1.
Counting, registering and documenting
refugees and other forcibly displaced populations is a core activity of the
United Nations High Commissioner for Refugees (UNHCR) to protect, assist and
find durable solutions for these groups. The 1951 United Nations convention
relating to the status of refugees makes various references to the importance
of these processes for the protection of refugees. Without an adequate
numerical basis, the provision of assistance is not possible and international
protection cannot be assured.
2.
In the first part, this note describes
refugee census and registration activities.
After stressing the importance of these activities for refugee
protection and assistance and the different forms that registration may take,
it discusses the main features of refugee registration and compares them with
the national population census. The
second part of this note focuses on recent experiences in dealing with refugee
matters in the context of population census activities.
3.
Refugee enumeration is important, if not
critical, at every stage of the “refugee cycle”, from initial displacement to
voluntary repatriation, local integration or resettlement. In every “new” refugee situation, the call
for a comprehensive census or registration is made early on by all UNHCR operational
partners, including governments and non-governmental organizations (NGOs). Although not possible during the first
stages of an emergency, the census becomes a critical operational requirement
once the situation has stabilized.
During the course of the refugee situation, the refugee registration or
census is often periodically repeated and forms the basis for many of the
services extended to refugees. Once
repatriation becomes feasible, refugee enumeration gains new momentum with a
view to planning and implementing return and reintegration activities.
4.
Refugee enumeration activities may take
different forms, depending on the needs, the conditions, resources, the
capacity of the host country and so forth.
As such, it is difficult to describe the basic characteristics of a
refugee registration. A critical factor
determining the data-collection process is host-country capacity. In countries with limited national capacity,
UNHCR may be de facto responsible for the enumeration process, whereas in countries
with more developed statistical systems, UNHCR’s role may be limited to
co-funding, advice or covering only a portion of the refugee population.
5.
The possible shape of a refugee
registration can be illustrated by the following diagram. The vertical axis
represents the capacity of the host country, whereas the horizontal axis
indicates the nature of the registration process, ranging from a purely
census-type activity to a full-fledged registration system. Registrations in refugee camps located in
sub-Saharan Africa countries are typically located in the lower right
quadrant. Conversely, industrialized
countries covering refugees in their national census are located in the upper
right quadrant.
6.
Although this note focuses on census and
registration, it should be stressed that other mechanisms are used to collect
information on refugees. For instance,
if the sex and age distribution of the refugee population cannot be derived
from the registration, a sample survey is often carried out to establish the basic
demographic composition. Indeed,
surveys often represent a cheap alternative data-collection mechanism for
planning purposes. If, however,
individual data are required, surveys are not an appropriate method of data
collection.
7.
One of the main UNHCR activities is to
register refugees on an individual basis.
Recording the names and basic characteristics ensures that refugees are
known to UNHCR and thus can benefit from international protection and
assistance. During a typical
registration, a registration form is filled out for each refugee family and a
refugee card is distributed. As
registration information is automated, an increasing amount of refugee data,
statistics and information is becoming available from UNHCR offices across the
world. Whereas records of individual
refugees are protected, aggregate data can be tabulated much more easily once
available in electronic form.
8.
Identification is an important component
of refugee registration. Without some
form of screening or identification, it is not possible to issue refugee cards,
a process referred to as documentation. The refugee card is used for protection
(the card bearer has been identified by the government or UNHCR as a refugee)
and assistance (the card provides access to benefits and services)
purposes. The refugee registration data
are used for many purposes, including planning (aggregate data) and
implementing (individual and aggregate data) programmes.
9.
The main challenge of any refugee registration
is to keep the records up to date, reflecting all increases and decreases in
the population. Once the individual
data have been collected, it is essential that demographic (births, deaths,
arrivals, departures) and legal (cessation, naturalization, etc.) changes are
reflected. In view of the high mobility
of refugee populations, it is often not possible to reflect all changes. Indeed, a large new influx of refugees may
require a complete overhaul of the existing registration system. Registration
also becomes less accurate over time because of the fact that additions to the
population (births, new arrivals) are much better reflected than decreases
(deaths, departures). In many refugee camps, where the registration is directly
linked to individual benefits, the registration system also becomes more
inflated over time. In short, a refugee
registration needs to be repeated periodically.
10.
The above description indicates that a
refugee registration contains both census and registration elements. The following table summarizes some major
differences and commonalities between a population census and refugee
registration.
|
Subject/purpose
|
Population
census
|
Refugee
registration
|
|
Coverage
|
100%
|
100%
|
|
Scale
|
Nationwide
|
Generally <500,000
|
|
Criteria for inclusion
|
Presence
|
Identified as a refugee
|
|
Frequency
|
Once per 5-10 yr.
|
Often annually
|
|
Data-collection period
|
One day
|
Often one day
|
|
Updating of data
|
No
|
Yes/partial
|
|
Issuance of documentation
|
No
|
Yes
|
|
Individual data created/used
|
No
|
Yes
|
|
Aggregate data created/used
|
Yes
|
Yes
|
a. Coverage
11.
In principle, a refugee census covers all
refugees. To ensure the fullest
possible coverage, information campaigns are essential. Considering the important benefits (protection
and assistance), refugees are generally interested in registering. In fact, there is strong pressure on the
registration system for multiple registration.
b. Scale
12.
The target refugee population is often
below half a million persons, although a larger population is possible.
c. Criteria for inclusion
13.
To be included in the registration, a
refugee should be identified as being a refugee. This process is often referred to as screening: to the extent
possible, local residents and others who are not eligible are screened out
during the registration process. The
screening process is often rather rudimentary considering that both refugees
and local residents in developing countries often lack identity documents. This difficulty is further compounded if
refugees are of the same ethnic origin as the local population. Although refugee status determination is, in
principle, based on an individual screening process, refugees fleeing “en
masse” are generally considered refugees on a group or prima facie basis. Until individual screening becomes possible,
such persons are assumed to be refugees on the basis of purely objective
criteria, such as having left the country as part of a group, during the same
period and because of the same events.
d. Frequency
14.
Because of the rapidly changing nature of
refugee populations combined with the pressures on the system for individual
registration, a refugee registration often has to be repeated. Although a standard frequency does not
exist, major refugee camps are often re-registered once a year.
e. Data-collection period
15.
While smaller refugee registration
systems, such as in urban areas, are maintained and updated on a continuous
basis, larger populations are generally registered during a very limited time
period, often one day. At this
occasion, all previously issued refugee documents are cancelled and new
documents are distributed. This is a
major incentive for refugees to come forward and to re-register. Depending on the quality of the existing
registration system, a re-registration may either “start from scratch” or
consist of a verification of existing records and a “revalidation” of refugee
cards.
f. Updating of data
16.
This is a very important aspect of any
refugee registration. Considering that
one of the main purposes of registration is to create individual records, the
maintenance of such records is essential to retain their credibility.
g. Issuance of documentation
17.
During the registration process, when the
individual data are recorded, a card is often issued to the refugee or his/her
family. The link between the record and card is ensured through the
registration card number. Documentation
is critical for refugees to demonstrate to the authorities in the asylum
country that they are refugees and to protect them against “refoulement” or
forcible return to their own country.
The card also provides refugees access to essential services. As such, refugee identification (ID) cards
represent a considerable value and are subject to illegal transfers.
h. Individual data created/used
18.
The creation of an individual record
which can be used subsequently is one of the main purposes of refugee
registration. This is one of the key
differences between refugee registration and a population census, where the creation
of an individual record for future use is legally prohibited.
i. Aggregate data created/used
19.
The creation of statistical tabulations
is the main objective of a population census, to be used for planning and
resource allocation purposes. However,
this is generally considered less important during a refugee registration,
mainly because refugee data become quickly outdated. Consequently, the planning of international assistance to
refugees is often not only based on the results of the registration, but also
takes into account assumptions with regard to new arrivals or departures during
the planning period. In the absence of
registration—e.g., during emergencies—planning assumptions are generally based
on population estimates. In this
context, it should be stressed that planning of refugee services requires two
sets of data. First, the total size of
the population is needed and second, basic population characteristics should be
available.
20.
While, in principle, the above
considerations also apply to the registration of internally displaced persons
(IDP), in reality IDP registration occurs much less frequently and the results
are often contested. One of the few
regions where IDP registration is carried out fairly regularly is in the
countries of the former Yugoslavia and in the Commonwealth of Independent
States. In these countries, the
national IDP registration is based on national legislation and linked to
provision of (limited) state benefits.
In other countries, IDP registration figures are either highly disputed
(e.g., Colombia or Sri Lanka) or non-existent (sub-Saharan Africa).
21.
There are a number of reasons for the
qualitative differences between the registration of refugees and of internally
displaced. First, IDPs have much less motivation to register. From the viewpoint of international
protection, refugees have significantly more rights than internally displaced
persons. Both legally and in practice, it is much more difficult to provide
protection to IDPs within their own country as compared with refugees who have
crossed an international border. From
the viewpoint of assistance, refugee programmes generally offer regular
benefits and services whereas aid to IDPs tends to be more ad hoc. Second,
internal displacement tends to be more dynamic than international displacement.
Whereas refugee situations become stable following a crisis situation, IDPs
tend to return to their place of origin much earlier. Third, by crossing an international border, refugees become of
interest to the asylum country.
Registration and documentation are essential tools for the receiving
country to control immigration.
Internally displaced persons, who by definition have not crossed an
international border, are not subject to any migration controls. Registration requirements for the purpose of
movement within a country are significantly less than for the purpose of
immigration.
22.
In countries with a sizeable refugee
population, the census constitutes a unique opportunity to validate existing
refugee enumeration systems. At
present, however, no international recommendations exist for governments to
deal with asylum-seekers or refugees in the national population census. While a proposal to this end was made by
UNHCR to the Statistical Commission in the mid-1990s, this has yet to be
reflected in the UN census recommendations.
23.
During the 2000 round of censuses, a
number of countries have planned or implemented a refugee question in the
national population census, including Uganda, Zambia, countries of the
Commonwealth of Independent States, countries in former Yugoslavia, Sri Lanka
and Switzerland. Generally, countries
interested in including refugees in the census approach UNHCR for advice and
support.
24.
The pressure to identify and enumerate
refugees is not limited to the context of the national population census,
however. The past few years have
witnessed a strong increase in official registration activities of nationals
and non-nationals and the issuance of identity documents by governments in
developing countries. The introduction
of such systems requires the proper identification of all foreigners, including
refugees. Countries which have
approached UNHCR for assistance in the national registration of refugees as
part of the introduction of a national ID card system include Kenya and the
Islamic Republic of Iran.
25.
There are two major issues when providing
guidance and support to countries interested in including refugee and asylum
issues in the national population census.
First, refugees should in principle be counted during the census. If the census is to cover the total de facto
resident population in the country, refugees should also be included. Too often, refugees are not counted in the
census because they form a “special category”.
Second, countries should be encouraged to add a question for foreigners
regarding the reason for staying in the host country. Currently, population censuses establish only the number of
non-nationals and/or foreign-born persons in the country, not whether these
foreigners have entered for the purpose of labour migration, immigration/settlement,
study, refugee protection/asylum, as dependants or for family
reunification/formation purposes.
26.
In this context, it should be recalled
that one of the main reasons for issuing the new UN recommendations on
international migration statistics was precisely to elucidate the reason for
stay. As traditional international
migration statistics often do not reveal the types of migrant, the purpose or
reason for stay became one of the main organizing principles of the new
statistical recommendations. By adding a question on the reason for stay, the
census will be able to help bridge this important gap in international
migration data.
27.
Using the national population census to
elucidate the reason for staying in the country is particularly relevant in
Europe, where data by type of migration are mostly lacking. Policy makers at the national and the
international level consider the absence of comparable information on the
reason to stay as one of the biggest limitations of currently available
population statistics. Considering the
importance of population registers in this part of the world, this type of
information should also be made available from the national population
registers and included in any international recommendations governing these
systems.
