakh in engaging in consultations on the humanitarian aspects of this conflict. This was done with the perspective of ensuring that proper attention was given to issues relating to the safe and voluntary return of internally displaced persons and refugees in the framework of a comprehensive peace agreement.
275. UNHCR's humanitarian programme is gradually moving towards a post-emergency phase with a stronger emphasis on promotion of self-reliance and a targeting of assistance to the most vulnerable. UNHCR's activities for 1997 are aimed at improving shelter conditions, water supply, sanitation, health and income-generation with a view to providing some amelioration in the sub-standard living conditions of the 150,000 most vulnerable and socially disadvantaged refugees, internally displaced persons and returnees in Azerbaijan. Specific activities initiated in 1996 for women and children will be enhanced in 1997, particularly in the area of mother and child care.
276. During 1996, UNHCR provided limited assistance to the returnee population in Fizuli and Agdam. On 12 July 1996, the Azeri Government established a State Commission for Reconstruction and Rehabilitation (SCRR) which will also assist in strengthening coordination between the Government, the World Bank, UNDP, UNHCR and NGOs operating in these regions.
(c) Implementing partners/arrangements
277. The UNHCR Office in Azerbaijan implements its assistance programme together with a number of international and local NGOs. The strategy applied since 1995 includes a clear delineation of sectoral activities, based on geographical areas of activity, which has had a positive effect on the working relationship between the various implementing partners. The reduction in the number of partners from an initial eight (1995) to six (1996) is a reflection of the required streamlining of the programme.
(d) Budget
278. The UNHCR financial requirements for 1997 are presented in the UNHCR/IOM Joint Appeal for the CIS Countries
(e) Post situation
279. During 1997, UNHCR's presence in Azerbaijan requires three additional posts over the level maintained in 1996. The Liaison Office in Baku is thus composed of five international officers and 16 locally recruited staff. However, one international post will be discontinued during 1997, resulting in a level of twenty posts as of 1 January 1998. In addition, one junior professional officer is assigned to Baku.
(f) Implementation of policy priorities (women, children, environment)
280. UNHCR's programmes implemented through partners have made specific efforts to target internally displaced women and female-headed households. These programmes include the establishment of female health workers' networks and the provision of relevant training. Small crop and vegetable production and livestock breeding efforts are mostly targeted at vulnerable female beneficiaries. Childcare facilities are maintained and training of internally displaced workers is undertaken in order to ensure that children are properly cared for while their parents pursue employment. In cooperation with other organizations, UNHCR endeavours to ensure that the children of internally displaced persons have access to continuing education as an essential element in the pursuit of durable solutions. From late 1994 onwards, refugees and internally displaced persons have been provided with liquid fuel heaters, replacing the earlier, environmentally damaging, wood heaters.
(g) Oversight reports
281. UNHCR's Inspection and Evaluation Service undertook, in 1996, an evaluation of capacity-building activities in Central and Eastern Europe, including Azerbaijan; further information is provided under the sub-regional overview on Eastern Europe (paragraph x-x).
3. Belarus
(a) Beneficiaries
282. According to the Department for Refugees of the State Migration Service of the Belarus Ministry of Labour, from 1992 until October 1996, the Service had registered 30,000 refugee status claims from countries of the former Soviet Union, primarily from the Baltics, Tajikistan and the Russian Federation. According to estimates of the Belarussian Federation Ministry of the Interior, the number of illegal migrants transiting through the country reached 170,000 persons in 1996. Furthermore, 131,200 people are registered by the Government as "ecological migrants" who fled the Chernobyl disaster in 1986, and some 160,000 persons are classified as repatriants. The latter are ethnic Belarussians who have returned to the territory following the break-up of the Soviet Union.
(b) Recent developments and objectives
283. Belarus is not a signatory to the 1951 Convention and the 1967 Protocol, and the national Law on Refugees, officially enacted on 1 July 1995, has not been implemented due to the lack of a refugee status determination procedure and the relevant institutional capacity. Asylum-seekers and illegal migrants, mainly from the CIS region and from Afghanistan, Somalia, the Islamic Republic of Iran and Iraq, are concentrated in the central and western parts of Belarus. This situation is compounded by the weakness of the legislation relating to refugees and other migrants, as well as by the limited capacities of the institutions dealing with these issues.
284. UNHCR's priority in 1997 remains to encourage the Government to implement the existing refugee law and to establish a reliable and fair procedure for refugee status determination. To this end, UNHCR will actively promote capacity-building for the various government departments involved in refugee and migration matters. Independent actors such as local NGOs and academic circles will also be associated with these activities. In addition, UNHCR will assist the Government in creating a communal centre to accommodate refugees and asylum-seekers in proper conditions and will provide equipment and technical support for the establishment of an efficient registration system.
(c) Implementing partners/arrangements
285. While UNHCR implements directly, in coordination with other international organizations, capacity-building activities for the concerned Belarussian authorities, assistance activities for refugees are entrusted to the Belarus Red Cross.
(d) Budget
286. The initial care and maintenance budget has been increased in order to enable the Liaison Office to expand its activities in the areas of capacity-building for government departments and local NGOs and to increase assistance to asylum-seekers. A special project for the follow-up on the implementation of the CIS Conference Programme of Action was established following the joint UNHCR/IOM Appeals in 1996 and 1997.
(e) Post situation
287. During 1996, the Office in Minsk comprised a Head of Liaison Office, a Senior Administrative Clerk, a Secretary and a Driver. In addition, the posts of Programme Officer and Protection Assistant were created as of 1 January 1997 to assist in the implementation of the CIS Conference Programme of Action. A further post of Senior Policy Advisor for the CIS Conference was created as of 1 March 1997.
(f) Implementation of policy priorities (women, children, environment)
288. Asylum-seekers identified as being of concern to UNHCR are receiving assistance through the Belarus Red Cross with particular attention being paid to women, children and the elderly.
(g) Oversight reports
289. No reports were initiated during the reporting period.
4. Georgia
(a) Beneficiaries
290. According to Government statistics, up to 300,000 persons remain displaced in Georgia. This figure includes 10,000 persons displaced from earthquakes in 1989 and 1991, 10,000 from the separatist conflict in South Ossetia and 280,000 from the separatist conflict in Abkhazia. The social infrastructure is severely strained by this massive displacement, particularly in the urban areas.
(b) Recent developments and objectives
291. No progress was achieved during 1996 towards the organized return of internally displaced persons to Abkhazia. In spite of this deadlock, since 1994, some 30,000 to 40,000 persons returned spontaneously to the lower security zone of the Gali region, which is controlled by the CIS peace-keeping forces. A quadripartite meeting was held in Gali in December 1996 on the question of the return of internally displaced persons to this region. It is expected that another such meeting will take place in the future. The threat of mines has recently increased in the security zone and casualties resulting from mine explosions are frequently reported.
292. On the South Ossetia issue, some progress was made when the parties signed, in May 1996, a Memorandum of Understanding on measures to ensure security and strengthen mutual trust between Georgia and South Ossetia. This Memorandum provides, inter-alia, for a resumption of the activities of a Working Group for Refugees to be regularly convened within the global framework of the Joint Control Commission (JCC) which includes Georgia, Russian Federation, South Ossetia and the OSCE. The Working Group, including UNHCR, met in Tbilisi on 5 and 6 March 1997 and an agreement was reached on the procedure for the return of refugees and internally displaced persons to South Ossetia.
293. The UNHCR assistance programme in Georgia will endeavour to facilitate the temporary integration of internally displaced persons who cannot envisage returning to Abkhazia in the near future given the current economic and social environment. Simultaneously, UNHCR will provide assistance to some 30,000 spontaneous returnees in the Gali district. The Office will help them resettle in their areas of origin by providing family packages to facilitate the repair of private houses, promoting income-generating activities and rehabilitating basic health and education infrastructure.
294. Taking into consideration recent positive developments as regards the South Ossetia conflict, UNHCR started the first phase of a returnee rehabilitation programme which includes reconstruction of 300 houses, public infrastructure rehabilitation, income-generation activities and, if needed, distribution of household items. Before expanding these activities, an assessment of the impact of UNHCR's assistance will be undertaken within the returnee population, and consultations will be held between UNHCR and the parties concerned in order to adapt, if necessary, the assistance strategy in this region.
295. During 1997, UNHCR intends to develop a comprehensive strategy and specific activities aimed at supporting and building the capacity of the Government and its legislative body to deal efficiently with matters relating to migration and refugee issues. In support of these activities, the Government requested UNHCR to chair a recently formed working group on preparation of the national Refugee Law which will create the legal basis for Georgia's asylum policy.
(c) Implementing partners/arrangements
296. In the context of the PARinAC follow-up, the Office moved to the next phase of support to local NGOs. After a two year programme of training NGOs through a large number of workshops, a local NGO was selected as the umbrella agency. The training and information first shared with this umbrella agency is thereby being passed on to a large number of emerging agencies.
(d) Budget
297. The UNHCR financial requirements for 1997 are presented in the UNHCR/IOM Joint Appeal for the CIS Countries. The 1997 initial budget is higher as compared to that of 1996 due to the need to support both the peace negotiations relating to the South Ossetia and Abkhazia conflicts as well as the shelter and income-generating activities in the Georgian Government controlled area.
(e) Post situation
298. UNHCR's presence in Georgia is designed to take into consideration programme monitoring and supervision as well as protection requirements. The Liaison Office in Tbilisi covers offices in Zugdidi, Gali and Sukhumi and the newly created office in Tskhinvali. Given the recent developments with respect to a possible peaceful solution to the conflict in South Ossetia, the total number of posts was increased from 29 to 36 as of 1 January 1997. A team of nine international officers and 27 locally recruited staff is distributed between the Liaison Office in Tbilisi and the offices in Tskhinvali, Sukhumi, Zugdidi and Gali where, for security reasons, the permanent presence of at least two international officers is assured. One local staff member remains in Sukhumi to ensure close liaison with the Office in Tbilisi. The same staffing level (36 posts) is proposed for 1998.
(f) Implementation of policy priorities (women, children, environment)
299. Particular attention is paid to vulnerable, single-headed household women, large families (with special attention being paid to children) and isolated communities that do not benefit from assistance.
(g) Oversight reports
300. External United Nations auditors visited Georgia in November 1996. Action has already been taken by the Liaison Office in Tbilisi on most of the recommendations. Furthermore, UNHCR's Inspection and Evaluation Service undertook, in 1996, an evaluation of capacity-building activities in Central and Eastern Europe, including Georgia; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262).
5. Moldova
(a) Beneficiaries
301. As a result of the conflict which erupted in the Transniestr region in 1992, an estimated 50,000 persons were forcibly displaced to other parts of Moldova and the surrounding countries. Although most of the displaced persons have now settled, it is estimated that some 6,000 are still unable to fend for themselves and are destitute. In addition, the authorities have reported an increased number of illegal migrants arrested at the borders. While the majority of them do not appear to be in need of protection, it is felt necessary that attention be paid to persons who should benefit from an asylum procedure and may qualify for refugee status.
(b) Recent developments and objectives
302. Moldova was the first CIS country to join the Council of Europe and it is expected to ratify the European Convention on Human Rights and its Protocol in the course of 1997. The CIS Conference and the Programme of Action has increased awareness of migration and refugee matters within the Government.
303. UNHCR's objectives in 1997 are to strengthen the capacities of concerned governmental institutions, promote awareness on refugee issues, establish a monitoring system for persons in need of international protection, assess the vulnerability of internally displaced persons from Transniestr and of refugees who are awaiting durable solutions, and to provide limited assistance if required.
(c) Implementing partners/arrangements
304. As yet, there are no UNHCR implementing partners in Moldova.
(d) Budget
305. An initial allocation was made under the 1997 General Programmes to allow for the establishment of a UNHCR office in Chisinau. A further allocation was made to provide limited assistance to asylum-seekers and to promote capacity-building of local institutions.
(e) Post situation
306. The staffing component of the Liaison Office in Chisinau consists of two international (a Head of Office and a Protection Officer) as well as four local staff posts.
6. Russian Federation
(a) Beneficiaries
307. According to the Government authorities, there are some three million displaced persons in Russian Federation. This figure includes a total of 1,184,599 internally relocated persons, internally displaced persons, and refugees from CIS countries who have registered with the Federal Migration Services. Over the past five years, UNHCR has registered some 41,000 asylum-seekers from outside the CIS region who are not included in the above figures. In the north Caucasus region, there are an estimated 40,000 refugees from Georgia (38,000 South Ossetians) and other CIS countries in North Ossetia, 70,000 internally displaced persons in Ingushetia (42,000 from Chechnya, Russian Federation, and 28,000 from Prigorodny) and 40,000 internally displaced persons in Daghestan (from Chechnya, Russian Federation). In addition, it is estimated that some 60,000 internally displaced persons from Chechnya, Russian Federation, are living in the Kabardino Balkaria and in the Stavropol regions.
(b) Recent developments and objectives
308. Following a cease-fire agreement signed in August 1996, presidential elections were held in Chechnya, the Russian Federation, in December 1996. While the situation appeared to be progressively stabilizing, the assassination of six ICRC international staff members on 13 December 1996 deeply shocked the international community and led to a freeze of assistance activities inside Chechnya, the Russian Federation, and a significant reduction of these activities in the neighbouring areas. Assistance progressively resumed in February 1997, albeit through local implementing partners and within limits imposed by the threat against aid workers. Contacts have been established with the Grozny authorities to discuss appropriate modalities of operations to ensure acceptable security conditions for the staff of international humanitarian organizations before further expanding assistance activities in Chechnya, the Russian Federation.
309. Following the adoption of the Programme of Action of the CIS Conference, the Prime Minister of the Russian Federation issued a Governmental Decree on 4 August 1996 which elaborates on the Russian Federation federal policy with regard to migration. Within this framework, UNHCR will enhance the capacity of the federal and regional Migration Service administration to address the problem of population displacement in Russian Federation. This assistance will include support to registration procedures and databases, training activities, inter-governmental exchanges and sharing of information, the provision of basic material resources and consultancies. Particular attention will be paid to the implementation of efficient and fair asylum and refugee determination procedures by the federal and regional bodies.
310. UNHCR will provide material support to non-governmental organizations and migrant communities to assist them in promoting legislative changes required to facilitate the integration of migrants. This particularly concerns round table discussions of changes in the fields of registration, the status of NGOs and taxation laws. Through round table discussions, parliamentary hearings and conferences organized by UNHCR at the federal and regional levels, in cooperation with the authorities and/or NGOs, UNHCR will identify gaps in existing legislation and recommend necessary amendments.
311. Through the impetus of the CIS Conference, the UNHCR programme in the Russian Federation has undergone major transformations, moving from activities focusing on protection and the provision of assistance to asylum-seekers towards activities covering a broader range of forced population displacements which require different approaches and solutions. Field Offices have been established since 1995 in Makhachkala, Nazran and Vladikavkaz and two additional Offices will be created in the course of 1997 in St. Petersburg and Saratov. During 1998, UNHCR activities in the Russian Federation will also cover the Far East, where there are over 500,000 illegal migrants and several thousand potential asylum-seekers from the Korean peninsula. It is thus planned to open an office in Vladivostok to assist the regional authorities in dealing with population displacement issues and refugee status claims.
(c) Implementing partners/arrangements
312. While UNHCR retains the responsibility for the implementation of necessary protection activities, including legal advice and capacity-building activities for the concerned Russian Federation institutions, assistance activities for refugees and internally displaced persons are, for the most part, entrusted to international NGOs and competent governmental entities at the federal and regional levels. In addition, emphasis is placed on the development of local NGO networks which could, in future, collaborate with UNHCR.
(d) Budget
313. A consolidated inter-agency appeal for persons displaced as a result of the emergency situation in Chechnya, Russian Federation, was issued in April 1996 to cover the period 1 January to 31 December 1996. A further appeal was issued in January 1997 to cover the period January to December 1997. The most significant increase in the UNHCR programme budget in the Russian Federation results from activities to follow-up on the CIS Conference Programme of Action. Funds for these activities were requested in the UNHCR/IOM Joint Appeals of July 1996 and January 1997.
(e) Post situation
314. In 1996, the UNHCR staff in the Regional Office in Moscow comprised, in addition to the local staff, seven international officers and two junior professional officers. The UNHCR team in Vladikavkaz and Nazran included four internationals and one junior professional officer supported by locally recruited staff. All staff in Daghestan, international and local, are engaged against temporary posts. In 1997, seven international posts have been created in Moscow (two), St. Petersburg (one), Saratov (one), Vladikavkaz (two) and Nazam (one) and one post in Moscow has been discontinued. In addition, eleven local posts were created in 1997. No changes in post levels are foreseen for 1998.
(f) Implementation of policy priorities (women, children, environment)
315. Specific attention is paid to fragile groups within the asylum-seeker and internally displaced populations, in particular women, children and the elderly. UNHCR's Community Services Officers ensure an ongoing needs assessment and the provision of appropriate assistance in the areas of education, health and community development. Local NGOs are associated with these activities, in particular those paying specific attention to the situation of displaced persons and refugee women.
(g) Oversight reports
316. UNHCR's Inspection and Evaluation Service undertook, in 1996, an evaluation of capacity-building activities in Central and Eastern Europe, including the Russian Federation; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262)
7. Turkey
(a) Beneficiaries
317. As of 31 August 1996, Turkey hosted approximately 7,300 refugees and asylum-seekers. This figure includes an urban caseload of 3,400 persons including, inter-alia, Iranian and Iraqi nationals and 4,000 Bosnian refugees living in a camp and in Istanbul. With the exception of some 1,500 Bosnians, all refugees are being assisted by UNHCR.
(b) Recent developments and objectives
318. The Turkish Government applies the 1994 Asylum Regulations for granting temporary permits to non-European refugees. In parallel, UNHCR continues to interview asylum-seekers who approach the Branch Office in Ankara. The UNHCR-recognized refugees are then proposed to third countries for resettlement. The most important problem continued to be the deportation of asylum-seekers by the authorities in a strict application of the 1994 law concerning the five day deadline for asylum applications.
319. Since the 1994 Asylum Regulations maintains Turkey's geographical limitation, refugee status determination under UNHCR's mandate will continue to dominate the Branch Office's activities and staff resources. Simultaneously, UNHCR will continue assisting and advising the Ministries of Foreign Affairs and Interior on international standards which should be taken into consideration during their implementation of the 1994 Regulation. UNHCR's longer-term objective is to help the Government establish a satisfactory status determination mechanism.
320. Economic, medical and legal support to needy refugees and those persons seeking temporary shelter in Turkey will continue pending identification of a durable solution. UNHCR will increase monitoring of the situation of asylum-seekers, in particular vulnerable groups, through field visits, counselling and cooperation with relevant authorities and women's committees. Planned activities with the Human Rights Association aimed at assisting and educating refugee women and providing counselling through their professional staff are underway.
321. The assistance programme for the remaining Bosnian refugees will continue during 1997 and 1998 until most refugees are able to repatriate. For an estimated residual population of up to 1,000 persons who are either unable or unwilling to repatriate, UNHCR will propose local integration or, as a last resort, resettlement to third countries.
322. Following a movement of repatriation of Kurdish Turks returning from the northern part of Iraq, and considering the possibility of a similar movement from the Atroush camp, UNHCR has deployed a team of two international officers in the region of Silopi to carry out a needs assessment and to collaborate with concerned local authorities to facilitate the local integration of the returnees.
(c) Implementing partners/arrangements
323. In the absence of appropriate implementing partners, programme activities continue to be implemented mainly by UNHCR. The Branch Office monitors the well-being of asylum-seekers, in particular that of vulnerable groups, through field visits, counselling and cooperation with relevant authorities and women's committees.
(d) Budget
324. The 1997 assistance budget has been slightly decreased following a review of the care and maintenance assistance project for Bosnian refugees in Turkey. The UNHCR programme includes two other projects: assistance to recognized refugees being resettled to third countries, and care and maintenance of refugees and asylum-seekers in Turkey. A further budgetary decrease is foreseen for 1998. Provision is made under Special Programmes for four junior professional officers.
(e) Post situation
325. In order to enhance the Branch Office's capacity to deal with various protection problems, three local posts have been upgraded to reflect the actual duties assigned to the posts. In addition, one international post dealing with programme and administration will be discontinued as of 31 December 1997. No further changes are foreseen for 1997 or 1998.
(f) Implementation of policy priorities (women, children, environment)
326. Assistance provided to refugees takes into account the results of a questionnaire distributed amongst female asylum-seekers and encompasses specific concerns related to refugee women and their children, so as to provide them with adequate legal, humanitarian, medical and material assistance. Contacts continue with governmental organizations and NGOs to explore cooperation with the aim of integrating refugees, particularly refugee women, into existing local structures and activities.
327. UNHCR Ankara and UNICEF are working together to ensure the right of refugee children to education. Considering their temporary stay in Turkey and their language problems, special admission programmes and socialization activities between refugee and Turkish children are being implemented.
(g) Oversight reports
328. No reports were initiated during the reporting period.
8. Ukraine
(a) Beneficiaries
329. According to the Ukrainian authorities, approximately 5,000 persons originating from other CIS countries have applied for refugee status, including some 700 persons from Tajikistan and 800 persons from Georgia, including Abkhazia. In addition, some 1,500 persons originating from Chechnya, Russian Federation, benefit from a special decree for refugees from conflict zones. Approximately 6,000 persons have been registered with UNHCR since registration started in 1994. However, it is estimated that only 3,000 to 4,000 still remained in the Ukraine in 1996, while others spontaneously relocated to Western Europe. Over 200 persons have been granted refugee status under the Ukrainian Refugee Law of 1993.
330. Out of a total population of some 500,000 Crimean Tatars, approximately 260,000 survivors and descendants of those who had been deported by the Stalin regime to Central Asia, mainly to Uzbekistan, have returned to the Crimea region in Ukraine since 1988. According to Government sources, approximately 60,000 of the returnees have not yet received Ukrainian citizenship. According to the Department for Migration in Crimea, 1,029 families (3,171 persons), primarily originating from conflict zones in the Fergana Valley (Uzbekistan), Tajikistan and Abkhazia (Georgia), have been registered as persons in a refugee-like situation.
(b) Recent developments and objectives
331. February 1996, the Ukrainian authorities started implementation of the Ukrainian Refugee Law adopted in 1993, and status determination procedures are now also undertaken by the regional migration services of Cherkassy, Dnipropetrivsk, Khmelnitsky, Luhansk, Lviv, Sevastopol and Simferopol. However, police harassment and fining of illegal migrants has increased, thereby affecting those several thousand bona fide asylum-seekers who are not yet recognized as refugees under Ukrainian legislation.
332. One of UNHCR's main objectives in the Ukraine, which is in a difficult socio-economic situation, is to assist the Government in assuming the challenges of granting asylum to persons fleeing persecution. The Government's policy is to build up proper asylum institutions before formally binding itself to the obligations deriving from the 1951 Convention. UNHCR will provide support to the ongoing institutional capacity-building process to encourage the Government to adopt principles of international refugee law. Since the Ukraine has to accede to the European Human Rights Convention within a year after its admission to the Council of Europe, UNHCR will contribute to the dissemination and implementation of this human rights instrument, in particular of its Article 3 relating to non-refoulement.
333. Crimean Tatars who returned from conflict areas frequently find themselves in a destitute situation. Some 2,768 persons reside in community centres in poor conditions. UNHCR will continue its activities started in 1996 to repair and upgrade some of these centres and will support these persons in finding durable solutions. In cooperation with other specialized agencies, UNHCR will also initiate cultural, educational and selected social activities, including support to local NGOs to facilitate the integration of returning formerly-deported people and the promotion of tolerance between them and the local population.
334. UNHCR will support academic and political exchanges of views on possibilities for improving the existing citizenship legislation in order to encourage a flexible interpretation in favour of the returning formerly-deported people. UNHCR will create, through a local NGO, a counselling centre on citizenship and naturalization issues and will provide financial support for the conduct of some precedent setting court cases. If the programme proves successful and finds acceptance by its beneficiaries, the pilot project will be expanded with the creation of decentralized counselling centres in different parts of the Crimea region in 1997 and 1998.
(c) Implementing partners/arrangements
335. UNHCR implements directly, in coordination with other international organizations, capacity building-activities for the concerned Ukrainian authorities. However, assistance activities for refugees and returning Crimean Tatars are implemented through international and local NGOs, as well as through governmental partners.
d) Budget
336. The initial budget for the care and maintenance project in Ukraine was substantially increased following the establishment of a permanent presence in Kyiv and subsequently in the Crimean peninsula for assistance to formerly deported peoples. A joint UNHCR/IOM Appeal was issued to cover activities related to formerly deported peoples as well as asylum-seekers and recognized refugees in the Ukraine.
(e) Post situation
337. Following the signing of the country agreement on 23 September 1996, the UNHCR office in Kyiv will change its status from a Liaison to a Branch Office. With the opening of a Field Office in Simferopol in the Crimea region, the number of international and local staff posts in the Ukraine will be increased to 15 in both 1997 and 1998.
(f) Implementation of policy priorities (women, children, environment)
338. Apart from direct UNHCR assistance to refugees recognized by the Ukrainian authorities, particular attention is paid to the role of Crimean NGOs in improving living conditions of fragile groups, including single women and women-headed families, within the returning Crimean Tatar population.
(g) Oversight reports
339. UNHCR's Inspection and Evaluation Service undertook, in 1996, an evaluation of capacity-building activities in Central and Eastern Europe, including the Ukraine; further information is provided under the sub-regional overview on Eastern Europe (paragraphs 261 and 262).
(Note: Statistical and financial tables not included in this online version. See your nearest UN Depository Library.)
1 Electronic version, updated to incorporate corrigenda.
2 Electronic version, updated to incorporate corrigendum.
3 The European Union's programme to assist the European Union associate countries in Central Europe.
4 The European Commission's special fund for technical assistance to CIS Countries.