by Rhodri C. Williams
The Norwegian Refugee Council (NRC) just released a substantial study I wrote for them on the right to security of tenure and how it relates to interim shelter needs and long-term durable solutions for both refugees and internally displaced persons (IDPs). It is a long read, but I would recommend it to those interested in these topics as my most comprehensive attempt to date to articulate the legal and policy dynamics of this important emerging area of humanitarian practice.
The background analysis in the study picks up on themes I developed earlier with regard to Liberia (also for the NRC), as well as Serbia (for the Brookings Institution) and Iraq (for the US Institute of Peace). These include the need for humanitarian actors to continue their engagement with both human rights and development discourses related to access to housing and security of tenure. The nexus with human rights emerges clearly from the moment of displacement, given the increasing trend (as reflected in the Sphere Standards) toward aligning humanitarian shelter provision with the human right to adequate housing. In accordance with commonly accepted understandings of this right, this means that even transitional shelter should meet basic standards of adequacy and be provided in a manner that ensures an appropriate level of tenure security to its occupants.
Meanwhile, the nexus with development standards relates to the insight that an increasing number of both refugees and IDPs find themselves in situations of protracted displacement. As a result (and as described in my earlier study on Serbia), measures to provide interim shelter solutions for displaced persons may quickly take on a de facto permanent character, and should often be planned with this eventuality in mind. This implies that pro-poor urban development standards (such as those developed by UN-HABITAT) should be applied wherever possible to allow the community-driven upgrading of IDP and refugee settlements. It also implies that development standards regarding involuntary resettlement should complement human rights standards in guaranteeing legal security of tenure for the displaced.
In the current NRC study, the case studies chosen related to Palestinian refugees in Lebanon as well as IDPs in Georgia. Application of the relevant standards on tenure security is difficult in both cases, but for entirely different reasons. In the case of Lebanon, refugees do not (unlike IDPs) enjoy a right to seek local integration as a durable solution. However, the particular political sensitivities in Lebanon have led to a situation in which efforts to prevent local integration have led to restrictions in areas such as access to housing that cannot easily be reconciled with the country’s international obligations.
In the case of Georgian IDPs, there has been a determined and ambitious effort to facilitate integration in a manner that does not foreclose the eventual possibility of property restitution and return. However, significant complications have arisen in part because this program has been aligned with a broader attempt to privatize state-owned property. This has led to some some difficulties in a program to allow IDPs to buy the shelter allotted to them in buildings subject to privatization as well as questions regarding what can be done for the large proportion of IDPs still sheltered in private accommodation.
It is important to recognize the initiative of the NRC, and particularly its Information, Counseling and Legal Assistance (ICLA) program, in driving these issues forward. The ICLA program has in many respects led the way in terms of seeking effective property remedies for the displaced in the field, and have now pivoted quickly to address new concerns related to tenure security where such remedies are not forthcoming. As always, I benefited a great deal from the insights and hospitality of my NRC colleagues while preparing this report, and it is my fond hope that some of them will guest-post on TN soon with both updates on the specific case-studies covered in the report and comments about their other ongoing initiatives in the area of housing, land and property rights.
World Bank urged to stand firm on land-related rights violations in Cambodia
by Rhodri C. Williams
As reliably as the annual arrival of the wet season, the protracted struggle over who controls Cambodia’s land has entered into another one of its hot phases. On one side, local communities supported by a coalition of national and international NGOs continue to defend their rights to land and homes they have built their lives around. On the other side, the Cambodian authorities continue to almost ostentatiously prioritize the interests of international investors over those of their own constituencies. The latest salvo takes the form of an open letter to the World Bank signed by over 100 civil society organizations urging incoming President Jim Yong Kim to continue his predecessor Robert Zoellick’s firm stance on forced evictions.
The arrest and sentencing of the BKL 15 (most got over two years on trumped up charges) is the latest phase of a long-running controversy that first led the Cambodian government break off its long-running cooperation with the World Bank on land registration, and then saw the World Bank take a principled stand in favor of meaningful reform. The twists and turns of the BKL affair are lucidly presented in Natalie Bugalski and David Pred’s guest-post earlier this week. They have also been the topic of past postings on TN that documented:
The concerns expressed in the current open letter relate to signs that the World Bank is considering withdrawing its freeze on funding new projects in Cambodia. In earlier statements, the Bank had asserted that it would not resume funding until “an agreement is reached with the residents of Boeung Kak Lake”. However, while the Government’s earlier grant of title to BKL holdouts represents a significant breakthrough, it does not apply to as many as 85% of the residents of the neighborhood forced out under extreme duress earlier. And as noted in the open letter, the entire BKL community has demonstrated exemplary solidarity, with current title beneficiaries continuing to hold out for an “agreement” that does not exclude their less fortunate former neighbors.
At a broader level, one might wonder whether even a full resolution of the now notorious BKL issue alone should be seen as sufficient, particularly in light of the Bank’s association with an earlier joint call by Cambodian development partners for a general moratorium on urban evictions. On the other hand, full satisfaction for BKL’s battered residents would have tremendous symbolic value. As demonstrated by NGO statements in support of the open letter, BKL has taken on regional, if not global significance as a concerted stand against arbitrary government land takings. Meanwhile, the Government’s paranoid reaction to attempts by the human rights group Licadho to speak with the BKL 15 at Prey Sar prison demonstrate that it is well aware of the symbolic power of this case:
As noted previously in this blog, the World Bank does not enjoy exclusive or unlimited power to shape Cambodian policy, nor should it. However, recent events have demonstrated that the Cambodian government does consider the resources that the Bank provides worth an occasional policy shift. It would be a shame – and a mistake – for the Bank to needlessly cash in its chips before seeing the Government’s hand.
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Posted in Commentary
Tagged Cambodia, forced evictions, housing, human rights, tenure security, World Bank