A more focused approach to the issues of refugees and internally displaced people
Statement delivered by Robert Thomson, Senior Officer for Population Movements, Disaster Preparedness and Response Department, International Federation, to the United Nations General Assembly, 56th session, New York
20 November 2001



Mr. Chairman,

Thank you for allowing me to express some thoughts on behalf of the International Federation of Red Cross and Red Crescent Societies. The International Federation has a long history of working with and for refugees and internally displaced people, as well as with others who have been dislocated or are part of population movements.

I am particularly pleased to do so just a few days after the conclusion of the Council of Delegates of the Red Cross and Red Crescent Movement - where we had the pleasure of being addressed by the High Commissioner for Refugees, Mr. Ruud Lubbers. In the ensuing debate at which the Council, whose members are the Components of the Movement - the ICRC, National Red Cross and Red Crescent Societies and the International Federation - aired their concerns over refugees and internally displaced people leading to the adoption of a more focussed approach to these issues across the Movement.

This statement sets out some of the elements of that approach which are of special concern to the International Federation.

National Red Cross and Red Crescent Societies and the International Federation base their interventions on the vulnerability of individual men and women, not on the legally defined category to which they may be assigned. This is in line with the Red Cross Red Crescent Fundamental Principle of "Impartiality" which obliges us to make no discrimination as to nationality, race, religious beliefs, class or political opinions, and also to relieve the suffering of individuals, being guided solely by their needs, and giving priority to the most urgent cases of distress.

In other words, there is a need to ensure that there is a response to the needs of all those affected by displacement disasters and that this response takes a global, holistic approach by addressing all stages - from prevention to return and reintegration, including the needs and requirements of local and host populations and others affected, directly or indirectly. It also means that the response must go beyond refugees and internally displaced, and include the needs of other populations such as migrants, in particular migrants in irregular situations, to which we have referred in a previous statement.

The International Federation recognizes that UNHCR, because of its mandate flowing from the 1951 Convention and because of its purpose in seeking durable solutions for refugees, must necessarily give the highest priority to protection and durable solution. This does not, of course, always address all the needs of individuals who are rendered vulnerable by their flight or their movement. Those needs, individually and collectively, are however of particular concern to the Red Cross Red Crescent Movement and its National Societies. The social circumstances in which these individuals, all too frequently find themselves are, unhappily, so grave, that they can only be described as disasters, and it is from this starting point that the International Federation does its work.

Displacement disasters are long-term phenomena which cannot be dealt with by employing only short term means. Clearly, the initial phases of new situations often require emergency interventions, but frequently these are then replaced by the need for longer term assistance, with significant consequences for the host countries and communities, not least because, as the emergency funding dries up it is not replaced by other sources of support. In this context, we believe, there is an urgent need for the international community to review the manner in which resources are made available to meet needs in such long term situations, not as a classical relief-to-development issue, but by acknowledging the roots of the emergencies in failed development processes. Perhaps the International Conference on Financing for Development scheduled to take place in Monterey in March next year might be one opportunity to consider these issues.

This is all the more relevant because of the work now being done by the High Commissioner to refocus his Office's activities. Like all other agencies, UNHCR is endeavouring to refocus its activities on its core mandate. This refocusing is a development that should, in our view, be welcomed and appreciated. Nevertheless, it is not unproblematic in that refocusing, logically, implies that what lies outside of the core mandate will no longer attract the priority it has received in the past. If it means that some activities that have been carried out in the past will no longer be done by the UNHCR, there is a clear need for the international humanitarian community to measure the steps that will need to be taken by others to fill any gaps.

We believe that, together, the humanitarian and development community have the capacity to meet the challenge this poses, and we believe that the way forward is through more strategic, better planned, better thought out and better co-ordinated partnerships between all concerned. In this regard, it is valuable to note here in the UN General Assembly the decision taken by the Red Cross Red Crescent Council of Delegates on 12th November. Although it deals, primarily, with internal co-ordination within the Red Cross and Red Crescent Movement, it also places a very strong emphasis on the need to closely co-ordinate its actions with other organizations at all levels, and specifically requests the ICRC and the International Federation to consult with the UNHCR with a view to clarifying the terms upon which the components of the Movement engage in co-operation with UNHCR. It will also heighten opportunities for dialogue and co-operation with other international organizations, including the International Organization for Migration, an organization which also has special challenges as the population movement agenda expands.

Traditionally the International Federation and National Red Cross and Red Crescent Societies have been cautious, some will say too cautious, in intervening in debates on behalf of vulnerable groups such as refugees, displaced people or migrants. But the growth of the problems they face, both as people moving and, regrettably, as people settling in a new environment, have led to a reappraisal of the Red Cross Red Crescent role in such matters. In that context, I am pleased to be able to say that the resolution adopted at the Red Cross Red Crescent Council of Delegates not only emphasizes the importance of operational responses to their needs, but also calls upon us to develop a strong advocacy platform with common positions for all components of the Red Cross and Red Crescent Movement. There are tools already available to us, such as the Plan of Action adopted by governments and National Societies sitting together in 1999 at the 27th International Conference of the Red Cross and Red Crescent, in which States participate.

The Council of Delegates in its discussions specifically acknowledged the absolute right to asylum. This led to a reflection on the need for us to clarify our role as regards the 1951 Convention. This is particularly timely bearing in mind that this year is the 50th anniversary of that convention. We will be addressing these issues in concert with UNHCR and other relevant actors in the period ahead.

Speaking up for vulnerable people, regardless of how they have been categorized, is closely linked to action on the local, community level, where the many Red Cross and Red Crescent volunteers provide practical assistance on a daily basis, all over the world. One of the ways in which we plan to increase our ability to advocate effectively on behalf of those affected by displacement is to integrate advocacy into their training, not least in the context of the need to combat xenophobia and discrimination, a battle which must be won at the community level if at all. That is also another reason why we - all of us who are involved in working with these groups of vulnerable individuals - must become better at including our actual or potential beneficiaries in programming and planning at all levels.

There is a great deal to be done in these areas, and the International Federation is currently assisting National Societies with activities aimed at addressing the special vulnerability being experienced by newly arrived populations in many different countries. These problems of discrimination and xenophobia are also part of the mandate of UNHCR, especially if they offer evidence of difficulties in implementing the chapters of the 1951 Convention which have to do with the rights of refugees once they have been accorded refugee status. In the International Federation's view there is a clear and pressing need for better co-ordination in the international community on these issues, and also a need for much stronger work towards solutions by many States. These issues were the subject of a decision adopted by the International Federation's General Assembly of National Societies on 10 November 2001, copies of which will be provided to States at this session of the UN General Assembly.

It is the International Federation's hope that governments will recognize not just the obligation but also the value of establishing dialogue with their National Red Cross and Red Crescent Societies as the world moves to seek new solutions to the problems confronting refugees, displaced persons and migrants. For our part, we appreciate the good and co-operative relations we enjoy with UNHCR, and we are committed to ensuring that the relationship grows for the benefit of all potential victims of the personal disaster which population movement can so often nowadays produce.

Let me conclude this statement by expressing the appreciation of the International Federation of the good and co-operative relations that exist between UNHCR and ourselves, and our commitment to ensuring that this continues in the future.

Thank you