CONFERENCE ON POPULATION DISPLACEMENTS IN CIS REGION CONCLUDES WITH ADOPTION OF PROGRAMME OF ACTION

Press Release
REF/1145

CONFERENCE ON POPULATION DISPLACEMENTS IN CIS REGION CONCLUDES WITH ADOPTION OF PROGRAMME OF ACTION

GENEVA, 31 May (UN Information Service) -- A two-day conference on problems related to massive movements of refugees, displaced persons, economic and ecological migrants, and "returnees" in the region of the Commonwealth of Independent States (CIS) concluded this afternoon with the adoption of a Programme of Action for the CIS countries, other interested governments and international agencies.

The meeting -- formally termed "Regional Conference to Address the Problems of Refugees, Displaced Persons, Other Forms of Involuntary Displacement, and Returnees in the Countries of the Commonwealth of Independent States and Relevant Neighbouring Countries" -- was jointly sponsored by the International Organization for Migration (IOM), the Office of the United Nations High Commissioner for Refugees (UNHCR) and the Organization on Security and Cooperation in Europe (OSCE).

The Conference was first proposed by the Russian Federation at the General Assembly in 1994 in response to the effects of the collapse of the Soviet Union and related situations that have set some 9 million people in often disorderly migrations, spurred by such factors as war, ethnic conflicts and discrimination, ecological disasters and the efforts of many to return to homelands from which they were deported during the Soviet era.

The Programme of Action adopted by the Conference offers a number of principles and an institutional and operational framework for dealing with population movements. It also outlines preventive measures and guidelines for cooperation, implementation, and follow-up to events in the CIS region. The principles address internationally established standards, including the right to freedom of movement, the right to choose where to live within one's own country, the right to have a nationality, and a person's right to citizenship in a successor State. It also reaffirms a wide range of minority rights and the rights of deported peoples to return to their ancestral homes.

Two countries -- Estonia and Latvia -- expressed reservations to terms used in the Programme in connection with the protection of minorities and "involuntarily-relocating persons", claiming that they were not universally

recognized and weakened the document, applying as they did only to the CIS region.

In closing remarks, the United Nations High Commissioner for Refugees, Sadako Ogata, said it was important to continue to concentrate on the human dimension of the problems the Conference had been called to address. Rose Isakovana Otounbayeva, Co-Chairperson of the Conference and Minister for Foreign Affairs of Kyrgyzstan, said the integrated approach of the Programme of Action stemmed from the consideration that the problems caused by massive population displacements in the CIS region cut across borders and hence required comprehensive solutions that went beyond the capabilities of individual States or organizations.

Addressing the Conference this afternoon were representatives of the World Health Organization (WHO), United Nations Population Fund (UNFPA), Department of Humanitarian Affairs of the Secretariat and Office of the High Commissioner for Human Rights.

Statements were also made by representatives of the Belorussian Charitable Fund for the Children of Chernobyl, Crimea Foundation, Coordinating Council on Refugees and Exiles, Estonian Institute for Human Rights, European Council on Refugees and Exiles, Fund Against the Violation of Law, Compatriots -- Russian Fund for Assistance to Refugees, Memorial Human Rights Centre and Human Rights Watch - Helsinki, International Assembly for Human Rights Protection, International Council of Voluntary Agencies, International Commission of Jurists, International Fund "Multiple Assistance to Georgia", Open Society Institute, Pylyp Orlyk Centre for Pluralism, Tajikistan Foundation for Humanitarian Assistance and Human Rights, World Council of Churches, and World Learning.

Statements

Dr. F.S. BASSANI, of the World Health Organization (WHO), said population displacements had put an extra burden on the already precarious public health situation in the region of the CIS countries. The stark realities of environmental degradation, ecological and man-made disasters affecting a large number of those countries would have serious consequences for health and human development for years to come. Since the break-up of the Soviet Union, the WHO had been monitoring the health situation, intensifying its technical support and cooperation with the CIS countries through its regional office for Europe. In addition to the medium term programmes, the WHO had provided direct assistance in the form of emergency humanitarian intervention in the Caucasus and in central Asia. The WHO attached great importance to the success of the Conference and called on its partners to jointly renew their commitment to protect the health of all the peoples in the region.

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MARTIN GRIFFITHS, of the Department of Humanitarian Affairs, said the Department strongly supported the goal of the Conference. The programme of action was based on a well-balanced and comprehensive approach to major problems in the region. Population displacements were part of a larger situation involving humanitarian concerns, and it was laudable that countries in the region realized that and were taking a coordinated approach to face up to it. The Department had significant humanitarian involvement in the region, and planned further efforts in coordination with the programme of action.

ZDZISLAV KEDZIA, of the Office of the United Nations High Commissioner for Human Rights, said the value of the programme of action depended on the extent to which it would be utilized as a basis for further activities. For the potential of the programme to be fully realized, it was imperative that the governments of the CIS countries translated their commitments into individual and concerted action, with the support and participation of civil society and the affected populations themselves, along with the international community. There were several areas in which the Centre for Human Rights could provide assistance in the implementation of the programme. It could contribute with the provision of advisory services and technical assistance within the fields of institution-building, review of relevant legislation, and the provision of training, education and information.

D. PIEROTTI, of the United Nations Population Fund (UNFPA), said the agency had fashioned and applied several policies in the CIS region. The guidelines responded to areas of concern involving population, development strategies and reproductive health. Vulnerable populations such as migrants, the displaced, and refugees needed help in such areas as reproductive health, and an office had been set up to aid those in the CIS region. The regional support teams of the UNFPA also provided backup services, as well as a programme to facilitate provision of contraceptives in emergency situations. The UNFPA also had set up research operations on population movements in the area.

A representative of the Belarusian Charitable Fund for the Children of Chernobyl recalled that ten years after the nuclear accident at Chernobyl, some of the consequences of the tragedy had become more vivid and obvious than at the time it happened. There was the problem of the 2 million ecological migrants, internally displaced due to the radiation contamination affecting 20 per cent of the Belarusian territory. At present, Belarus was witnessing a sharp increase in immigration. Many of those migrants were refugees from the former Soviet Union republics. In the Gomel region of Belarus, several thousand refugees from those republics lived as illegal migrants, deprived of all their rights. They needed urgent social and legal protection.

A representative of the Crimea Foundation said that for deported persons from the region, who had been deprived of their fatherland for decades and

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were still victims of human rights violations, the Conference could be very important. It could establish how much their problems would be taken into account. It was encouraging to see how far the concept of deported peoples had been taken into consideration. Nonetheless, treatment of the matter should be expanded, as all that was addressed at the moment was the transport of people and their belongings. More attention was needed to prevent discrimination against such returnees, and to the re-establishment of their former cultures and the recapturing of their histories. It was important not to evade the widespread problems of such peoples. For a genuine integration of deported peoples it was important to have ratification by CIS countries of relevant International Labour Organisation (ILO) instruments. More attention needed to be focused on such matters as housing, infrastructure, and jobs for deported people. The programme of action did not assign sufficient obligations to States in those matters. Participation of non-governmental organizations representing the Crimean Tatars should be ensured under the draft programme.

A representative of the Coordinating Council of Help for Refugees and Forced Migrants said that non-governmental organizations in the Russian Federation had already begun to implement the programme of action to be adopted by the Conference, especially sections concerning self-support networks based in local communities. Such groups underscored the important role played by organizations formed by migrants themselves. From 20 to 23 April, the Council had held a Forum for Migrant Organizations in Moscow convening groups that were setting up their own businesses and settlements in various regions of Russia. Currently, there were several hundred migrants organizations, formed spontaneously in 1992. The forum had demonstrated that if migrants were received with good will, they could be a benefit, and not a burden for the Russian Federation.

MERLE HARUOJA, of the Estonian Institute for Human Rights, said Estonian migratory processes had been mostly connected with Russia. Estonia's position was that the largest mutual migratory movements related to Russia. Part of those people from Russia and third countries had entered Estonia illegally. It was extremely important to sign an agreement between Russia and Estonia on the readmission of persons residing illegally to regulate those issues. The Institute was worried about the future of indigenous people in Russia, because quite often migratory movements did not take into account the rights of such people. During migratory movements the CIS countries and relevant neighbouring States should keep a balance between the number of indigenous people and migrants to preserve the indigenous people's identities, cultures, languages, and religions. There should be greater participation of indigenous people in the planning and implementation of projects affecting them, and relevant United Nations conferences should promote and facilitate to the extent possible the effective input of their views.

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PHILIP RUDGE, of the European Council on Refugees and Exiles, said the big question was what would happen after the Conference. Participants in the Conference had spoken about resources, but that had not been a pledging conference. It was to be hoped that the countries which had spoken so supportively of the work of non-governmental organizations in the CIS region would help provide resources to such groups so that they could carry out their tasks in that important region. It was worth emphasizing that several paragraphs in the draft programme of action recognized the vital role of non- governmental organizations. The Council believed that the programme could be improved by a greater emphasis on the talents and contributions of national and local non-governmental organizations in refugee assistance, including in preventive work.

A representative of the Fund Against the Violation of Law said thousands of Armenian refugees were scattered throughout the former Soviet Union republics, including Armenia itself. Many of them had no proper housing or work. There were also refugees who were subjected to torture and other degrading punishment who should be rehabilitated wherever they lived. Rehabilitation centres had to be set up to help refugees through resettlement programmes. But most resettlement policies were not sufficiently studied or scientifically understood to be effectively implemented. Non-governmental organizations in the Russian Federation, Azerbaijan and Georgia had to begin implementing the programme of action by setting up development projects which would involve Armenian refugees.

A representative of the group Compatriots -- Russian Fund for Assistance to Refugees said the major aim of the fund was to give assistance for resettlement, employment, and reintegration of refugees. Among other activities, the Fund financed a programme now under way to build housing for 22,000 refugees in one region of Russia. A number of non-governmental organizations, State agencies, and international organizations were involved in the project. Other activities included participation in the preparation of legislation relating to refugees. The Conference should build on what had already been done; cooperation and partnership was essential. The problems of displaced persons could not be solved only by the displaced persons themselves.

SVETLANA GANNUSHKINA, of the Memorial - Human Rights Center and Human Rights Watch - Helsinki, said governments had the obligation to respond to the needs of individuals. It was inadmissible to deprive migrants through artificial impediments of their rights to free movement, the acquisition of housing, employment and education. The reception of refugees and forced migrants was to the benefit of the host country. Broad participation of non- governmental organizations was essential in the elaboration of special programmes for the integration of migrants in host countries and in the determination of legal norms concerning their status.

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A representative of International Assembly for Human Rights Protection said the Conference's draft programme of action deserved full support. However, the programme was not binding on Governments, and there was no mechanism for implementing it. It risked being an empty exercise. Implementation could not be carried out by governments alone. Success could only be achieved with full involvement of non-governmental organizations in application and monitoring. Coordination of work and exchange of experience among national non-governmental organizations was essential as the way to develop regional mechanisms to ensure the re-establishment of refugees and relocation of migrants. The International Assembly was prepared to assume responsibility for coordination. It could compile information from existing non-governmental organizations and summarize their previous work. It also could help with its own experience at settling refugees and other displaced persons. The organization would hold a workshop later in the year in Moscow, and all interested persons and organizations were invited.

A representative of the International Council of Voluntary Agencies commended the frequent references to international human rights standards and instruments as a necessary and proper basis for principles and policy. The large population movements within the CIS and between neighbouring countries had increasingly become a concern for non-governmental organizations. The UNHCR's Guidelines on Refugee Children and Women, and the recommendations of the Fourth World Conference on Women should be important guidelines to follow concerning those vulnerable groups.

A representative of the International Commission of Jurists said the organization was devoted to promoting the observance of the rule of law and the observance of human rights. Denial of human rights lay behind most population displacements. Therefore it was critical for States concerned to respect, promote, and observe human rights. No long-lasting solution could be found to population displacements if the root causes were not addressed. Human rights standards were supported in the programme of action, but implementation of such standards was critical -- it should be a priority. The Commission was concerned by the fact that not all CIS States had ratified standard international human rights instruments, including the 1951 convention on the status of refugees. The Conference should draw inspiration from broader definitions of refugees contained in that convention. The international community and non-CIS States should provide support for adequate protection of refugees, displaced persons, and returnees.

MARINA MURVANIDZE, of the International Fund Multiple Assistance For Georgia, said that owing to its geographical location, Georgia was particularly affected by both external and internal migratory flows. Georgian non-governmental organizations could usefully contribute to the application of the principles defined in the programme of action of the Conference.

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A representative of the Open Society Institute said the largest population displacement since the Second World War deserved great attention. Millions of people were on the move, quite often under duress, and the potential for further dislocations was enormous. Sadly, the official systems currently responsible for managing such movements were not able to handle the strains of such large migrations, and often they were not sympathetic to the problems and needs of the people involved. The Conference programme of action was a lofty statement of general principles rather than a practical blueprint for useful action. Strong obligations were not outlined for States. A key to successful implementation and follow-up would require establishment of an international office with a strong mandate and the power to truly coordinate work in coping with such population displacements.

A representative of the Pylyp Orlyk Centre for Pluralism said his organization believed that the practice of joint discussions and combined efforts employed by different bodies and agencies during the preparation for the Conference was in itself an essential achievement. However, it considered unjustified the notions of "region" and "regional" which had been used repeatedly in the context of the Conference. Most of the issues addressed at the gathering did not demand a specific strategy for the CIS countries. Many solutions could be found within the framework of the generally recognized international charters and other documents adopted by the United Nations, the Organization for Security and Cooperation in Europe (OSCE), the Council of Europe and others.

A representative of the Tajikistan Foundation for Humanitarian Assistance and Human Rights said Chechnya was in flames, and everyone was aware of it, but no one at the Conference had yet spoken about the Chechnyan refugee problem. The civil war in central Asia had hardly been mentioned, either, although floods of refugees were spilling over international borders there. There was a catastrophic situation for many refugees from Tajikistan, but there had been little real and effective assistance for them. Russians, Koreans and Jews had left the country because of political and interregional disputes. Tajiks had fled some regions in massive numbers and had appeared in the streets of countries of the CIS, and in some cases were driven away by tanks. Tajik refugees were not given the right to consider themselves refugees, a state of affairs that had gone on for four years. There should be equal humanitarian and legal treatment of refugees irrespective of their ethnicity or background. Hundreds of thousands of Tajik refugees looked to the Conference for help.

A representative of the World Council of Churches said that since the dissolution of the Soviet Union, Christian churches had been increasingly concerned over the population movements in the region. Those population movements affected the very life, material and spiritual, of each church. Humanitarian, pastoral and legal action taken by the churches and

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church-related organizations to attend to uprooted people had often preceded action by governments, intergovernmental agencies and non-governmental organizations. The Council believed that they could continue to make a significant contribution to the solution of the problems created by those population movements.

A representative of World Learning said that one of the merits of the programme of action was that it sought and supported cooperation between governments and non-governmental organizations. It was important, however, for there to be openness, transparency and goodwill on all sides. It was no secret that in the CIS States, non-governmental organizations were receiving increasing recognition and becoming increasingly professional in their operations. They also were beginning to raise more money and so to expand their activities. In addition, they often were the first to discern emerging problems and bring them to public attention. Mechanisms for interaction between States and such organizations were important, and systems and models should be established with vigour and care. Refugees, involuntarily relocated persons and returnees deserved greater attention from CIS States and the international community.

Explanations of Position

Following the adoption, without a vote, of the programme of action, the representative of Estonia said his delegation had reservations on some of the working definitions in paragraphs 16 and 17 of the Programme, concerning the protection of minorities and "involuntarily relocating persons". Working definitions should be universal, descriptive, and non-political. They should not be exclusively applicable to CIS countries. The terms that should be used were those that were recognized and applied everywhere.

The representative of Latvia said his country had reservations on the use of the term "involuntarily relocating persons" used in the Programme of Action. He preferred terms usually utilized to identify displaced persons.

Concluding Remarks

ROSE ISAKOVANA OTOUNBAYEVA, Co-Chairperson of the Conference and Minister for Foreign Affairs of Kyrgyzstan, in closing remarks, said the integrated approach of the programme of action stemmed from the consideration that the problems caused by massive population displacements in the CIS region cut across borders and hence required comprehensive solutions that went beyond the capabilities of individual States or organizations. The complementarity between national measures and the collective efforts of the international community was highlighted, as was the uniqueness of the cooperation established among the three organizations composing the secretariat. The

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Conference had been so useful that some felt it could serve as a model for similar initiatives in other regions of the world.

While participants had the unanimous view that main responsibility for implementing the Programme of Action lay with the CIS countries themselves, the international community should provide technical and financial assistance, she said. There was broad agreement that cooperation on migration and refugee matters needed to be strengthened at the regional and global levels. Since the cause of many of the displacements taking place in CIS countries was armed conflict, it was felt that all efforts should be made at the political level to achieve the peaceful resolution of such conflicts.

SADAKO OGATA, United Nations High Commissioner for Refugees, said the exercise of organizing the Conference had proved to be extremely challenging but also extremely useful. The international community had learned a great deal about migration and displacement in the CIS region. During consultations, a new level of understanding had been reached. A significant feat had been accomplished in drafting the Programme of Action and achieving broad consensus for it, as well as in establishing the will for implementing it.

It was important to continue to concentrate on the human dimensions of the problems the Conference had been called to address, she said. It also was a wise approach, as that was the way to achieve lasting solutions. She called on all to maintain their focus on the human dimension of the phenomena discussed.

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