III. INTERNATIONAL INVOLVEMENT

 

STATEMENT OF PRINCE SADRUDDIN AGHA KHAN, UN HIGH
COMMISSIONER FOR REFUGEES, AT THE MEETING OF THE EXECUTIVE
COMMITTEE OF UNHCR HELD IN GENEVA

October 4, 1971

 

Mr. Chairman, half a century after the inception of International refugee work by. Fridtj of Nansen, and twenty years after my office embarked upon a challenging task of solving refugee problem, it is painful for me to have to report that the world refugee situation has, if anything, become grimmer and increasingly explosive. Year after year, we have lived with the idealistic hope that the humanitarian work of UNHCR, would cure the disease of refugee problems. It is symptomatic that this year when observing our twentieth anniversary, present events remind us of the harsh and sad realities of a world in turmoil which is far from meeting our hopes. The plight of vast masses of refugees is not past history; it remains very much a current phenomenon.

 

While the basic structure of UNHCR has remained the same, the problem of uprooted people throughout the world has greatly developed in dimensions and in variety. As a result of the ever-changing nature of the situation of displaced persons, my office has been called upon increasingly to perform functions not foreseen when its original mandate was evolved. The^, use of UNHCR's "Good offices " role is a natural by-product of this evolution. By striving to promote rapid solutions to refugee problems, UNHCR surely contributes to the lessening of tensions between states. The more a situation is complex and loaded with political overtones, the more we are required to be flexible in our work and diplomatic in - our approach. While determination of refugee status remains a matter for the host country to decide upon, we must spare no effort to alleviate human suffering.

 

Although it is heartening to recall such highly successful operations as the repatriation of Nigerian children or the usual work carried out in delicate political, social and economic conditions in African countries and many others in various parts of the world, it is nonetheless both alarming and tragic to note that these successes are dwarfed by a challenge of unprecedented magnitude that this year has brought with it for the international community and which preoccupies you all as much, I am sure, as it preoccupies me: I am now thinking of the gigantic and cruel problem of displaced persons from East Pakistan in India and other neighbouring states.

 

After the events of last March in East Pakistan, the Government of India, faced with a sudden and most serious influx of East Pakistanis into its territory, requested the Secretary-General on April 23, 1971, to make available necessary assistance from the United Nations in order to alleviate the suffering of this mass of refugees and to case the burden on the Indian economy which their presence inevitably carried in its wake. This request was brought to the attention of all Heads of United Nations Agencies and Programmes at a meeting of the adminis­trative committee on co-ordination presided by U-Thant at Berne on April 26 and 27. It was clear during this meeting that a problem of this magnitude required a concerned and co-ordinated effort of all members of the United Nations system. The varied and colossal nature of immediate relief measures-be it food, shelter or medical care-was such that it was far beyond the financial or technical means of UNHCR alone. The Secretary-General was therefore convinced of the need to step up a mechanism of co-ordination without delay. His decision was also in line with the thinking of the Government of India which, in its request, addressed itself to the whole United Nations system. After consultations with all executive heads, the Secretary-General decided on April 29 that the High Commis­sioner for Refugees should act as the Focal Point for the co-ordination of assistance from the United Nations. By then, the increasingly large numbers of refugees were already imposing great sacrifices on India and its administration, and many more were yet to come.

 

Immediately after assuming these additional functions, I sent to India a team of three senior staff members headed by the Deputy High Commissioner to investigate and assess the situation. A succinct report of the findings of this mission was made available to Governments. An analysis of the situation and of the views of the two Governments principally concerned, that is to say India and Pakistan, made it clear from the beginning that the United Nations action was to concentrate upon two things: First, urgent relief measures for refugees in India and whenever possible, promotion of their voluntary repatriation, which was generally agreed to be the only lasting solution to the problem. Consequently, on May 19, 1971, the Secretary-General launched an appeal for assistance to East Pakistani refugees. Whilst emphasizing his deep concern for their plight, U-Thant expressed the hope that these refugees would be "voluntarily repatriated at the earliest possible time", I indicated that, " pending such repatriation, massive external assistance will be required on an emergency basis" and appealed " to governments, inter-governmental and non-governmental organisations, as well as private sources, to help meet the urgent needs".

 

I have actively followed up this appeal, and I am gratified to say that the response of the international community has been generous though it may yet seem inadequate in relation to India's needs. I should like to avail myself of this opportunity to express my gratitude and appreciation of,all donor governments and non-governmental organisations and voluntary organisations which, so speedily, made available contributions in cash and kind. While it is heartening to note that the response of the international community to this refugee problem has been of unprecedented magnitude-with contributions in cash and in kind amounting to date to some 115 million dollars-1 must emphasize that much more is still required. I intend making available shortly to all governments a detailed account of priority needs for their immediate attention.

 

As for the actual mechanism of the Focal Point, immediately after assuming these responsibilities I set up in Geneva a standing inter-agency consultation unit. Its task is, first to mobilise and secure international support and contributions; second to arrange for the procurement of supplies in a co-ordinated manner and to deliver the supplies in India; third to maintain close liaison with the Government of India. Parallel to this consultation unit, the Government of India has set up in Delhi a co-ordinating committee where all operational Ministries of the Central Government as well as the United Nations Agencies directly interested are represented. This double mechanism, in Geneva and in Delhi, for consultation on and co-ordi­nation of all activities is yielding positive results to the satisfaction of all concerned. I wish here to extend my warmest appreciation to the specialised agencies of the United Nations system for their immediate response and effective co-operation.

 

I should like to stress, for better understanding of the combined efforts in this situation, that this new United Nations role is not an operational one. We have subscribed to the express wishes of the Government of India and left the operational responsibility to the authorities. The Focal Point, consequently, does not have any operational staff in the field. My representative in India, Mr. Jamieson, who is well known to you, and his focal point team, act essentially as a liaison and co-ordination link and their duty station is Delhi, though they frequently visit the States where the refugees are concentrated. The responsibility of the United Nations system is restricted to taking action at international level for raising funds for assistance and contributions in kind: to channel these to the Government of India and to co-ordinate activities as regards their use in order that the Focal Point may be able, with the help of the Government of India, to give a satisfactory account of the use of their contributions to the donors. The most significant characteristic of this non-operational role is that it goes against the danger of the institutionalization of refugee camps and limits the threat of this United Nations operation becoming yet another permanent political and economic burden on the international community. The principal incentive must remain the promoting of conditions leading rapidly to a permanent solution. Being non-operational on the other hand, it is relatively less easy to report on and have readily available all details relevant to the assistance measures taken. It is difficult to neglect this aspect of the work in view of the natural desire of donors to receive full satisfac­tion that their contributions have been used to the maximum benefit of recipients. This being said, I cannot express sufficient admiration for the countless men and women of India who are joining together against frightening odds to bring succour to the refugees.

 

As for the overall assessment of the situation, I need hardly point out, particularly to this committee, that relief measures now being provided in India will never be a solution in itself. What is eventually going to happen to these suffering masses of displaced persons? As is already recognised, it is the expressed wish of both the Government of India and the Government of Pakistan that these refugees be repatriated. You are aware that in refugee situations voluntary repatriation has traditionally served as the best solution. UNHCR has had recourse to this in many countries all over the world. I should point out, however, that UNHCR achieved results because there was a consensus of opinion between the host country and the country of origin and both sides agreed not only on the solution but also on modalities leading to this solution. In our past experience, if and when a settlement had occurred in the country of origin, a system of mutual co-operation and help was established with the active participation of UNHCR which facilitated repatriation. Until this stage is reached, substantial and well organised repatriation cannot be a success and the trend is difficult to reverse. It is with this in mind that I established contact with the Government of Pakistan at a very early stage. The Government extended full co-operation and agreed to the stationing of a UNHCR representative in East Pakistan who is now working and has a small team of field assistants. His activities are closely co-ordinated with the United Nations East Pakistan relief operation. The Government of Pakistan has set up reception centres in order to receive refugees and facilitate their return to their homesteads and those are visited regularly by UNHCR.

 

Mr. Chairman, I have had myself occasion to visit both India and Pakistan in order to make a personal assessment on the spot and to consult with the two Governments regarding the situation which is causing so much concern not only to both of them but also to the whole international community. I proceeded not only to the two capitals and had discussions at the highest level but also saw the border areas on both sides. In India, I visited some refugee camps and in Pakistan, some reception centres.

 

The situation remains very grim indeed and demands much greater effort and more generosity on the part of the international community. Interest must not slacken and apathy should not set in. The recent floods have had a devastating effect on the camps, and distribution problems as a result of the floods have added a new dimension to this tragedy. The fragile health of the young and old will be further affected.

 

I have given a very limited account of UNHCR's role as Focal Point and of the magnitude of the task which confronts us. The information paper which is being made available will give you the updated details. Whilst no solution is yet in sight for this refugee problem, we must clearly not allow it to detract or monopolize our attention from other refugees in other parts of the world, and particularly in Africa where progress has been achieved.

 

 

 

 

Source: Bangladesh Documents, vol – II, p. 88 – 91