Commissioner-General Says Palestine Refugee Agency Could Not Get More Equitable Share of Regular Budget, as Fourth Committee Begins General Debate on Its Work
In spite of broad support from Member States, the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) had been unable to gain access to a more equitable share of the United Nations regular budget, its Commissioner-General told the Fourth Committee (Special Political and Decolonization) today.
As the Committee began its consideration of that Agency’s work, Commissioner-General Pierre Krähenbühl said that progress had been made on plans to establish a World Bank trust fund for UNRWA, but it could not access to more of the United Nations budget. However, the Agency would continue to diversify the voluntary donor base, he said, adding that he was encouraged by efforts under way to improve its financial stability. Unfortunately, the remaining critical deficit of $77 million threatened to suspend vital programmes, he warned, urging collective action to address the shortfall
In spite of hardships, UNRWA continued to provide vital services and to achieve results, he continued. Key reforms had been carried out as part of the medium-term strategy for 2016-2012, including the transition from distributing food in bulk to using e-cards and cash vouchers. Furthermore, the Agency would begin the roll-out of its microfinance programme in the course of 2017. That would expand the number and type of loans available and broaden the range of clients, he said, adding that medical procurement had also been overhauled. Those reforms had saved $81 million in 2017.
He went on to state that Palestine refugees found themselves at a truly difficult juncture. “We cannot be indifferent to their pain and suffering,” he said. “We must ensure that their plight is not forgotten in a world affected by so many other situations of armed conflict and crises.” Conditions in refugee camps in the West Bank were dire and the blockade of the Gaza Strip had led to the world’s highest unemployment rates, a lack of electricity and clean water, and a scarcity of life-saving medical services, he said, adding that the conflict in Syria had splintered the once close-knit refugee community there.
Among other remaining challenges remained was the safety of locally recruited staff — some of whom had been killed amid the violence in Syria and Gaza — which was crucial for the proper functioning of UNRWA, he emphasized. Neutrality was also key to the integrity of its operations. The Agency would continue to diversify the voluntary donor base, and efforts under way to move towards improved financial stability were encouraging. Unfortunately, however, there remained a critical shortfall of $77 million, which threatened to suspend vital programmes, he said, urging collective action to address the shortage.
Kjetil J. Halvorsen (Norway), Rapporteur of the Working Group on the Financing of UNRWA, presented that panel’s report, noting that while several donors had come forward with additional contributions, a gap remained to be bridged. He urged Governments to increase and sustain their voluntary contributions so they could keep pace with the Agency’s mission to meet the growing needs of the Palestine refugee population.
With the floor open for the general debate, the observer for the State of Palestine said one delegation continued to oppose any action towards a regular budget allocation for UNRWA. As such, no understanding could be reached on allowing progress towards larger assessed contributions to fund essential operating costs. Reiterating appeals to all donor States for voluntary contributions, which continued to form the bulk of the Agency’s funding, she also expressed support for efforts to expand the donor base and develop innovative partnerships.
Jordan’s representative emphasized that temporary solutions would not suffice. At a time when human suffering, instability and violent extremism in the Middle East were on the rise, the Agency was a pillar of stability for more than 5 million Palestine refugees, and must be provided with the necessary funding to continue its vital work, he stressed, warning that failure to do so would impact the entire region.
Also speaking today were representatives of Turkey, Israel, Egypt, Indonesia, Nicaragua, Malaysia, Bahrain, Venezuela (on behalf of the Non-Aligned Movement), Ecuador, Iran, Qatar and Thailand, as well as an observer for the European Union delegation.
The Fourth Committee will reconvene at 10 a.m. on Monday, 6 November, to conclude its general debate on the work of UNRWA.
Opening Statements
RAFAEL DARÍO RAMÍREZ CARREÑO (Venezuela), Chair of the Fourth Committee, said the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) was mandated to provide assistance to more than 5.3 million eligible Palestine refugees, who now accounted for approximately 25 per cent of all refugees around the world. Today, the Agency was confronted with a funding shortfall of $77.5 million, which jeopardized its ability to provide core services. Amid conflict in Syria, the blockade and repeated upsurges of violence in Gaza, UNRWA continued to provide services and humanitarian and development programmes that helped many refugees escape poverty, he said, underlining that its accomplishments should not be taken for granted because it faced formidable challenges, working in one of the world’s most polarized and conflict-affected regions. The Secretary-General’s 2017 report emphasized UNRWA’s indispensable role and identified measures to ensure that its funding was sufficient, predictable and sustained for the duration of its mandate, he noted.
PIERRE KRÄHENBÜHL, Commissioner-General of the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA), said the mobilization of diplomatic and political support for the Agency in 2017 had set crucial milestones and deepened its engagement with both close partners and Member States. However, Palestinians had marked 50 years of Israeli occupation in June, and found themselves at a truly difficult juncture. “We cannot be indifferent to their pain and suffering,” he emphasized. “We must ensure that their plight is not forgotten in a world affected by so many other situations of armed conflict and crises.” Conditions in West Bank refugee camps were dire and the blockade of the Gaza Strip had led to the world’s highest unemployment rates, a scarcity of electricity and clean water, and a lack of life-saving medical services.
The conflict in Syria had splintered the once close-knit refugee community, with 120,000 having left the country, he said, adding that, of the 440,000 remaining in Syria, 95 per cent depended on UNRWA for survival. Against that backdrop of severe hardship, the Agency continued to obtain results. With 515,000 children enrolled in UNRWA’s basic education system, the Agency was equipping a generation of refugees with the knowledge and skills to lead productive lives, he said, adding that girls, empowered by the gender balance in UNRWA’s 700 schools, were among the best performers. The Agency’s primary health-care system had reinvented itself in five years and UNRWA had helped 85,000 families in Gaza to rebuild their shelters. Sustaining those achievements in the face of rising costs was a priority challenge, he stressed. Key reforms had been carried out as part of the Medium Term Strategy for 2016-2012, he said. They included the transition from distributing food in bulk to using e-cards and cash vouchers.
UNRWA would begin rolling out its microfinance programme in the course of 2017, he said. That would expand the number and types of loans available while widening the range of clients. Medical procurement had also been overhauled. Those reforms had saved $81 million in 2017, he said, while cautioning that challenges remained. The safety of locally recruited staff, some of whom had been killed in the violence in Syria and Gaza, was crucial for the proper functioning of UNRWA. Neutrality was also key for the integrity of its operations, and something for which the Agency had striven through its policies, protocols and swift actions. Regarding the Agency’s financial health, he said progress was being made on plans to establish a World Bank trust fund for UNRWA, but it had been unable to gain access to a more equitable share of the United Nations budget, in spite of the very broad support of Member States. UNRWA would continue to diversify the voluntary donor base, he said, adding that he was encouraged by efforts under way to improve its financial stability. Unfortunately, the remaining critical deficit of $77 million threatened to suspend vital programmes, he warned, urging collective action to address the shortfall.
Interactive Dialogue
The representative of Turkey, noting that a consultation process had recommended the creation of a trust fund and an endowment fund, said her country had recently contributed an additional $100,000. She asked how Member States could help the Agency make those two funds a reality.
The representative of Israel said the Agency’s report detailed the situation in the Gaza Strip but made only one reference to Hamas, whereas in other situations, it had referred to the group as the de facto authorities. That decision raised questions about the report’s credibility, she said. She detailed examples of analysis by United Nations officials and agencies of the impact of Hamas on Gaza, and asked whether the Commissioner-General considered Hamas irrelevant to the enclave’s situation. She recalled that Israel had shared information in 2016 about an UNRWA staff member elected to the so-called political bureau of Hamas, and that another UNRWA staffer had been elected recently. Describing that so-called political bureau as part of the militant and terrorist activities of Hamas, she emphasized that those cases should have been mentioned in the 2016 report. A recent discovery indicated that Hamas had built a maze of tunnels to exploit civilian infrastructure and use innocent civilians as human shields, she said, asking what specific actions the Agency had taken to ensure that trend did not continue. Recalling that the Commissioner-General’s official statement about the incident in October had not referred to Hamas, she said the report also ignored the reasons for the cost of monitoring checkpoints. The decision to ignore security concerns and threats to Israel cast doubt on UNRWA’s impartiality, she stressed.
The representative of Egypt asked the Commissioner-General to share his views on the challenges and limitations facing the Mid-Term Strategy and how the Agency could overcome them. He also asked the Commissioner-General to elaborate on the new Protection Division and about the current literacy rate among Palestine refugee children. How did it compare to literacy rates among countries on a similar level of development?
The representative of Indonesia, noting the rapidly deteriorating humanitarian situation in Gaza, asked about the wider imperative — reversing the enclave’s current development trajectory and accelerating its reconstruction efforts.
The observer for the State of Palestine said that in spite of the immense challenges that UNRWA faced, including persistent under-funding and the security conditions affecting its ability to respond to needs, it nevertheless continued to develop programmes affecting the lives of Palestine refugees. Commending its services in education, training and other enrichment programmes for young people, she noted their documented multiplier effect and called upon donors to support such projects. She also asked about UNRWA’s current and forthcoming initiatives for youth.
Mr. KRÄHENBÜHL, Commissioner-General, responded to Turkey’s representative by expressing appreciation for that country’s contribution, and explained that the World Bank had required a first donor to come forward for the initiative to become operational. If a new partner were to step forward, the effort could move into a more concrete phase with the World Bank, he added.
Turning to the representative of Israel, he said UNRWA had been very clear about its condemnations of the Hamas tunnels. UNRWA would always make its own assessment of how best to formulate its statements, but it had been very explicit about condemning Hamas over the tunnels, he stressed. As for measures to prevent such actions, the Agency bore no responsibility and had condemned the construction of tunnels beneath its schools, which constituted a violation of the inviolability of United Nations installations in Gaza. He reiterated that he was on record about those and other condemnations in the past.
Concerning the staff members mentioned, he said he was prepared to receive any information about inappropriate behaviour in respect of neutrality obligations by staff, whether Palestinian or international. Of course, UNRWA could never act on information received from a single stakeholder, but it would carry out independent investigation to review such matters, he said, stressing that the Agency had taken decisive measures in the situation at hand and those staff members no longer worked for UNRWA.
Turning to the costs associated with monitoring checkpoints, he insisted that the situation applying to Israel or any other actor was reconciling its own security interests with international humanitarian law. The question was whether that reconciliation avoided collective punishment when so many could not travel out of Gaza.
In response to the representative of Egypt, he said the biggest challenge in implementing a medium-term strategy was that one did not know whether funding was sufficient for the coming two weeks. That was the antithesis to strategic planning, he said, stressing: “Every single month you have to wonder if you will survive the next cash-flow crisis.” Moreover, the refugee community was itself incredibly sensitive to that uncertainty and reacted to any changes introduced. As for the Protection Division, he confirmed its existence, saying it was seen as reinforcing an important component of the Agency’s work. The literacy rate was universal, at above 90 per cent, which was remarkable given Gaza’s adverse conditions.
Responding to the representative of Indonesia, he said it was very clear that the Israeli-Palestinian conflict and the blockade on Gaza were at the heart of the issue. In 2000, some 80,000 people had been on UNRWA’s food-distribution list, but today, it distributed food to 950,000 people because entire sectors of the economy were deeply affected when Palestinian entrepreneurs and businesses could no longer export goods. None of the observed parameters in Gaza were reconcilable with the legitimate security concerns of anyone in the region, he emphasized. He also underlined the importance of psychosocial deterioration as a very serious indicator that could not be addressed in the absence of a political solution.
Responding to the observer for the State of Palestine, he said more could be done for young people, particularly by convening student parliaments at different levels. The first Agency-wide student parliament would soon be established, he reported, adding that 100 students had been brought out of Gaza to visit such sites as Jenin and Nablus. Student parliamentarians were very important because they cared about other students, he said, emphasizing that engaging young people was a very strong investment in their future prospects and in the region’s stability and dignity.
The representative of Nicaragua asked how UNRWA assessed the effectiveness of its work in pursuing its humanitarian goals.
The representative of Malaysia asked what efforts and initiatives were being pursued in addressing the needs of young Palestinians, especially in Syria and Lebanon.
The representative of Bahrain asked how the Agency carried out its work when facing such restricted access. What alternative tactics did it pursue to carry out its objectives?
The representative of Venezuela asked how the blockade and collective punishment affected UNRWA’s work and requested additional information on the social humanitarian situation in Gaza. What had been the most devastating effects? He also asked whether donor countries ever gave conditions for their contributions.
The representative of Ecuador asked what, given the critical funding shortfall, the strategic plan would be for 2018.
The representative of Iran asked whether, in light of the General Assembly resolution on additional financing of UNRWA, there had been any progress in increasing its funding through the regular United Nations budget.
The representative of Egypt asked whether predictable and reliable funding would save money in the long term, and whether certain parties who often requested that UNRWA stay within budget would be interested in guaranteeing funds to the Agency if that were the case.
The representative of Israel reiterated, in response to the Commissioner General’s earlier reply, her question about UNRWA’S strategy given that it had not strongly condemned the terror tunnel that Hamas had built under one of its schools.
Mr. KRÄHENBÜHL, Commissioner-General, said in reply to the representative of Nicaragua, that UNRWA was mandated regionally, so it was critically important to connect and intersect with the global agenda. The Sustainable Development Goals were an important opportunity to pursue intersections. UNRWA staff would continue to interact and cooperate with colleagues in New York to see how their respective goals could connect with and contribute to one another, he said, adding that he viewed the Agency’s contribution as vital to attaining the Sustainable Development Goals.
In reply to Malaysia, he said that before the conflict in Syria, the Palestine refugee population there had mostly been able to cover their basic needs. UNRWA had serviced a relatively low number then, but 95 per cent of the remaining refugees now depended on the Agency. One key question for Palestine refugees was whether their residential areas would become inhabitable again. Lebanon was a unique case because such a high percentage of refugees lacked access to employment there. Given the differing circumstances, it was important to analyse the unique situation in each area that would prevent refugees from supporting themselves.
Replying to Bahrain, he cited the example of the UNRWA’s operations in Syria, where it was unable to reach between 30,000 to and 33,000 people due to the presence of armed groups and other security considerations. However, one of UNRWA’s most significant assets was its prolonged organizational presence in the region, he said, pointing out that a pre-existing presence at the time of crisis had made it better placed to respond.
In response to Venezuela, he said UNRWA had the benefit of more than 12,000 staff members in Gaza. The challenge came up during times of conflict and in circumstances like that of the tunnels, which could threaten the Agency’s activities and tarnish its reputation, he said. One of the key challenges was to bring goods into Gaza, but UNRWA had established a strong and well-tested ability to do that. He recalled having asked the Israeli authorities repeatedly whether there had ever been an instance of UNRWA materials being funnelled into nefarious activities, and the answer had been “no”. He noted that sometimes funding was not earmarked and sometimes conditions were attached. In general, however, the Agency was in a good relationship with the donor community.
Responding to Ecuador, he said the Agency was in the final stages of budget definition and would not allow the shortfall projected for 2017 to grow. For that reason, the pursuit of additional funding was of crucial importance, he said, emphasizing that inconsistency of services was not an option.
He went on to state, in response to Iran, that there used to be a broader diversity of donations from Member States, and encouraged a move back in that direction. Assessed contributions alone would never be enough to address the funding shortfalls anyway, he said, noting that it would be helpful if UNRWA was able to use general budget funds for more than just international staff costs.
In response to Egypt, he said he did not expect ever to be in a situation of financial comfort because the global need for humanitarian assistance was so huge. Of course, it would significantly reduce the anxiety of Palestine refugees, which was a desirable outcome. Operational reserves were a critical need for an organization like UNRWA, which currently had none, he said. It was serious that the Agency could not plan ahead when it serviced more that 5 million people, he added. That created a strategic problem of very serious proportions.
Responding again to the representative of Israel, he said he was keen to sit down with her in a bilateral meeting to discuss those issues further. There were a number of parameters to consider in a humanitarian situation, he said, and one of the unique features of humanitarian law was that it applied to all equally, without regard for political considerations. Under the Geneva Convention, the law of occupation was clearly outlined and it imposed obligations on the occupying Power.
KJETIL J. HALVORSEN (Norway), Rapporteur of the Working Group on the Financing of the United Nations Relief and Works Agency for Palestine Refugees in the Near East, introduced that panel’s report (document A/72/326). Recalling that the Working Group had met four times before adopting the report in August, he said that in spite of its efforts to improve the cost-effectiveness of UNRWA’s programmes, the 2017 budgetary shortfall stood at $77.5 million. Gaps remained, even after additional donor contributions, he added, urging all Governments to increase and sustain their voluntary contributions to the Agency where possible.
He also urged Governments to make contributions to UNRWA’s three funding portals, as described in the report, while taking into account the primary importance of full funding for its programme budget, first and foremost. Government contributions should keep pace with the Agency’s efforts to meet the growing needs of the Palestine refugee population, and take into account the effects of inflation and other factors driving the costs of providing services, he said. He called on Member States to accompany UNRWA’s efforts to contain its costs with adequate funding to continue its vital work.
General Debate
FEDA ABDELHADY-NASSER, observer for the State of Palestine, noted that the commemoration of 70 years since the General Assembly’s partition of Palestine would be observed on 29 November. “It is clear that neither sympathetic words, nor humanitarian aid alone, can suffice,” she emphasized, calling for a solution that would restore long-denied rights to the Palestinian people, including Palestine refugees. Israel’s denial of those rights — including the rights to return and to compensation — had forced generations to endure years of exile and dispossession, hardship, deprivation and cycles of violent conflict as well as repeated displacement, she said. Constituting nearly 25 per cent of the world’s refugee population, more than 5.3 million Palestine refugees were registered with UNRWA in Jordan, Lebanon, Syria and the State of Palestine, including East Jerusalem, she noted. Under the pressure of an ever-worsening humanitarian situation and rising aid dependency in Gaza, the coping capacities of refugees there had been severely depleted, “as have the hopes and dreams of an entire generation of youth”.
Regarding the West Bank, including East Jerusalem, she said the refugee community there, particularly Bedouins, were enduring all the occupation’s brutalities, including violent military raids and attacks by settlers, forced displacement, demolition of homes and other actions. In Syria, Palestine refugees had suffered acutely the conflict’s impact, further displacement and fragile humanitarian conditions alongside the rest of the civilian population. In Lebanon, the most vulnerable of Palestine refugees continued to struggle with abject poverty, marginalization and lack of opportunity in some camps. Even in Jordan, where the situation was most stable, negative socioeconomic conditions affected the refugee population. She deplored, in particular, the lack of accountability for Israel’s violations during its 2014 military aggression against Gaza, which had caused the destruction of UNRWA facilities as well as death and injury to innocent Palestinians.
On UNRWA’s funding shortfall, she recalled that despite serous efforts that had resulted in the draft resolution on UNRWA, one delegation continued to oppose any action on the United Nations regular budget allocation to the Agency. While unable to reach an understanding that would enable progress towards larger assessed contributions to the Agency for essential operating costs beyond international staff, the State of Palestine continued its efforts, with concerned partners, to implement the report’s other central recommendations, reflected in the draft resolution on the operations of UNRWA. Reiterating appeals to all donor States for voluntary contributions, she said they continued to form the bulk of the Agency’s funding, adding that her delegation supported efforts to expand UNRWA’s donor base and develop innovative partnerships.
HENRY ALFREDO SUÁREZ MORENO (Venezuela), speaking on behalf of the Non-Aligned Movement, reaffirmed support for the Agency’s mandate, which remained fully valid and indispensable until a peaceful solution to the question of Palestine had been achieved. At the same time, the international community must ensure the continuity of services UNRWA provided. He expressed grave concern about Palestinian refugees facing widespread violence and poverty and was alarmed by recent developments in East Jerusalem, including the increase in forced displacement, settler violence and the demolition of homes. Turning to the crisis in Gaza, he said the issue must be addressed in accordance with international humanitarian law and relevant United Nations resolutions to bring an end to the occupation. Similarly, the illegal Gaza blockade must be immediately lifted, which would be the only way for the population to decrease its dependency on the Agency. Commending the Agency’s efforts to provide assistance to Palestinian refugees despite prevailing difficulties, he called for a just solution to meet the legitimate rights of the Palestinian people towards achieving a lasting and comprehensive peace.
PIERRE-CHRISTOPHE CHATZISAVAS, European Union delegation, said UNRWA’s estimated $77 million shortfall continued to jeopardize its essential and core services to Palestine refugees. Further efforts were urgently needed to improve cost efficiency and the delivery of core services to the most vulnerable Palestinian refugees, he said, emphasizing the need for greater financial burden-sharing among all actors, including regional donors, and for more flexible financing, in line with the “Grand Bargain”.
Mr. AL-MALKI (Qatar), associating himself with the Non-Aligned Movement, emphasized that his country had been among the first to provide humanitarian assistance to Palestinians, having contributed $1 billion for the reconstruction of Gaza at the Cairo Conference. Palestinian refugees counted on UNRWA, whose services were needed because of the blockade on Gaza. The Agency continued to lack financing, which had affected all its programmes and projects, and he stressed the importance of both ensuring predictable financing and enabling better funding means. In 2016, Qatar had donated $1 billion to the UNRWA budget for education and youth programmes, among other activities.
SONIA ISHAQ AHMAD SUGHAYAR (Jordan) highlighted UNRWA’s crucial role in providing essential services for Palestinian refugees. Its humanitarian role should not be hostage to interrupted funding, which had a negative impact on the continuity of services, nor should it be politicized. The international community should shoulder the burden with the Agency and host countries to provide the necessary care and services for Palestinian refugees.
She encouraged donor countries to increase their voluntary contributions and to commit them on the basis of multi-year funding, noting that the donor base should be broadened and deepened. As the largest host of Palestinian refugees, Jordan was committed to the protection of that population and welcomed the potential of new funding from the World Bank and the Organization of the Islamic Cooperation (OIC). Jordan would also follow up on the Abidjan resolution on the establishment of a fund by OIC for Palestinian refugees as soon as the Islamic Development Bank prepared a study for that purpose. At a time when human suffering, instability and violent extremism in the Middle East were on the rise, temporary solutions would not suffice, she said, calling the Agency a pillar of stability for more than 5 million Palestinian refugees. It must be provided with the funding to continue its vital work, as a failure to do so would impact the entire region.
VIRACHAI PLASAI (Thailand), noting with concern URWRA’s critical financial situation as a result of underfunding and lack of security in terms of budget allocation, called for adequate, timely and predictable resources that would enable the Agency to carry out its mandate in a sustainable manner. Recalling the unfortunate situation in the last session relating to the draft on funding, he said that it had undermined the Agency’s efforts to meet the needs of a people already in dire straits. Noting Thailand’s financial contributions to the Agency, including, in 2014, to the Gaza Flash Appeal, he said the best cure for the Palestinian humanitarian crisis was to end the conflict itself.
HOSSEIN MALEKI (Iran) said his delegation was gravely concerned over the worsening situation of Palestinian refugees, especially due to the ongoing occupation and blockade, which adversely affected their daily lives. The illegal and inhumane Israeli blockade had spanned many years, he said, calling for an immediate end to that measure. He called on the international community and the United Nations to uphold their moral, political and legal responsibilities to put an end to the occupation in Palestine.