NEWS BRIEFING

Immediate Release -  18^th May 1999

Humanitarian Response to Kosovo Refugee Crisis

Aid Effort In Danger of Failing

Oxfam is concerned that the aid effort in Albania and Macedonia is in grave danger of failing the Kosovan refugees it has been set up to help. Refugees’ rights to protection and humane treatment are being compromised, and conditions for many are far worse than they should be with the resources available. Oxfam believes that without a transformation in the approach of the international community, many refugees will suffer unnecessarily. UNHCR must command full leadership to co-ordinate the international aid effort, and be accountable for their performance, at the same time donors and NGO's must not indulge in unilateral initiatives but work with UNHCR to ensure that together we deliver effective protection and relief to all refugees.

The situation is at crisis point in Macedonia and has been for some time with people living in desperately over-crowded camps. Albania has accommodated over 400,000 refugees and is willing to accept more but camps are not yet ready and the numbers could increase dramatically if people move on mass from Kukes, Macedonia or Montenegro.

The pressure on refugee camps in Albania is set to increase steadily. Refugees continue to leave Kosovo, thousands are expected to move from border areas around Kukes and from Macedonia as well as people leaving the support of host families to take up places in camps. In Albania the preparation of camps is proceeding too slowly to meet the anticipated need even though Albania is seen as a solution to the desperate overcrowding in Macedonian refugee camps. There is a lack of co-ordination and coherence in the relief efforts within Macedonia and Albania. It already threatens the welfare of refugees in Macedonia and may soon affect those in Albania.

Refugees have endured increasingly overcrowded and unpleasant conditions in the camps of Macedonia for weeks. The threat of disease is ever present. The capacity of the ‘new’ camp, Cegrane, has been expanded repeatedly to maintain some spare places. It is now expected to accommodate 50,000 refugees compared to the original design in line with UNHCR guidelines to accommodate 15,000. When this camp is full there will be nowhere for new arrivals to go.

Many refugees, either resident in congested, dirty camps or new arrivals to Macedonia will continue to face a bleaker future than is necessary or acceptable. It seems unlikely that evacuation of refugees to countries outside the region will provide the best or an adequate solution except for a small fraction of the total number. Relocation of people to Albania is the expected solution yet the facilities to accommodate large numbers in Albania are not in place. Furthermore, when refugee influxes to Macedonia increase again there will be enormous pressure to speed up relocations making it difficult to ensure any protection of refugee rights, welfare or the integrity of family units.

Greater Coherence and More Co-ordination Required

There is urgent need for a better co-ordinated and more coherent response from all actors - UNHCR, aid agencies, donor governments, the governments of Macedonia and Albania and NGO’s - with UNHCR taking on and being supported in a more robust leadership role. The experience and expertise of UNHCR in responding to refugee crises is crucial to the ultimate success of the relief effort. Only by giving UNHCR the space and support to co-ordinate properly can camps be constructed in Albania to a consistent and appropriate standard, the needs of the increasing numbers met and winter prepared for properly.

Coherence

At a strategic level the aid effort should be made more effective through greater coherence in the efforts of UNHCR and governments to seek the best humanitarian solutions. Macedonia is the most pressing problem but Albania too is under great strain with refugees in the Durres region camped by roads because refugee camps are full. Given the political situation in Macedonia there is no easy solution but to date no adequate solution has manifested itself on the ground. UNHCR and western governments need to work to an agreed strategy, which meets the legitimate needs of the Macedonian government and addresses the basic rights of refugees. In Oxfam’s view this strategy should include:

 

• rapid provision of new refugee camps and transit facilities in Macedonia relieving the congestion of existing camps and meeting the needs of new arrivals on the understanding that some people will move to sites in Albania
• protection of refugees’ rights and welfare, allowing them to make an informed choice about their future, supported by increased number of UNHCR protection officers on the ground.
• urgent package of economic assistance to Macedonia and Albania so that people feel benefit from the international support promised by western governments 
• rapid provision of new refugee camps in Albania so that when people are moved from Macedonia, or move from Kukes or Montenegro, accommodation is ready for them.

Co-ordination

At an operational level there is a need for greater co-ordination between the many actors in the humanitarian response, including aid agencies, governments, NATO and UNHCR. Many donor governments for example, set up camps independent of UNHCR co-ordination, while some of these have met immediate needs and brought much benefit to refugees, a sustainable response will depend upon proper co-ordination. It is imperative for the success of the aid effort that UNHCR is genuinely the lead agency and able to function efficiently. Poor co-ordination can mean that 

• camps are not constructed with maximum efficiency, 
• camps can be set up that are not of a consistent and appropriate standard, 
• services in camps are not provided to an adequate standard, 
• insufficient capacity to maintain the camp when the implementing agency withdraws 
• planning does not ensure that future needs are met e.g. winterisation. 

UNHCR needs to be given the support of other actors, particularly governments, to take on the leadership role expected of it but must ensure that it has sufficient staff of high quality on the ground so that it can do the job required. This will include financial support from donor governments.

The Role of NATO

The Kosovo crisis has presented those trying to mount a humanitarian response with an enormous challenge in providing accommodation to huge numbers of refugees across many sites in a very short space of time. The situation is compounded, particularly in Albania, by working in a very poor country with often strained infrastructure. 

NATO offers a solution to some of the logistical, labour and transport problems and the capabilities of NATO can be harnessed with greater affect. It is crucial that NATO and member governments support UNHCR for that is where the experience and expertise lies in managing refugee crises and under their leadership the military can bring their logistical capacity and organisation to bear. UNHCR must take on a more robust and directive leadership role for this relationship to be fruitful. Oxfam shares the view expressed by Sadako Ogata recently that NATO has a role to play in the humanitarian response in the Balkans in providing airlift; logistics at ports and airports; logistics for camp construction and air transport of refugees.

Recommendations

 

1. UNHCR, western governments and the Macedonian government should adopt a shared coherent strategy to find the best humanitarian solution in Macedonia. It should balance the needs of refugees already living in congested camps as well as new arrivals with the legitimate needs of the Macedonian government. This strategy should be pursued vigorously with the Macedonian government.
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3. UNHCR’s mandated lead role in co-ordinating the humanitarian response should be respected and supported by all parties involved in the aid effort including donor governments, aid agencies and NATO. This is imperative if the aid effort is to be successful and sustainable. Proper support should include financial support in response to UNHCR’s consolidated appeal. UNHCR must ensure that they appoint sufficient staff of high quality to discharge their functions on the ground (e.g. protection officers and registration) and take on a strong and appropriate co-ordination role.
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5. The logistical capabilities of NATO should be harnessed with greater effect to urgently scale up the humanitarian response in Albania in anticipation of increasing pressure on refugee camps. This must be done under the strong leadership of UNHCR.

© Oxfam GB 1999