World Refugee Day
As the UNHCR and Nepal government begin planning for transition from humanitarian to development operations in Bhutanese refugee camps, lack of conceptual clarity and finances could undermine their efforts

A number of projects are being discussed to address the needs of Bhutanese refugees and host communities in Jhapa and Morang, signalling a willingness on the part of the international community and Nepal government to turn page on the 20-year-old refugee saga.

It was earlier this year that substantive consultations were held between the government and UNHCR on a new plan—a Community-Based Development Programme (CBDP)—providing development and livelihood assistance to both locals and refugees.

The declining refugee population and the knowledge that a vast majority will be relocated has changed the refugee dynamic—making way for ambitious initiatives to create more social cohesion among locals and refugees. The UNHCR and international community are looking to shift gears from humanitarian to development operations that would benefit both the remaining refugees and the host communities numbering around 235,000 in three VDCs and nine Municipalities. The idea is to phase down UNHCR's role gradually, while Nepal government and its line agencies scale up their presence and role.

UNHCR officials say that they will continue to remain engaged as long as there are refugees. “We want to see progressive involvement of development actors in a region that has paid a heavy price,” says UNHCR's Country Representative Stephane Jaquemet, referring to the strain on environment, resources and infrastructures incurred by the refugees.

By the middle of the 2015, the refugee population will be around 10,000, according to UNHCR. At the current acceptance rate of refugees applying for resettlement and with no ceiling placed by the US, a couple thousand more may be resettled. The international community, particularly UNHCR, is pinning hopes on the assumption that once the number of refugees is significantly reduced, Bhutan can be persuaded to accept voluntary repatriation. Even Western diplomats report that the new Bhutanese leadership is more open about accepting responsibility for the refugees, though they are also quick to caution that power in Thimpu is still in the hands of the old elite.

It is clear that a few thousand will be left behind in camps even if Bhutan decides to offer a token repatriation. Some may not choose to go back. Once the international community feels that resettlement and repatriation options have been exhausted, they would logically begin lobbying for local integration of the refugees as a part of burden-sharing. So far, Nepali officials have supported repatriation, while refusing to discuss the issue of local assimilation.

The CBDP is expected to ensure equal access for refugees and locals to legal rights and public services as well as “mainstreaming refugee issues into the planning cycle of the government.” But this is where the project could hit a wall.

Nepal is neither a signatory to the 1951 Convention on Refugees, nor does it have domestic refugee legislation. This legislation, if introduced, would surely raise eyebrows amid our neighbours—the two economic giants in the region. Until now, the government has been operating on an ad hoc basis.

Another hurdle would be securing funding for projects costing millions of dollars. UNHCR has put aside some seed money from its annual budget in Nepal, but donor fatigue is already apparent. And local communities have also grown impatient, often making unreasonable demands. The Joint Assessment Needs exercise conducted in the camps and communities may have already raised expectations.

Last month, locals in Goldhap blocked all access to the camp, demanding compensation for the strain caused by refugees on the environment and resources. They'd become restive after learning that the refugees were being relocated and the camp was closing.

Locals are clearly ambivalent—while they want the refugees gone, they also fear a withdrawal effect on the local economy. CBDP, if implemented, certainly appears to be the right kind of solution to the problem.

“We are ready to take calculated risks and put in place mechanisms to properly address those risks,” says Jaquemet. “What we are proposing is the only way to close the Bhutanese refugee chapter in a respectful and dignified way.”

Published on: 18 June 2011 | The Kathmandu Post