Afghanistan Research & Evaluatin Unit and Cllective fr Scial Science Research Cnference n Afghan Ppulatin Mvements Hliday Inn, Islamabad 14 February 2006 Theme Objectives Afghans in neighburing cuntries: issues, cncerns and slutins. T present the findings f AREU s research n transnatinal netwrks t stakehlders and plicymakers. T initiate discussin leading t a cmprehensive plicy slutin t Afghan ppulatin mvements t neighburing cuntries. Cnference design During the mrning sessin the Gvernment f Pakistan and Afghanistan, representatives frm Iran, dnrs, and ther key internatinal rganisatins will discuss ptential plicy respnses t the findings presented by AREU. The afternn sessin will fcus in mre detail n key research findings relating t Afghan ppulatin mvements. Spnsrs Key participants The Eurpean Cmmissin (EC), the United Natins High Cmmissiner fr Refugees (UNHCR), the Internatinal Organizatin fr Migratin (IOM) and the Internatinal Labur Office (ILO) Gvernment f Afghanistan: Ministry f Freign Affairs, Ministry f Refugees and Repatriatin Gvernment f Pakistan: Ministry f Labur, Office f the Chief Cmmissiner n Afghan Refugees, Natinal Aliens Registratin Authrity (NARA), Prtectrate f Emigrants Researchers: Afghanistan Research and Evaluatin Unit, Cllective fr Scial Science Research, University f Tehran, Internatinal Organizatin fr Migratin, Internatinal Labur Office, Altai Cnsulting, Pakistan Institute f Develpment Ecnmics Reprt n the Cnference n Afghan Ppulatin Mvements page 1/37 Hliday Inn, Islamabad, 14 February 2006
MORNING SESSION Intrductin t the research, and the utline and purpse f the cnference Paula Kantr, Afghanistan Research and Evaluatin Unit Overall research aims 1. T imprve understanding f the relatinship between transnatinal netwrks and sustainable reintegratin frm the perspective f returnees as well as Afghans remaining in either Pakistan r Iran 2. T trace scial supprt netwrks in Afghanistan and abrad, and t use this infrmatin t help identify the characteristics f successful reintegratin 3. T make recmmendatins t the gvernments f Afghanistan, Pakistan and Iran regarding mutually agreeable slutins fr Afghans living and wrking in neighburing cuntries Cuntry-specific research aims In Afghanistan, t investigate: the decisin-making prcess arund bth leaving Afghanistan and returning the existence and strength f transnatinal netwrks the rle f crss-brder mvements and remittances in creating livelihd strategies that can sustain return In Iran and Pakistan, t investigate: reasns fr nt returning and pssibilities fr return existing links with Afghanistan livelihd patterns experiences f labur migrants (Iran) Cnference aims and utline Aims T present findings f AREU s transnatinal netwrks research and ther related research, highlighting plicy recmmendatins T discuss pssible plicy respnses t Afghan ppulatin mvements t and frm neighburing cuntries Outline Research presentatins frm AREU and partners, and cmplementary research by IOM and ILO Panel discussins, with cmments frm gvernment and the internatinal cmmunity The relevance f transnatinal netwrks in the cntext f Afghanistan Alessandr Mnsutti There are three main pints that frm the basis f this intrductin: the prir existence f transnatinal netwrks beynd Afghanistan (fr centuries Afghans have travelled within the cuntry and the regin, while this mvement has taken n a new dimensin in light f the recent war); Reprt n the Cnference n Afghan Ppulatin Mvements page 2/37 Hliday Inn, Islamabad, 14 February 2006
the relevance f the transnatinal netwrks fr the scial and ecnmic recnstructin f Afghanistan (each year hundreds f millins f dllars reaches Afghanistan thrugh remittances, cntributing directly t family supprt and, indirectly, t natinal recvery); the need t bring the ntin f transnatinal netwrks int the plitical debate (this must be addressed bth at the reginal level, but als in multilateral discussins between dnr agencies etc.). Appraches t migratin The figure f the refugee (1951 Cnventin, 1967 Prtcl) Typlgies (causes and mtivatins; frced/vluntary migratins; plitical/ecnmic migrants; pull/push factrs) Transnatinal netwrks (strategies; the ntin f transmigrant a persn wh maintains relatins with many peple ver different places; multi-sited research in a glbalised cntext) There is a need fr a new methdlgy t accunt fr this situatin. If peple belng simultaneusly t different places, ur research must be carried ut in simultaneus places. AREU therefre carried ut research in nine places, finding that migratin is an nging prcess and fllws a multi-linear path: this is a psitive reactin t Afghans circumstances. Repatriatin is nt, per se, the slutin; it is nly part f the slutin. A mre cmprehensive slutin will take int accunt the cntinuus mvement f the peple. Main cnclusins Recgnising that nging migratin is a tl f recnstructin and a cnstitutive feature f Afghan scial life, there is a real need t lk beynd the three slutins t the refugee prblems usually recmmended and prmted by UNHCR: vluntary repatriatin in the cuntry f rigin integratin in the hst cuntry resettlement in a third cuntry These three slutins are based n the idea that the mvement must stp. A mre cmprehensive slutin that takes int accunt the strategies develped by the Afghan ppulatin, including the back and frth mvements between Afghanistan, Pakistan and Iran, must be prmted. Presentatin f research findings frm Afghanistan Gulbadan Habibi, Afghanistan Research and Evaluatin Unit Jalalabad City and peri-urban areas 50% f the interviews were dne in the city; 50% in peri-urban cmmunities Fieldwrk tk 4 weeks Over 100 questins were asked, taking 90 minutes per interview Interview lcatins were in public and private spaces n streets and in markets in shps Share f husehlds by ethnicity 13 1 1 in a hujra (male-nly guesthuse) in hmes utside sitting n a katt (bed fr sitting) in a kdala (hut made f mud withut a dr) 17 68 Pashtun Tajik Arab Pashai Gujar in private cmpunds Reprt n the Cnference n Afghan Ppulatin Mvements page 3/37 Hliday Inn, Islamabad, 14 February 2006
A ttal f 100 adult individuals (75 male and 25 female) wh returned in the past 1 6 years were interviewed. Families migrated tgether, lived tgether and returned tgether, prviding substantial scial and ecnmic supprt. Why did refugees chse t g t the NWFP? Clse gegraphical prximity Same language and religin Presence f relatives Crssing the brder Initial trip made thrugh muntains passes n ft, dnkey, camel r hrse Migratin ften ccurred during intense fighting Wmen and children ften faced difficulties Cst f crssing was high, n average US$160 47% used savings, 14% sld livestck and 11% brrwed frm relatives and friends Shelter and husing in Pakistan 45 40 40 37 35 30 25 20 15 16 10 7 5 0 In rented huses In tents in different refugee camps With their relatives Self-cnstructed hmes n rented land Livelihds in Pakistan and n return t Afghanistan Type f emplyment Pakistan On return t Afghanistan Regular salaried 16% 18% Business 11% 24% Small business 22% 23% Daily wage 44% 28% Farming 5% 5% Majr reasns fr return Imprved security and freedm 25% Increased jb pprtunities 10% Return f relatives 8% Better life in wn cuntry 7% Plice harassment, lack f belnging, fd ratin cessatin and camp demlitin were als mentined Reprt n the Cnference n Afghan Ppulatin Mvements page 4/37 Hliday Inn, Islamabad, 14 February 2006
Return, resettlement and reintegratin 63% returned t the same lcatin they left frm 93% resettled clse t their relatives 51% settled clse t thse they lived with in Pakistan 93% never felt islated 60% received supprt, including financial, frm relatives Prblems faced in Pakistan 30 25 24 23 21 20 15 11 10 5 4 4 3 0 Living in a freign cuntry Husing/pr living cnditins Emplyment Insufficient incme N fd ratin Electricity Prblems faced in Afghanistan Plice harassment Other 6 N prblem 4 40 35 30 25 20 15 10 5 0 35 18 15 14 4 4 4 6 Husing Water and electricity Quality and lcatin f educatin Emplyment related prblems N health facilities Pr rads Other N prblem Change in ecnmic situatin after return 68% believe their cnditins have imprved 19% think that things have remained the same 12% think their ecnmic situatin has deterirated Reasns fr imprvement (multiple respnses pssible) 47% nted mre emplyment and mre wrkers 31% nted better wages 37% nted lack f rent payment meant mre mney in the husehld 28% said mre wrk in Jalalabad cmpared t rural Nangarhar Reasns fr wrse ecnmic situatin The majrity f thse wh find their situatin unchanged r deterirated are generally very pr This grup wned n prperty (huse r land) prir t migratin and lived in Kacha Gari Camp Reprt n the Cnference n Afghan Ppulatin Mvements page 5/37 Hliday Inn, Islamabad, 14 February 2006
Fr 75% f the 12% in the wrst cnditin, the majr reasn was pr health f the primary wage earner Plicy recmmendatins Husing: there is a severe lack f basic husing facilities, especially fr the urban and peri-urban pr In crdinatin with the municipality f Jalalabad and the Ministry f Urban Develpment and Husing, begin a public debate n hw t regularise infrmal settlements Supprt prgrammes facilitating self-help cnstructin f inexpensive basic husing Establish similar cnstructin prjects t assist thse wh have returned t destryed r damaged hmes in bth urban and rural areas Access t services: lack f access t basic services (water, pwer, educatin, health care) is a majr cncern Raise awareness abut existing lcally prvided services (educatin, health care) Imprve state capacity t deliver pwer and water t all residents, particularly pr rural residents Emplyment: fr sme pr and less-skilled returnees, the lack f jbs is a pressing cncern Develp small-scale gvernment and nn-gvernment prjects t encurage the ecnmic participatin f the vulnerable pr in bth urban and rural cntexts (e.g. establish and fster small businesses) Develp small-scale gvernment and nn-gvernment prjects which are custm-made and acceptable t wmen, t imprve their ability t generate incme fr their husehlds Cmmunity participatin Stress cmmunity participatin and self-help in a variety f develpment activities, t build upn the clse-knit nature f many cmmunities, neighburhds and villages Additinal research Examine existing labur markets in Jalalabad City, its peri-urban areas and surrunding rural regins, in rder t develp relevant emplyment and incme-generatin prjects Further examine the prcess f reintegratin and its sustainability Research findings frm Karachi, Quetta and Peshawar, Pakistan Haris Gazdar, Cllective fr Scial Science Research Numerical cntext This study tk place at the same time as the UNHCR-spnsred census f Afghans in Pakistan (taking int accunt nt nly thse cnsidered as refugees), which revealed that there 3 millin Afghans in Pakistan, living in husehlds. Up until nw there had been a lt f scepticism abut previus figures, which were bviusly very prblematic. If we think that the existing plicy paradigm is adequate, all we have t d is lk at the repatriatin figures. 82% f 3 millin have n immediate plans t repatriate hwever the current plicy paradigm fcuses almst exclusively n 1,800,000 1,600,000 1,400,000 1,200,000 1,000,000 800,000 600,000 400,000 200,000 0 2000000 1800000 1600000 1400000 1200000 1000000 800000 600000 400000 200000 0 1878170 769268 135734 207758 Reprt n the Cnference n Afghan Ppulatin Mvements page 6/37 Hliday Inn, Islamabad, 14 February 2006 1989 1990 NWFP 1991 1992 1993 1994 Balchistan Number f repatriated Afghans Sindh Punjab 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 Islamabad 45259 13079 AJK
vluntary repatriatin. Vluntary repatriatin has certainly helped many peple, but bviusly there are many (82% f 3 millin) wh still need t be managed. Gegraphical distributin f Afghans in Pakistan Out f 17.4% f all Afghans in Pakistan intending t return t Afghanistan in 2005, 74% live utside the refugee camps. 82% f 3.05 millin have n immediate plans f return accrding t the 2005 Census. Ethnicity and age grups f Afghans in Pakistan 82% are ethnic Pashtuns The next largest grup is Tajik (7%), fllwed by Uzbek, Hazara, Turkmen, Balch and thers An estimated 55% are under 18 19% are under 5 If there was an apprpriate time t view Afghans in Pakistan thrugh the refugee paradigm, this figure f 55% under 18 makes it clear that this paradigm is n lnger applicable. Case studies Need t recnsider wh the Afghans in Pakistan are, hw they live, their jbs and scial netwrks, and hw they think abut their futures. Case studies were cnducted in Karachi, Peshawar and Quetta during 2004 05. 20.1% f Afghans live in Peshawar, 11.1% in Quetta and 4.3% in Karachi Planning the future Repatriatin in the cntext f: reducing vulnerability increasing security (shelter and safety) achieving ecnmic stability imprving livelihd pprtunities Inter-generatinal differences within families (ecnmic pprtunities, higher educatin, insecurity fr girls) The main issue discuraging return t Afghanistan is the lack f shelter. Security is n lnger the tp reasn this cmes third after shelter and emplyment pprtunities. These respnses vary accrding t sciecnmic status. Fr example, husing is imprtant t thse wh are living in refugee camps; fr thse living in well-established areas livelihds (jbs) are mst imprtant. The main finding Afghans in Pakistan have cped, survived and managed their lives quite similarly t hw life is managed by Pakistanis in Pakistan. Afghans in Karachi behave mre r less in the same way that internal migrants behave in Pakistan. Peple in Karachi rely n infrmal scial netwrks t survive, find jbs etc. In Quetta (an urban centre surrunded by a very rural, tribal sciety), Afghans were able t cme t the city by seeking ut and recvering tribal cnnectins (e.g. Pashtuns frm Kunduz). In Peshawar (an urban centre f NWFP, which became by default a centre servicing similar cmmunities in bth Pakistan and Afghanistan), Afghans were recgnised as part f the cmmunity as their cunterparts n the Pakistani side are. The reasns fr Afghans t cme t Pakistan and being displaced are nt the same reasns fr remaining. Therefre the existing plicy paradigm (that sees Afghans in Pakistan as residual refugees) is missing the pint, and is nt apprpriate. Transnatinalism as a reality Brders matter little in terms f the mbility f peple and gds (the Pakistani gvernment plicy has allwed Afghans t cme and g; Quetta and Peshawar can be seen as urban centres that serve Reprt n the Cnference n Afghan Ppulatin Mvements page 7/37 Hliday Inn, Islamabad, 14 February 2006
bth sides f the brder); this allws Afghans living in these brder areas t maintain clse cnnectins with their hmes in Afghanistan. These durable netwrks are nt just ging t fade away. Peshawar and its surrundings in Pakistan and Afghanistan are virtually a single market. The writ f the state is weak with respect t brder cntrl, and mst Afghans and Pakistanis alike are sustained by the infrmal sectr. Transnatinalism as a way f thught Assumes that it is nt nly pssible, but als desirable, t maintain a presence in bth cuntries and, circumstances permitting, even in a third cuntry Transnatinalism, therefre, is a state f being which is facilitated by the existence f crssbrder scial and livelihd netwrks Transnatinalism as a strategy Transnatinal families: Afghanistan, Pakistan and Iran, and third cuntry (Middle East, Eurpe, Australia and the US) Existence f financial if nt physical cnnectins amng extended family Family: the mst fundamental unit f netwrking and strategising fr Afghans n the mve Displacement, settlement and repatriatin invlved entire extended kinship grup New frms f affiliatin and identity plitical parties, resistance grups and Islamic rganisatins linking Afghans with Pakistanis Afghan Pakistani netwrks Ties with a range f Pakistani (and internatinal) cunterparts Linguistic and cultural links (Pasht, Hazara tribal cnnectins) Religius ties (Sunni, Shia, Ismaili) Clse ties between Pakistani plitical religius parties with their Afghan cunterparts Crss-brder ecnmic activities based n mutual advantage Implicatins f transnatinalism Crucial determinant f the success and sustainability f plicies Reversing transnatinalism wuld cause serius disruptin t the ecnmy and sciety in general, let alne the lives f the Afghans Strng relatins f mutual advantage between Afghans and Pakistanis (ecnmic, linkages based n segmented sub-natinal identities) plitical feasibility The Pakistani gvernment s stance Deep invlvement f Pakistan gvernment in Afghanistan since 1979 This invlvement indirectly drve different waves f refugees acrss the brder frm the 1980s 2001 The internatinal cntext became less favurable t Pakistan Increase in ecnmic burden f refugees n gvernment Ecnmic sanctins n Pakistan due t its nuclear prgramme Refugees frced t return Gvernment refuses t allw refugee registratin Brder temprarily clsed t new arrivals In 2001, Afghans ceased t be exempt frm the Freigners Act Plicy cntext in Pakistan Frm pen brders, full internatinal supprt t brder and camp clsures, pressure t repatriate and diminished plitical and humanitarian supprt Reprt n the Cnference n Afghan Ppulatin Mvements page 8/37 Hliday Inn, Islamabad, 14 February 2006
Hw t balance the new Afghanistan with lcal realities, dmestic plitics and internatinal distrust? Key plicy changes Suspensin f the UNHCR and GP s screening prgramme after September 11, 2001 Establishment f the Natinal Aliens Registratin Agency (NARA) fr all irregular migrants t Pakistan (2001) Afghan Refugees Repatriatin Cell established in Karachi (2001) Tripartite Agreement, signed by Afghanistan, Pakistan, and UNHCR in 2003, which recgnises vluntary repatriatin as preferred durable slutin fr prblems f refugees UNHCR begins t end services t camps Slutins with visin Acceptance f the reality f transnatinalism Need t build a plitical cnsensus, which is likely t take time and effrt Prmtin f frank and pen debate and dialgue within and acrss states Pssibility f citizenship, pssibly dual, fr peple f Afghan rigin in the lng term? Opprtunities fr immediate actin Lcal cmmunities: recgnising class and ethnic differentials within Afghan ppulatin Address issues f irregular settlements Fr thse wh remain in Pakistan, and the generatin brn here, the right t wn prperty wuld facilitate their security and benefit the state frm regularised husing Frmalise infrmal ecnmic relatins The existence f middlemen and their impact n the Afghans in Pakistan Cmplexity f Afghan activities in Pakistan Mre realistic and beneficial t the state t recgnise the ecnmic cntributin f Afghans and attempt t frmalise these activities Addressing these issues Wrk permits and same legal rights as lcals. Register with NARA. Mnitr seasnal and crssbrder labur migratin Prgrammes and prjects designed t increase skills t alleviate pverty while in Pakistan, and give them the ptin t cnsider repatriatin Opprtunities fr Afghan yuth Make a simple and cnsistent prcedure fr accrediting and recgnising educatinal qualificatins frm each ther s schls and clleges Imprve access t educatinal and emplyment pprtunities in Pakistan Create emplyment pprtunities in Afghanistan Cntinued assistance and prtectin t vulnerable refugees Sme Afghans will remain eligible fr prtectin as refugees even if new and flexible plicies d greatly reduce their number Existence and recgnitin f ther categries f Afghan migrants t Pakistan des nt mean that the categry f refugee will cease t be relevant Pakistan must cntinue t ffer prtectin t refugees, with the supprt f UNHCR Reprt n the Cnference n Afghan Ppulatin Mvements page 9/37 Hliday Inn, Islamabad, 14 February 2006
Transnatinal netwrks and sustainable reintegratin f Afghan migrants in Iran Mhammad Jalal Abbasi Shavazi, Head, Department f Demgraphy, University f Tehran Histry f Afghans in Iran Transitry migratin f Afghans t Iran mtivated by ecnmic differences has ccurred since the nineteenth century Afghans have mved t Iran in fur waves: 1880 1903 during Amir Abd al Rahman, particularly Shia Hazaras t Mashhad 1979 89 during Sviet ccupatin f Afghanistan (3 millin) Islamic revlutin in Iran prmted Islamic brtherhd and Afghans entering Iran were categrised as invluntary religius migrants 1989 93 particularly the urban, educated, middle class 1994 2001 during rise f Taliban mvement Number f Afghans in Iran Gap between census figures and ther estimates f the number f Afghans living in Iran. Figures fr 2001 ranged frm ~2.3 millin t 3 millin. In Nvember 2004, arund 1 millin registered Afghans remained in Iran, including 113,201 single Afghans; there are an estimated 500,000 undcumented labur migrants. Ethnicity f registered Afghans in Iran: Hazara (43%), Tajik (31%), Pashtun (15%), Balch (5%), Uzbek (2%) and ther (3%). Case studies in Tehran, Zahedan and Mashhad Main questins: Afghan husehlds based in Iran fr at least 8 years What are the reasns fr husehlds t remain based in Iran? What livelihd strategies d these husehlds have? What links, if any, d they have t Afghanistan, and hw have these varied ver time (remittances, visits, wrk etc.)? Hw d they see their lng-term future in relatin t Afghanistan? Main questins: transitry Afghan labur migrants in Iran What is the nature f the life f migrants, and hw is this similar t, r different frm, their experiences f life in Afghanistan? What are the psitive and negative aspects f being labur migrants? Why have respndents becme labur migrants? What are their future intentins in terms f return and mbility? Methdlgy: Afghan husehlds 50 structured interviews in each city Snwball technique and via persnal scial netwrks Features selected fr: widws as husehld heads, ethnicity, age and phases f arrival t Iran Methdlgy: labur migrants 15 pen-ended interviews in each city Snwball technique and via persnal scial netwrks Features selected fr: Afghan place f rigin, ccupatin in Iran Reprt n the Cnference n Afghan Ppulatin Mvements page 10/37 Hliday Inn, Islamabad, 14 February 2006
Afghan livelihd strategies Active participatin in reginal scial netwrks that functined as safety nets thrugh access t credit Mney brrwed/laned fr: illness, accident, funeral csts, husing bnd r rahn, marriage csts, relative s smuggling fee Iranians featured in Afghan livelihd strategies in Tehran; hrizntal relatins were mre cmmn than vertical Assistance included laning mney, advcacy, and purchase f gds prhibited t unregistered Afghans Transnatinal netwrks Mst Afghans in Iran participate in transnatinal netwrks spanning Iran, Afghanistan, Pakistan and further abrad A cmmn practice is t make transnatinal links thrugh marriage Mst Afghans have relatives living abrad and sustain cntact via letter, telephne and ccasinally email Remittances Husehlds remitted very little mney t Afghanistan, nr did they receive mney. Afghans in Zahedan were mre likely t remit mney, perhaps reflecting the prximity f the brder. Sme Afghan husehlds have begun t remit mney t Afghanistan t supprt the livelihd f relatives wh have returned and nt fund wrk. Afghan husehlds in Iran very rarely receive regular remittances frm relatives abrad. Return t Afghanistan Mst Afghans d nt intend t return t Afghanistan in the medium term; they prefer t remain in Iran if they are permitted t d s. Despite the clear majrity wh want t remain, many express discntent at their scial and ecnmic marginalisatin in Iran. The advantage f relative material cmfrt and ecnmic pprtunity in Iran is a strng mtivating factr t remain. Assessing change in Afghanistan Perceptins f ecnmic develpment and plitical stability/rule f law in Afghanistan are critical t decisin-making abut return. The reintegratin experience f returnees frm Iran influences the decisin-making f their relatives remaining in Iran. Afghans with successfully returned relatives are significantly mre willing t return than thse whse relatives have nt returned successfully, i.e. have nt fund wrk and are spending savings n daily living. Gender and return intentin Wmen are far mre likely t want t remain in Iran due t better facilities, and perceptins that Iran is less patriarchal. Wmen are cncerned abut persnal security and the risk f vilatin f their wn and their daughters hnur. Husehlds with daughters f marriageable age are significantly less willing t return t Afghanistan. Reprt n the Cnference n Afghan Ppulatin Mvements page 11/37 Hliday Inn, Islamabad, 14 February 2006
Religius minrity and return intentin The percentage f Hazara Afghan returns t Afghanistan cmpared with ther ethnicities is lw. Hazaras are almst entirely Shia Muslim and cmprise 43% f the dcumented Afghan ppulatin in Iran. Hazara returns cmprise nly 25.6% f the ttal UNHCR-assisted return figures t Afghanistan. This imbalance is pssibly due t Hazara perceptins f cntinued prejudice against Shias in Afghanistan, and experiences f religius freedm in Iran. Imperative f welfare facilities and wrk Ready availability f husing and utilities, wrk, and health and educatin in Iran mtivates Afghans t stay in the medium term. Perceived lack f rule f law and disarmament, health and educatin, and husing in Afghanistan discurage return in the medium term. Afghans with less educatin are cncerned that they will nly be able t find seasnal manual labur pprtunities in Afghanistan. Afghans with university qualificatins are cncerned that they will be unable t find wrk in the gvernment in Afghanistan. Return destinatins Afghans living in Tehran and Mashhad prefer t return t Kabul, even if Kabul is nt their place f rigin, fllwed by Herat and Mazar-i-Sharif. (These cities are perceived t be mre secure fr Shias due t the size f the Shia ppulatins relative t Sunni ppulatins.) Afghans living in Zahedan prefer t return t their places f rigin, pssibly reflecting the maintenance f ties t their places f rigin by virtue f Zahedan s prximity t the brder. Diverse reintegratin strategies Husehlds remain in Iran in the medium term t save mney t purchase land r husing in Afghanistan prir t return A husehld member travels t Afghanistan t arrange accmmdatin and investigate wrk prspects in preparatin fr the husehld s return Returnee husehlds struggling t cpe in Afghanistan return t Iran t accumulate mre capital Returnee husehlds struggling t cpe send a member back t Iran t wrk and remit mney t the husehld in Afghanistan Returnee husehld heads migrate t anther prvince in Afghanistan t wrk and remit mney Returnee husehlds relcate t anther prvince in Afghanistan t imprve their ecnmic situatin Labur migrant experiences Labur migrants in Mashhad and Zahedan travel frequently t Afghanistan due t their prximity t the brder Difficulties in crssing the brder and risk f deprtatin are insufficient barriers t mbility Labur migrants remit substantial amunts f mney, with annual averages f: Mashhad: 1.2 millin Tman (US$1,300) Zahedan: 970,000 Tman (US$1,008) Tehran: 690,000 Tman (US$775) Plicy recmmendatins Supprt the UNHCR t retain its membership f the Tripartite review Reprt n the Cnference n Afghan Ppulatin Mvements page 12/37 Hliday Inn, Islamabad, 14 February 2006
Imprve the current prcess fr the reintegratin and emplyment f skilled Afghans and their families currently living in Iran Prvide easier access fr Afghans t make recnnaissance/preparatry visits t Afghanistan Establish a bilateral arrangement that prvides a clear legal identity fr members frm returnee husehlds wh return t Iran t sustain the reintegratin f their husehld in Afghanistan Cntinue burden-sharing aid and supprt t NGOs wrking with the mst vulnerable Panel discussin: Key challenges and plicy ptins fr managing crss-brder ppulatin mvements Mhammad Ibrahim Khan, Ministry f Labur, Gvernment f Pakistan Pakistan has hsted up t and mre than 3.5 millin Afghans fr last 25 years. In spite f the fact that Pakistan has its wn visa regulatins, crss-brder migratin, restrictins and exemptins n Afghans wrkers and refugees, Afghans still enjy the privilege f travelling int Pakistan withut cmpleting frmalities. Due t the brtherhd that exists between the tw cuntries, many regulatins are nt implemented. Pakistan has wn labur frce f 47 millin; 43 millin are emplyed, many are underemplyed. The net unemplyment rati is abut 7.69% f the ttal ppulatin. Abut 3.6 millin Pakistanis are unemplyed, in additin t several millin Afghan refugees. Pakistan faces huge emplyment challenges. Many Afghan refugees are self-emplyed r nt dependent n gvernment f PK due t assistance frm NGOs; many are cntributing t the ecnmy f Pakistan. In sme case they receive remittances frm abrad. Many Afghans have travelled abrad n Pakistani passprts and have managed t get natinal ID cards; ne generatin has been brn here and the ther has grwn ld here. Twenty-five years f unrest has demlished much in Afghanistan, but significant recnstructin is taking place. Many Pakistanis are participating in the recnstructin f Afghanistan; it is surprising that skilled Afghan wrkers in Pakistan d nt g back t take part in this recnstructin. The gvernment f Pakistan is making effrts t ensure that Afghan refugees return hme with dignity, because they are ur brthers. We have a very clse relatinship; Pakistan wants t help nt nly Afghan refugees but the gvernment f Afghanistan as well. Recnstructin needs mre mmentum; there is a need t ensure the basic necessities f life are available there. This will help in repatriatin effrts if these services are there, and in turn this will help Pakistan deal with its wn unemplyment. Mhammad Haider Reza, Deputy Minister fr Freign Affairs, Gvernment f Afghanistan Afghan ppulatin mvement has been traditinal in the regin fr a lng time; Afghans have always been in search f a better life that helps their wn families and cntributes t the prsperity f the emplyers in places where they are emplyed. The lack f security and jb pprtunities have caused Afghans t migrate thanks g t the gvernments and peples f all thse cuntries wh have hsted Afghan natinals and prvided supprt t them. The gvernment f Afghanistan is aware f the challenges faced by these hst cuntries; but it will nt be able t receive the returned refugees all at ne time. There is still much t prepare fr their return. Fighting is n lnger a majr cncern; Afghanistan still faces many prblems with landmines. Mst returnees cme t the majr cities, which creates prblems in thse cities. Hw lng will Afghanistan need t be able t prepare t receive returnees with dignity and be able t prvide them with jbs, etc.? The answer depends n the Afghan ecnmy and its stability. Abslute self-sufficiency is a lng rad ahead. Afghanistan needs supprt frm its neighburs and the wrld cmmunity t ensure this ccurs. The gvernment is ding its utmst frm the Lndn cnference, t the submissin f its Millennium Develpment Gals. This cuntry s ecnmical backbne has been brken; it nw needs time and attentin frm Afghans and the internatinal cmmunity t heal. Afghanistan s gegraphy is an asset cuntries nearby culd benefit enrmusly frm trade and business with and thrugh Afghanistan. There was a reginal ecnmic cnference in Kabul tw mnths ag where G8 cuntries talked abut enhancing trade and investment. Things are Reprt n the Cnference n Afghan Ppulatin Mvements page 13/37 Hliday Inn, Islamabad, 14 February 2006
mving in the right directin with the new president and parliament, schl attendance is up, men and wmen are cntributing t recnstructin. Nevertheless the cuntry cannt take back refugees frm Pakistan and Iran all at nce. There are cncerns abut the secnd generatin cming back: if and when they cme back, they may feel like aliens in Afghanistan. Call it labur migratin, r smething else; if there s a chice in it that s ne thing, but being frced t leave yur cuntry is anther. Mhammad Naeem Ghiasi, Deputy Minister fr Refugees and Repatriatin, Gvernment f Afghanistan Fr the furth cnsecutive year, the pace and vlume f repatriatin t Afghanistan remains cnsiderably high. Since March 2002, we have received mre than 4.5 millin returnees frm Pakistan and Iran. The fact that returns have cntinued at such high levels fr fur years underlines ur belief and mre imprtantly, the belief f ur wn peple that things are imprving in Afghanistan. It is psitive t see this gesture f cnfidence in the future f Afghanistan and the cnstructive cntributin made by returnees t the rebuilding f the cuntry. Nevertheless, ensuring sustainable reintegratin fr returnees remains a challenge. Lack r shrtage f adequate emplyment and husing are, namely, sme f the key cnstraints. Afghanistan has cme a very lng way in a shrt space f time. But we all knw that pst-cnflict recnstructin is a lng-term task and will take time t shw results. Our plicy has cnstantly been t supprt and advcate fr vluntary, gradual and safe return f Afghans t their cuntry. Yu will therefre understand why I draw yur attentin t the need t cntinue yur assistance in future, fr much wrk remains t be dne. Many Afghans remain utside the cuntry. Only Pakistan and Iran hst nearly abve 3 millin Afghans in ttal. Nt all f them are refugees. This pses a cmplex issue that requires attentin frm many different angles, particularly in the cntext f migratry phenmenn and reginal cperatin beynd the mvement f gds and services. We must recgnise the fact that many Afghans have built slid sciecnmic and cultural ties acrss the brders between us, Pakistan and Iran ver the last tw and half decades. The existence f transnatinal netwrks is a reality in the current mvement f Afghans ut f the cuntry. While sme Afghans will remain utside the cuntry fr refugee and asylum reasns, an increasing number f Afghans will mve in the regin fr labur and ther sciecnmic purpses. Bth practice and research/studies undertaken mre systematically in the last cuple f years testify t this fact. As an Afghan, I am aware bth f the value f transnatinal netwrks and labur migratin, and the fact that it is nt new. Afghans have been migrating fr centuries and have always maintained clse scial and ecnmic links with their cuntry. I am als aware that the existence f these netwrks and mvements has imprtant implicatins fr hw the gvernment appraches future plicy develpment in this area. Fr the last 25 years Afghan mbility and migratin has been largely verwhelmed by the refugee prblem as huge numbers left ut cuntry due t the war, human rights vilatins, drught and famine. But happily fr the wrld, the regin, and mst f all fr ur cuntry and its citizens, this has nw ended. Thugh Afghanistan is still facing many difficult prblems, ppulatin mvements due t cnflict have ceased. This is a very imprtant achievement. It can be attributed t the prgress twards peace and stability, t the assistance f the internatinal cmmunity, and t the curage and resilience f ur peple. Afghans nw leave their cuntry fr different reasns. The number f Afghans crssing int Iran and Pakistan fr labur migratin, cmmercial and scial reasns is significant. Migratin in search f temprary labur has becme an integral part f Afghan families livelihd strategies. At the same time, Pakistanis and Iranians can cme t wrk in Afghanistan, t establish business, and t trade. While Afghans cntinue t migrate mstly fr ecnmic reasns an imprtant number f Afghan refugees cntinue t live in the neighburing cuntries. Until nw we have seen mainly the return f Afghans t nrthern and central prvinces that had left after 1996. Return t the suth and sutheast has unfrtunately been minimal because f insecurity and underdevelpment f thse areas. Reprt n the Cnference n Afghan Ppulatin Mvements page 14/37 Hliday Inn, Islamabad, 14 February 2006
The Afghan gvernment tgether with the help f the internatinal cmmunity and in particular the UNHCR has been struggling t ffer minimal reintegratin assistance. The task has been enrmus and we have been able t respnd nly t sme f the needs f the many Afghans returning hme since 2002. The challenges befre us are even mre daunting access t adequate shelter, water and emplyment. Assisting thse wh wish t return is an imprtant task but it is nt the nly ne. Tday, we have als heard abut Afghans wh cntinue t leave their cuntry fr ecnmic and scial reasns. We have als learned that there are many Afghans wh d nt wish t return nt because they have anything t fear, but because they have established permanent links with their hst cuntry. Afghans in Iran and Pakistan, fr example, have becme an ecnmic reality in sme sectrs and make a valuable cntributin t the ecnmy f thse cuntries. My gvernment is aware that we must imprve ur knwledge f ppulatin mvements beynd the refugee cntext. We must certainly start t take measures t develp plicy and prgrammes t manage them better in partnership with ur neighburs. The studies cnducted in Afghanistan, Pakistan and Iran have shed new light n these trends. We shall have t cnsider their implicatins carefully as we assess hw t manage the mvements f ur ppulatin in the future. Indeed, as many ther cuntries have experienced, having a prtin f ur ppulatin wrking and earning mney fr their family and cuntry, can cntribute significantly t natinal develpment. I am certain that tday s discussins can assist us t understand this issue better. Mre imprtantly, I am cnfident that, with the cntinued assistance f the internatinal cmmunity, it will help the Afghan gvernment t find ways and means f reaching agreement with the cuntries f the regin n hw we can cperate tgether n this questin. Frm ur side, I can assure that the Afghan gvernment and I persnally will lk int it seriusly. Migratin is an effective cping strategy fr many Afghan families. This has been the case in the past, and cntinues t be s tday. We have t make sure that we bth preserve and develp this mechanism. As it has prved fr ther cuntries, we recgnise that migratin can make an imprtant cntributin t the recnstructin and develpment prcess. The develpment f gvernment plicy in the area f migratin will be imprtant fr maintaining gd neighburly relatins with the cuntries f the regin. In that cnnectin, we lk t internatinal assistance agencies like IOM and ILO t help us develp a medium-term strategy t address challenges f brder management and labur migratin. Tday s research findings shw quite clearly that Afghan migrants suffer cnsiderable hardship either because they are expsed t unscrupulus traffickers r because they are subject t detentin and deprtatin. Wrking cnditins fr Afghans abrad are als insecure. Until nw there are n clear plicies n freign emplyment r institutinal arrangements. The answer t these prblems lies nt with cntrl r suppressin but in identifying ways t manage it better thrugh develping psitive interventins and minimising risks and prblems. Alireza Ghlipur, Third Secretary, Embassy f the Islamic Republic f Iran, Pakistan The Islamic Republic f Iran and Afghanistan have a cmmn brder stretching abut 900 kilmetres, and naturally the disrganised situatin in Afghanistan and its fate are clsely linked with the natinal security f Iran. Majr indices which can describe the link between the natinal security f Iran and the situatin in Afghanistan are numerus. The mst significant f these indices are: The existence f a lng-drawn cmmn brder between the cuntries (related figures are between 855 and 930 kilmetres); The danger f the spread f plitical instability resulting frm crises in Afghanistan t ther cuntries f the regin; Smuggling f narctics and ther items; Active presence f ther majr actrs in the crisis f Afghanistan; Cntinued crisis f refugees at reginal level. Reprt n the Cnference n Afghan Ppulatin Mvements page 15/37 Hliday Inn, Islamabad, 14 February 2006
The presence f millins f Afghan refugees in the cuntries lcated in the neighburhd f Afghanistan is viewed as the direct utcme f the crisis in Afghanistan. Plitical instability in Afghanistan frm mid 1970s nwards has culminated in the emergence f the phenmenn f wideranging emigratin f Afghans t neighburing states. Military invasin against Afghanistan in 1979 and the civil war fllwing the cllapse f the Najeeb Gvernment intensified this trend. During the preceding years, the natinal security f Iran has been linked tangibly with the issue f the presence f Afghan refugees in this cuntry. The Islamic Republic f Iran, based n its Islamic and humanitarian plicy, has, in the preceding years, hsted several millin Afghan refugees. But this issue has als had negative impacts n the plitical, ecnmic and scial security f Iran. In the plitical dimensin, separatin f suspect elements frm rdinary refugees has always been viewed as a prblem fr the cuntries hsting the refugees. This prblem becmes further evident when there may exist sme srt f enmity, rivalry r cnflict between the tw cuntries, namely the ne frm where they emigrate and the ther which hsts them. The refugees wh, in the past, tk shelter in Iran riginated frm such type f cuntries. Iran, in the past, has hsted Afghan and Iraqi refugees while the gvernment f Iraq and als the Taliban regime, and even the ex-cmmunist gvernment f Afghanistan, had adpted sme srt f cnflict and hstility twards the gvernment f Iran. Iran is presently hsting several millin freign refugees, and in this respect, ranks first in the wrld. Undubtedly, cntrl ver this large number f refugees and separatin f terrrist grups elements frm rdinary refugees amng them in plitical and security terms is very crucial and, f curse, incurs clssal expenditure. Meanwhile, it is likely that even rdinary refugees t may nt be in cnsnance with the scial and cultural system f the hst cuntry. The extent f direct links and cnnectins between them n the ne hand, and the native peple n the ther, is an issue which every cuntry hsting refugees and displaced peple defines and classifies accrding t its natinal security. The scial security, in its capacity as a smaller part f natinal security, is affected by the crisis f refugees. Different and even cnflicting culture f refugees with the culture f the peple f the hst cuntry can bring abut numerus scial prblems fr the hst natin. One f the cases, which is cnsidered as a suitable example f link between the tw cncepts, namely natinal security f Iran and the prblems f Afghanistan, pertains t the blws which sme f the Afghan refugees have inflicted upn the scial and psychlgical security f Iran. A glance at the degree f interference by sme f the Afghan refugees in affairs such as theft and murder pints t the significance f this matter in a manner that sme f the disciplinary and security authrities f the cuntry have, n numerus ccasins, requested fr enfrcing further cntrl ver the scial behaviur f the Afghan refugees and expulsin f that grup f these refugees wh are living in Iran in an unauthrised manner. In ecnmic terms t, the natinal security f Iran has been affected by the situatin prevalent in Afghanistan. Cntinuatin f the prblems in Afghanistan and the cntinued presence f Afghan refugees in Iran have incurred cnsiderable expenditures n the macrecnmy f ur cuntry. In the preceding years, millins f US dllars have been spent n the affairs f these hmeless peple. Fr example, in the year 1996 alne, 37 billin rials were incurred by the camps f the refugees living in them all ver the cuntry. This is at time when mst f the Afghan refugees resident in Iran were living utside these camps. Other expenditures impsed n the general budget f Iran due t benefiting f the refugees frm the subsidies granted in health, remedial, general items, living envirnment etc., and als reductin in jb pprtunities fr the Iranian natinals can be calculated separately. It may be interesting fr yu t knw that fr example, nly the expenditure n remval f garbage frm urban areas related t 3.5 millin Afghan refugees is estimated at $1.5m per day. Emergence f the Taliban grup and deplyment f its frces alng the cmmn brders f Iran and Afghanistan t intensified the crisis f emigratin at the reginal level. This grup nt nly, by expanding the extent f war and clashes in Afghanistan, made a greater number f peple in that cuntry hmeless but in sme cases, als prevented the return f Afghan refugees t their hmeland. Fr instance, due t escalatin f the attacks f Taliban and intensificatin f hstilities in Nrthern Reprt n the Cnference n Afghan Ppulatin Mvements page 16/37 Hliday Inn, Islamabad, 14 February 2006
Afghanistan, the Iranian plan n repatriatin f 250,000 Afghan refugees via Turkmenistan t their cuntry in the spring f 1997 was suspended. Nevertheless, the Islamic Republic f Iran, frm the very utset f eruptin f crisis in Afghanistan, has made its best effrts t alleviate the sufferings and prblems f the peple f that cuntry. In this same cnnectin, ur cuntry has, in its capacity as ne f the states hsting the largest numbers f Afghan refugees, despite receiving the smallest amunt f aid frm the internatinal cmmunity in this regard, has always tried t prvide the best services and facilities f Afghan refugees, s much s that tens f thusands f Afghans are studying in Iranian schls, and benefiting frm the educatinal, health and scial facilities being prvided free f charge. Meanwhile, the Islamic Republic f Iran, by implementing such prjects as cnstructin f schls, small wrkshps, technical and vcatinal schls, health and remedial centres, highways in accrdance with the internatinal standards, libraries and training centres, strengthening f academic and university institutins and ther prjects in Afghanistan has made cnstant effrts t kindle hpes f a better future fr the ppressed peple f Afghanistan, and by prviding sustained assistance t that cuntry, is ranked amng the largest dnrs t Afghanistan. The Islamic Republic f Iran firmly and persistently believes in the fact that arrangements shuld be speedily made s that the Afghan refugees may be able t return willingly t their hmeland, and this will naturally be pssible thrugh maintenance f security and develpment in that cuntry. In cnclusin, Afghanistan will be built and develped nly when Afghan refugees return t their native cuntry frm different states f the wrld and participate in the rebuilding prcess. Cmments Imran Ahmed Siddiqui, Ministry f Freign Affairs, Gvernment f Pakistan: Pakistan has suffered frm instability in Afghanistan in ecnmic and security terms. Humanitarian and security issues are interrelated. All Afghans shuld be repatriated with dignity and hnur. The cncept f migratin shuld be adpted by western cuntries as well as third wrld cuntries. The slutin t the prblem shuld be sught in Afghanistan, nt in neighburing cuntries. Piyasiri Wickramasekara, ILO: AREU researchers referred t emerging transnatinalism in the regin which accrds well with the cncept f circular migratin a gd practice. Internatinal instruments recgnise that everyne has the right t leave r return t his r her hme cuntry, but there is n crrespnding right f entry t a third cuntry which is gverned by ntins f state svereignty and a cmplex set f immigratin cntrls. The ILO has develped a nn-binding multilateral framewrk n labur migratin using a rights-based apprach. A few develped cuntries have expressed reservatins abut sme elements f this framewrk. It is indeed wrrying that immigratin barriers in the West are increasing in an era f grwing transnatinalism as nted by AREU researchers. In my view transnatinalism and transnatinal citizenship shuld be the visin fr the future. Naghma Imdad, Savera: Interested in idea f transnatinal linkages and finding slutins nt nly fr Afghan refugees but fr many ther grups within Pakistan wh are semi-nmadic and have been frced t settle dwn in certain areas. We shuld try t capture the spirit behind this and lk at it seriusly; Afghan refugees were mre traumatised when they had t be settled than when they were frced t mve frm their cuntry. Mhammad Haider Reza, Deputy Minister fr Freign Affairs, Gvernment f Afghanistan: May n ne ever witness the experience f Afghans wh experienced terrrs f war. Afghanistan was a shield fr Pakistan; if they did nt stp Sviets, they wuld have reached Karachi. Afghanistan has been merely a base fr terrrism. We are nt prud f Afghanistan s narctics prductin; why is it the pr farmers f Afghanistan prducing pium? They are frced t d it by circumstance f pverty. Afghanistan needs alternative livelihds fr farmers and inputs frm internatinal cmmunity. In the 1980s it was Pakistan which was under pressure t d smething abut narctics; it eventually mved t Afghanistan; it culd mve t China r Central Asian cuntries. Regarding terrrism, crss-brder attacks are cmmn nw. Vilence frm a factinal pint f view is nt a real threat, but the prblems are cming frm the tw cuntries: Pakistan and Afghanistan must fight it tgether. Reprt n the Cnference n Afghan Ppulatin Mvements page 17/37 Hliday Inn, Islamabad, 14 February 2006
Mhammad Ibrahim Khan, Ministry f Labur, Gvernment f Pakistan: Afghanistan is nt being blamed; the hard facts being faced by the gvernment f Pakistan are that ffshts f unrest in Afghanistan have mved int Pakistan. We are facing prblems n scial, cultural and ecnmic frnts which may be attributed t ur wn plicies as well. The gvernment f Afghanistan shuld develp their wn plicies regarding immigratin and in that way they can achieve better targets and gals in ecnmic terms. Indrika Ratwatte, UNHCR Pakistan: Earlier we were lking at peple mvement phenmena that will cntinue in an evlving wrld; the questin is hw des we manage it (gvernments, NGOs, etc.)? What are sme f the lessns learned frm ther regins? Prus brders pse a number f issues; research needs t reflect sme f the best practices f what wrks and what can be tailred fr this situatin. Haris Gazdar, Cllective fr Scial Science Research: There is a danger f the perceptin that different states are playing a zer sum game. It is useful t take it frward by placing the discussin between these three cuntries int a glbal discussin f ppulatin mvements. Pakistan and Afghanistan wuld prbably supprt each ther their ecnmies have similar features, with remittances, etc. What can we ffer the wrld? Mhammad Jalal Abbasi Shavazi, Head, University f Tehran: We talked abut cping strategies f Afghans surviving in these hst scieties; it is my persnal belief that there shuld be Afghan refugees present at this cnference (frm Pakistan, Iran). [T Dr Reza:] Instead f asking gvernments t pstpne accmmdating Afghans, yu shuld be wrking hard t bring Afghans back t Afghanistan. Yu have educated Afghans living in Iran, but they d nt have a clear idea f what is ging n in Afghanistan; they are marginalised in Iran by nt being able t buy land r build huses. Having a sense f marginalisatin, it will be difficult fr Afghan migrants, fr Iranian and Pakistani gvernments. Thse left alne (secnd generatin) d nt have any attachment t their hst cuntry. There is a need t emphasise that these peple are Afghans. The gvernment f Afghanistan needs t g t Iran t find these bright secnd-generatin students and get assistance frm the internatinal cmmunity (subsidies, husing, etc.) t entice them t return t Afghanistan. If they have been able t cpe with being marginalised in a hst cuntry, wn t they be able t use these cping strategies elsewhere? Mhammad Ibrahim Khan, Ministry f Labur, Gvernment f Pakistan: There is a generatin f Afghans wh have grwn up here are Pakistanis. If the prcess f repatriatin is delayed, they will be alien t Pakistan as well as Afghanistan. Mhammad Haider Reza, Deputy Minister fr Freign Affairs, Gvernment f Afghanistan: Brain drain is an unfrtunate cnsequence f Afghan fighting. Realistically, what gd will it d t bring large number f Afghans back t Afghanistan when we can t even prvide fr their mst basic needs? While we are trying t prepare the grund, the gvernment cannt take in and emply all these skilled peple wh wuld cme back. The private sectr needs t grw in rder t accmmdate these returnees. Reprt n the Cnference n Afghan Ppulatin Mvements page 18/37 Hliday Inn, Islamabad, 14 February 2006