Supplementary Appeal. Return and reintegration of Congolese refugees in the Democratic Republic of the Congo

Transcription

1 Supplementary Appeal Return and reintegration of Congolese refugees in the Democratic Republic of the Congo February 2007

2 Executive summary More than 408,000 Congolese refugees still live in exile, of which 395,000 in the Democratic Republic of the Congo s (DRC) nine neighbouring countries. The country s first democratic elections in 40 years and the inauguration of President Kabila open a new era and raise hopes that the vast majority of Congolese living in exile, and those internally displaced, will be able to return home in the coming years. Some 89,000 Congolese refugees have already returned to DRC since 2004, mainly to the provinces of Equateur, South Kivu and Katanga. In 2007, it is expected that some 98,500 refugees will opt to repatriate with UNHCR s assistance, mainly from the Republic of the Congo, the United Republic of Tanzania (Tanzania) and Zambia, and in smaller numbers from other African countries. UNHCR will ensure that refugee return is voluntary and that sufficient information is available to refugees on the situation in their areas of origin. UNHCR will negotiate with concerned governments to facilitate the repatriation of refugees and organize the safe transport of refugees from neighbouring countries to their villages of origin. UNHCR will distribute return packages, consisting of food, domestic items, shelter materials and tools, to help them settle in their community. To help them rebuild their lives, UNHCR will also support health and education services in main return areas and provide income-generating support to communities with a large returnee population. Particular care and assistance will be provided to refugees with special needs prior to and upon return, including unaccompanied minors and separated children. Through its leadership in the Protection Cluster, co-leadership of the Early Recovery Cluster and membership in other thematic clusters in the DRC, UNHCR will ensure that complementary activities are implemented in return areas to further improve the protection environment, increase access to basic services and livelihood opportunities, as well as harmonizing the approach to both refugee and internally displaced persons (IDP) returns. Pockets of insecurity, poor roads and the lack of access are major constraints on UNHCR operations. Absence of the rule of law, lack of basic social and health services and generally poor socio-economic conditions also pose difficulties. A sudden large-scale return could also represent a major challenge, as it might overwhelm humanitarian agencies and the absorption capacity of return areas. Programme at a glance Title Beneficiaries Return and reintegration of Congolese refugees in the Democratic Republic of the Congo 98,500 Congolese returnees Time frame 1 January December 2007 Total requirements USD 47,218,724 Cover photo: Refugee boy getting of a truck to be reunited with his relatives in Mawuya Village after five years in exile/ UNHCR/ J.Ose 2

3 Working environment The context 2006 was a turning point in the DRC s history that witnessed the successful organisation of the country s first democratic elections in 40 years and the peaceful inauguration of President Joseph Kabila in December. Joint military operations by the Congolese national army (Forces Armées de la République Démocratique du Congo, FARDC) and the United Nations peacekeeping force (Mission des Nations Unies en République Démocratique du Congo, MONUC) against armed groups have also led to improvement in the security situation in some parts of the troubled eastern provinces. The situation remains volatile in many other areas however. Given these positive developments, both refugees and IDPs have started to return home. Some 89,000 refugees were repatriated over the last three years, while the IDP population has decreased by 30 per cent over the course of However, as of January 2007, there are still an estimated 1.1 million IDPs in the country, located mainly in the eastern provinces of North Kivu, Province Orientale (Ituri), South Kivu and Katanga, while 408,000 Congolese still live abroad as refugees. Despite its rich natural resources, the DRC is among the poorest countries in the world. 80 per cent of the population lives on an average of US$ 0.30 per day and the average life expectancy has dropped to 46 years. Health and education services are unaffordable to the vast majority of the population. The DRC s national HIV prevalence is estimated to be four per cent but in some areas it is as high as seven per cent. However, so far HIV/AIDS programmes, including prevention, care and treatment, are not yet available in most of the districts and anti-retroviral (ARV) treatment is only provided in a few health centres located in the country s main towns. In view of the relative stability that prevailed in the Equateur Province, UNHCR started to organize the return of Congolese refugees to this province in late 2004 from the Central African Republic (CAR) and in April 2005 from the Republic of the Congo. Repatriation from Tanzania to South Kivu started in October Organized returns from the Republic of the Congo and Tanzania continued in 2006 while return movements to Katanga province were postponed due to insecurity, the elections and then the onset of the rainy season. Since October 2004, 45,300 refugees were repatriated by UNHCR, with more than 29,000 in 2006 alone. DRC refugees returning from the Republic of the Congo aboard a boat on their way to a transfer centre in Monzombo, DRC/ UNHCR/J. Ose 3

4 The needs As of late 2006, there were still more than 395,000 Congolese refugees living in the countries neighbouring the DRC: 130,000 in Tanzania, 79,000 in Uganda, 60,000 in Zambia, 47,000 in the Republic of the Congo, 42,000 in Rwanda, 23,000 in Burundi, 12,000 in Angola and 2,000 in the Central African Republic. While the majority of the refugees in Angola have opted for local integration, surveys conducted in the other countries have shown that most Congolese refugees wish to repatriate as soon as conditions are conducive to their return. It is assumed that in 2007 the political situation will remain stable and that the security situation will continue to gradually improve in the eastern part of the DRC, despite pockets of insecurity due to the remaining presence of various armed groups. It is therefore expected that 98,500 refugees will repatriate to the DRC in 2007, mainly to Equateur, South Kivu and Katanga Provinces from the Republic of the Congo, Tanzania and Zambia, with small groups repatriating from Sudan, Burundi, Uganda, Rwanda and southern Africa. In view of the prevailing situation in Ituri and North Kivu, closely related to yet unresolved ethnic and land issues, large return movements from Uganda and Rwanda are not anticipated before confirmed what returnees, IDPs and local residents communicated to UNHCR during the participatory assessments. Some of the findings are the following: Food insecurity prevails in all areas, and that the majority of the population has less than one meal a day, no access to seeds and only very limited access to markets. 70 per cent has no access to health care due to lack of resources and the scarcity of health centres (e.g. in Moba territory, the average distance to a health centre is 17.7 km). The health centres lack of basic supplies and trained staff. Access to primary education remains a challenge, while existing school facilities are insufficient for all pupils to enrol and they lack trained staff and basic materials. In most localities, housing is inadequate and the population does not have access to construction materials 80 per cent of villages surveyed do not have wells or springs; 43 per cent of the population in South Kivu and 54 per cent in Katanga live more than 3km away from potable water and cholera is endemic in villages located along Lake Tanganyika. Most Congolese refugees live in camps or designated areas which are often far away from their villages of origin and they do not have the resources to return. In addition, spontaneous returnees risk harassment or worse during their journey home. Participatory and other assessments taking into account age, gender and other diversity factors conducted in return areas in the DRC have shown that issues such as sexual violence and abuse by the military and militias, physical insecurity and gender inequity are the main risks for everyone, whether they are returnees, IDPs or the local population. In South Kivu and Katanga, surveys were conducted using the Village Assessment and Mapping methodology. The aim of these surveys was to assess the sectoral needs based on basic indicators and to identify villages for priority interventions, as well as to determine the current and projected populations. Results of registrations conducted in the countries of asylum and surveys on the intentions of refugees were incorporated in the analysis. The outcome Locals reconstructing a school partially demolished during fighting in the area, Buburu village, Equateur Province / UNHCR/ A. Phalen 4

5 Main objectives Ensure that the return of refugees is voluntary and based on an informed decision. Ensure that repatriation is organized and that refugees return in a safe and dignified manner. Ensure that returning refugees with special needs receive adequate care and support. Support the sustainable reintegration of refugees and their access to shelter, health care and education. Strengthen partnerships with humanitarian and development actors to respond better to protection and recovery needs. Congolese returnees at Baraka transit centre in South Kivu where they receive a return package and organize for their journey home/ UNHCR/ S. Schulman Key Targets Tripartite agreements signed with all major countries of asylum, meeting of tripartite commissions at least once a year. Information Bulletin available for each province and updated at least every six months. Al least one radio programmes produced for each main asylum country (Republic of the Congo, Tanzania, Zambia) and broadcast to refugees. A minimum of six go-and-see visits organized. 100 per cent of return candidates are registered, sign a Voluntary Repatriation Form and return with recognized personal status documents. Best interest determination conducted for all repatriating unaccompanied minors. Referral system is in place between asylum countries and the DRC to follow-up on vulnerable refugees and medical cases. An appropriate system is in place for returnees to continue to receive tuberculosis and ARV treatment. 100 per cent of refugees are transported back to the DRC within three weeks of registration. No loss of life and no aggravation of health condition during return journey. 100 per cent of the returning refugees receive a standard return package of non-food items, a food package provided by WFP and a shelter kit (per household). Health centres with a concentration of returnees and that are not supported by other humanitarian actors receive timely minimum support in drugs and medical equipment. Primary and lower secondary schools in major return areas not assisted by other agencies receive basic support (school kits, teacher training, school rehabilitation). At least 5,000 families receive incomegeneration support. Main return locations benefit from a multisectoral support including livelihood support provided by various specialized agencies. 80 per cent of schools and health centres in major return areas receive support from UNICEF and other agencies. All returnees have access to seeds and tools through other agencies programmes. 5

6 Planning figures Repatriation planning figures by province in the DRC and by country of asylum Province January December Main Total countries of returnees Assisted by New Assisted by asylum in area UNHCR 2 returnees UNHCR 2 Equateur RoC, CAR 19,900 19,600 25,000 25,000 South Kivu Burundi, Tanzania 38,270 24,500 49,000 48,500 Katanga Zambia, Other, mainly Province Orientale and North Kivu Tanzania 26, ,000 21,000 Uganda, Rwanda, Southern Africa 3,930 1,400 8,000 4,000 Total 89,000 45, ,000 98,500 1 The January 2007 figures reflect returns up to 31 December The December 2007 figures reflect all new returns in These figures reflect the returnees whose return was facilitated by UNHCR. Planned organized return by country of asylum: Republic of the Congo: 25,000; Tanzania 45,000; Zambia: 20,000; other: 8,500. Strategy and Activities Protection and returnee monitoring UNHCR in countries neighbouring the DRC will continue to conduct verification exercises in order to update information on the Congolese refugees, particularly with regards to their places of origin. This information will be recorded and shared with the UNHCR office in the DRC. It will also facilitate the registration of candidates for return and the issuance of documents needed for repatriation. Intention surveys will also be completed and/or updated before the main seasonal return period to facilitate planning. Based on information received from countries of asylum regarding the place of origin of refugees, the UNHCR office in DRC will conduct assessments to determine whether these areas are safe for returnees and whether repatriation can be organized. The 2006 elections in the DRC have increased the asylum countries expectations of a mass return of refugees. UNHCR will keep the concerned governments updated on the situation in the DRC, as well as on refugees intentions and return operations. UNHCR will sensitize authorities on the voluntary nature of return and organize protection and repatriation training sessions for local authorities and other persons 6 involved in return operations. Tripartite agreements, which provide the framework for return and outline the modalities of return between the DRC, UNHCR and the country of asylum, have been signed with the Central African Republic, the Republic of the Congo, Tanzania, Sudan and Zambia. In 2007 UNHCR plans to hold regular tripartite commissions meetings and to negotiate and sign tripartite agreements with Burundi, Rwanda and Uganda. To ensure that refugees can make an informed decision, UNHCR will continue to collect information in areas of origin and to disseminate it to refugees through information bulletins, leaflets and radio programmes. UNHCR will also organize go-and-see visits to the DRC for small groups of refugees so that they can observe the situation on the ground for themselves and report back to other refugees. Visits of returnees to their former camps will also be organized. Mine awareness sessions will be organized in asylum countries where needed. Returning refugees are also encouraged to take all personal documents with them, such as birth, death and marriage certificates, school attestations and diplomas, and medical records. UNHCR will work with the relevant partners and authorities to ensure refugees have all the necessary documents prior

7 to their repatriation. Prior to return, UNHCR will organize a medical and vulnerability screening to identify refugees with special needs and arrange for special modalities of return, referral and follow-up for them, particularly those undergoing tuberculosis and antiretroviral treatment. UNHCR will pay special attention to unaccompanied minors and separated children, whether or not they live with foster families. Additional efforts will be made to ensure that these children are identified, to trace their relatives and to facilitate communication with them before repatriation with the help of the International Committee of the Red Cross and national Red Cross societies. Best Interest Determination exercises will be conducted for those who have registered for repatriation on their own or with their foster families. UNHCR will monitor the physical security, rights and well-being of returnees in their communities of origin. UNHCR will work with the relevant authorities and institutions should protection issues and human rights abuses arise and, if necessary, refer such issues to the Protection Cluster. UNHCR will also seek to address other needs through direct interventions and by advocating for other agencies interventions through the Early Recovery Cluster and other relevant clusters. In regions and return areas with a history of conflict or where there are unresolved issues among the local population, UNHCR will support reconciliation activities and peaceful mechanisms for the resolution of disputes. Return and reintegration activities Upon return and in coordination and collaboration with other agencies and partners, UNHCR will provide a combination of individual and community-based assistance to facilitate the socio-economic reintegration of returnees. UNHCR direct intervention will be made within the framework of the national and provincial clusters and in line with the National Reintegration Strategy, which is expected to be in place in Refugees who want to return will be registered and issued a Voluntary Repatriation Form with a photo that will serve as an identity document (ID) pending issuance of new national IDs by the DRC authorities. UNHCR will ensure that all adults in the family receive a copy. Refugees will be deregistered from the refugee lists and will return their ration and refugee ID cards. UNHCR will organize the transport of refugees from countries of asylum to their places of origin or as close as possible to the latter. Repatriation will take place by road, waterways or air. UNHCR will strive to use the most effective means of transport, taking into account the distance, safety, duration and cost of transportation. Assembly points and transit centres will be constructed and regularly maintained to provide accommodation prior to the journey and upon arrival. Meals will be provided at the transit centres, as well as during the refugees trip home. Congolese returnee from Tanzania making bricks to construct a new house in Baraka, South Kivu/ UNHCR/ S. Schulman 7

8 More specifically, upon arrival and while returnees are still in the transit centre, UNHCR will support the DRC authorities with the registration of returnees. UNHCR will organize a medical and social screening and sensitize returnees on issues like HIV/AIDS, sexual and gender-based violence, mines, proper nutrition and the use of mosquito nets during their stay at the transit centres. UNHCR will distribute a threemonth food ration provided by WFP and a return package composed of plastic sheets, blankets, mats, jerry cans, kitchen set and sanitary material. Long-lasting impregnated mosquito nets will be distributed to pregnant women and families with young children. UNHCR will also provide basic shelter kits to returnees. Whenever development or humanitarian actors are not present or unable to respond to the needs of returnees, UNHCR - in consultation with these actors - will provide the needed support, including the supply of drugs and medical equipment, and the rehabilitation of health infrastructure. UNHCR will also support community-based organizations to provide HIV/AIDS information, sensitization and care to AIDS orphans and people living with HIV/AIDS. UNHCR will ensure that refugees receiving ARV treatment in countries of asylum can continue to do so upon their return to the DRC. UNHCR will facilitate returnees access to education and intervene in areas that UNICEF may not be able to cover through the provision of school supplies and furniture, and targeted rehabilitation of primary schools where returnees constitute the majority or a large percentage of the students. To restore returnees and returnee communities livelihoods, UNHCR will also help returnees, especially women, set up small incomegeneration activities, such as sewing, grain milling, oil pressing, carpentry, small animal husbandry, fishing, bread baking and agricultural projects, through the provision of professional kits and relevant training. Micro-credit initiatives will be expanded, particularly in South Kivu and Katanga, following their successful implementation in the Fizi area in health centres should other agencies not be able to do so, and provide them with a functional water point. Should communities or local authorities identify the water sector as a priority, UNHCR will rehabilitate additional water points or wells. Partnerships and advocacy for sustainable return Several actors are expected to complement UNHCR activities. UNICEF has been a key partner of UNHCR, providing kits for students and teachers. UNHCR will continue to advocate for UNICEF s support with the training of teachers and the integration of modules on the rights of the child into training programmes. WFP will provide a three-month food package and, subject to a joint assessment at village level as well as availability and access, additional food support may be provided in the form of free distribution or through food for work, food for training or food for agriculture schemes. FAO will be including returnees in ongoing programmes that distribute seeds and tools, as well as small scale fishing equipment. UNHCR will provide logistical support to FAO to ensure delivery of these inputs to returnee areas. In order to ensure access to health care for refugees upon return, UNHCR will continue to advocate for support to targeted health zones, including essential HIV/AIDS services, safe blood transfusions, universal precautions, treatment of sexually transmitted and opportunistic infections, and - whenever possible - voluntary testing and counselling as well as prevention of mother-to-child transmission. UNHCR will also continue to mobilize other agencies for the rehabilitation of infrastructure, such as roads, markets and water supply systems. Since the sustainability of return will depend to a large degree on reintegration assistance and early recovery activities, UNHCR will use its coleadership role in the Early Recovery Cluster to increase such activities. The village assessment and mapping exercise conducted by UNHCR in South Kivu has proven to be a useful advocacy, planning and prioritizing tool and will be extended to more return areas in UNHCR will repair secondary roads needed for the return of refugees, which will mainly entail the repair of bridges and other spot repairs. UNHCR will help with the rehabilitation of schools and 8

9 Impact Congolese refugees return in an organized manner from neighbouring countries. They have access to objective information regarding their areas of origin and conditions of return. The voluntary nature of repatriation is respected by all concerned and refugees decision to return is not made under duress. All registered repatriation candidates get transported to their places of return in a safe and timely manner. Refugees with special needs are cared for during movement and receive adequate return support. All refugees who return with UNHCR assistance have their short term food and material needs met to allow a successful reintegration. All returnees have access to basic health care and primary education. Returnees awareness of HIV/AIDSrelated issues is increased and those on ARV treatment are able to continue their treatment in the DRC. At least 80 per cent of returnees achieve food security through the concerted efforts of UNHCR and other agencies. Challenges The poor state of roads, combined with the country s sheer size, is a major challenge to UNHCR and other humanitarian agencies, which render the delivery of assistance difficult and costly. Other main problems that might affect UNHCR s return and reintegration activities are the lack of timely funding and suitable implementing partners. This could seriously undermine UNHCR and other agencies efforts to create the minimum conditions for a sustainable return. While donors attention and funding of reintegration and transitional activities have increased, new internal displacement situations in areas that are still unstable, such as North Kivu and Ituri, could divert human and financial resources away from returnee areas. Natural disasters such as floods, droughts, volcanic eruptions or epidemics could overstretch the already limited humanitarian assistance or prevent refugees from returning to certain areas. Finally, a sudden mass return of refugees could overwhelm communities absorption capacity. Organization and implementation UNHCR presence Number of offices (1) 7 Total staff 137 International 22 National 104 UNVs 11 JPOs - Deployees - (1) With staff and administrative costs budgeted under this supplementary programme, out of a total of 14 offices in the DRC and an additional 5 offices in countries of asylum involved in this operation. 9

10 Coordination The National Commission for Refugees (Commission Nationale pour les Réfugiés, CNR) is UNHCR s main Government counterpart in the DRC. UNHCR participates in the UN Country Team and collaborates closely with the Humanitarian Coordinator and Deputy Special Representative of the Secretary-General. The cluster approach is being implemented in the DRC since In recognition of the similarities and overlapping of the protection needs of returnees, IDPs and the local population, UNHCR s return and reintegration programme is integrated into the cluster approach and the Humanitarian Action Plan. With UNDP, UNHCR co-leads the Early Recovery Cluster. UNHCR also leads the Protection Cluster with MONUC s support and is a member of several other clusters. Regular cluster meetings are being held at the national and field levels with broad participation of UN agencies and NGOs. The cluster approach will continue to strengthen joint prioritization processes and the systematic collection and use of basic socio-economic data on areas of return. UNHCR s strategic collaboration with FAO, UNICEF, WFP and UNDP will continue in 2007 and new partnership opportunities will be explored with agencies like ILO and UNOPS. In addition, UNHCR is engaged with development actors through the United Nations Development Assistance Framework where it works to ensure that returnee areas are included in national development plans. Through continued participation in the UN Programme Management Team, UNHCR will advocate for complementarities between emergency relief and development plans and resources. Partners Implementing partners Government: National Commission for Refugees (CNR) NGOs: Action Humanitaire Afrique, Actions et Interventions pour le Développement et l Encadrement Social, Agency for Technical Cooperation and Development, Association pour le développement social et la sauvegarde de l environnement, Atlas Logistique/ Handicap International, Caritas Katanga, Catholic Relief Services, Comité de développement intégré, Danish Church Aid, Search for Common Ground Others: Deutsche Gesellschaft für Technische Zusammenarbeit (GTZ), International Organization for Migration Operational partners Government: Ministry of Defence, Ministry of Interior, Ministry of Women and Social Affairs, Police Department Others: FAO, ICRC, ILO, UNDP, UNESCO, UNHCHR, UNICEF, UNOCHA, WFP Congolese refugees in Burundi waiting for their repatriation convoy to depart/ UNHCR/ C-L. Grayson 10

11 Total requirements (in USD) SECTORS DRC TANZANIA Republic of the Congo ZAMBIA Countries in Central Africa Resident Auditor Total Protection, Monitoring and Coordination 9,420, , ,871 10,717,695 Community Services 1,442, ,793 23, ,532,490 Domestic Needs/ Household Support 2,035, ,925 31,388 2,131,313 Education 1,679, ,679,067 Food 67,944 19, ,474 Forestry 84, ,168 53, ,261 Health/ Nutrition 2,044, ,800 48,782 60, ,364,504 Income Generation 1,668, ,668,814 Legal Assistance/ Protection 2,004, ,600 21,303 97, ,500 3,033,021 Operational Support (to Agencies) 2,973,961 97, , ,775 3,548,156 Sanitation 25,897 46,500 12,348 84,745 Shelter/ Infrastructure 3,701, ,600 44,839 37,087 4,050,214 Transport/ Logistics 5,982,784 1,813, , ,053 2,443,500 11,595,785 Water 262,930 7,130 56,814 42, ,756 Livestock 26,400 26,400 Total Operations 33,420,231 4,046,593 1,850,871 1,100,000 2,715, ,132,695 7% Indirect Cost* 2,339, , ,561 77, , ,019,289 Programme Support 589, , ,897 1,066,740 GRAND TOTAL 36,349,011 4,329,855 2,211,911 1,177,000 2,905, ,897 47,218,724 *A seven per cent cost has been added to the total operational requirements to meet indirect support costs in UNHCR. 11

12 Funding overview for 2006 The overall requirements for UNHCR s 2006 Supplementary Appeal for the return and reintegration of Congolese refugees were USD 75,570,862. UNHCR is grateful to the following donors for their generous contribution to the programme: Donor Amount in USD Belgium 1,785,714 CERF 3,300,538 European Commission 7,626,887 France 90,689 Germany 2,401,075 Ireland 1,184,834 Poland 50,000 Pooled Fund DRC 2,701,791 Private Sector 635,630 Spain 610,217 United Kingdom 1,217,391 United States of America 10,000,000 Grand Total 31,604,766 12

13 Map 13