51. UNRWA and the Refugees: A Difficult but Lasting Marriage
- Author:
- Jalal Al Husseini
- Publication Date:
- 09-2010
- Content Type:
- Journal Article
- Journal:
- Journal of Palestine Studies
- Institution:
- Institute for Palestine Studies
- Abstract:
- Over the last sixty years, UNRWA's relationship to the Palestinian refugees it serves has undergone profound changes. Faced with the difficult task of adapting a humanitarian regime to a highly politicized environment, the agency has had to thread its way through the diverse and sometimes conflicting expectations of the international donor states, the Arab host countries, and the refugees themselves, who from the start were deeply suspicious of UNRWA's mandate as inimical to the right of return. Against this background, the article traces the evolution of the agency's role from service and relief provider to virtual mouthpiece for the refugees on the international stage and, on an administrative level, from a disciplinary regime to emphasis on community participation and finally to the embrace of a developmental agenda. Although UNRWA's presence, originally seen as temporary, seems likely to endure, the article argues that financial and political constraints are likely to thwart its new agenda. SINCE BEGINNING OPERATIONS in May 1950, the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) has emerged as the main stakeholder in the Palestinian refugee issue. The traditional provider of education, medical care, relief, and social services to the Palestine refugees (today numbering almost 5 million in UNRWA's five fields of operation), it has more recently assumed new responsibilities in infrastructure and camp improvement. As the only existing UN agency created to serve a single national refugee population, its main institutional specificity lies in its unparalleled exposure to that population, with the vast majority of its local staff being refugees themselves. UNRWA's close proximity to Palestinian refugee society has lent itself to controversial and contradictory assessments. On the one hand, it has enabled its staff to adapt efficiently to the refugees' evolving needs and made for impressive operational achievements, including the spread of literacy throughout the entire refugee population, the absence of epidemics, quick responses to emergency situations, and vocational and other training for tens of thousands of refugees. In so doing, it has actively helped “prevent conditions of starvation and distress among refugees and to further conditions of peace and stability” in the Middle East. On the other hand, this very proximity has led to charges, especially in the United States and Israel, that the agency has become hostage to the refugees' political claims, thus contributing to perpetuating the problem. UNRWA's constant efforts to guarantee the politically neutral nature of its activities while adjusting its mandate in keeping with the refugees' changing needs and aspirations have been a defining characteristic of its sixty years in operation. Over the years, it has gradually endeavored to promote the refugees' self-reliance either as actors integrated into the host economies or as partners in the delivery of various services, particularly in the refugee camps. More recently, expanding this participatory emphasis, it has started to apply a human development approach to the full range of its activities as a means of helping the refugees achieve their full potential. UNRWA's programs, as well as the operational norms and regulations it has adopted in order to structure its working relations with the refugees, have been greatly affected by its evolving perceptions of them, as will be seen below. THE POLITICAL LIMITATIONS OF ECONOMIC APPROACHES TO THE REFUGEE ISSUE UNRWA's approach to the Palestine refugees long bore the stamp of the first phase of its operations in the 1950s, when it endeavored to fulfill the goals ascribed to it by UN General Assembly (UNGA) Resolution 302 (IV) of 8 December 1949. Article 7 states that UNRWA was to “carry out in collaboration with local governments the direct relief and works programs as recommended by the Economic Survey Mission (ESM).” The ESM's recommendations involved giving the refugees, mostly unemployed farmers and unskilled workers, the opportunity to work “where they were” by involving them in a program of temporary small-scale public works (terracing, afforestation, road construction, irrigation works, and other engineering schemes) that would help them become self-reliant. This program, fully funded by UNWRA, was to constitute a first step toward their “reintegration” into the host state economies, according to the ESM; their longer-term integration required large-scale economic development schemes that could only be borne by the interested governments themselves. In the meantime, UNRWA was to consult with these governments “concerning measures to be taken by them preparatory to the time when international assistance for relief and works projects is no longer available.” As early as mid-1951, UNWRA had shifted to a new approach, emphasizing more ambitious development schemes designed in cooperation with the host governments to directly “resettle” or “re-establish” the refugees in those countries. This would be achieved by expanding the latter's absorptive capacity through various medium- to large-scale housing, agricultural, and infrastructural projects; loans or grants for the establishment of small enterprises; training for occupations where there was a shortage of indigenous trained workers; and assistance for migration abroad. By 1957, however, the failure of the approach was clear: the number of refugees who had become fully self-supportive since 1950 stood at a mere 24,000, whereas 933,000 persons were still dependent on UNRWA services.
- Topic:
- Humanitarian Aid
- Political Geography:
- United States and Middle East