Summary
Iraqi refugees are one of the largest urban populations the UN has been called on to assist. The UN reports government estimates of up to 4.8 million Iraqis displaced within the last 5 years, with 2 million fleeing, primarily to Syria and Jordan. GAO examined challenges in (1) measuring and monitoring progress in achieving U.S. goals for assisting Iraqi refugees, (2) providing humanitarian assistance to Iraqi refugees, (3) offering solutions for Iraqi refugees, and (4) developing an international strategic plan to address the Iraqi refugee situation. GAO analyzed reports and data; met with officials from the U.S. government, the UN High Commissioner for Refugees (UNHCR), international organizations, and NGOs; and did fieldwork in Jordan and Syria.
To implement its 2008 goal and objectives for Iraqi refugees, State primarily funded and monitored the efforts of its implementing partners, which include international organizations and nongovernmental organizations (NGO). These activities provided Iraqi refugees and host country populations with education, vocational training, health care, food, and financial support. However, State did not clearly link program achievements to its stated goal and objectives for Iraqi refugees. As a result, State has limited information to assess and report its progress in reaching its goal and objectives and improve program effectiveness. Insufficient numbers of staff to monitor projects, difficulties gaining access to projects and refugees, and the lack of reliable data have challenged State's efforts to ensure that projects help the intended beneficiaries. U.S. and international efforts to provide humanitarian assistance to Iraqi refugees in neighboring countries are impeded by the lack of reliable estimates on the needs of Iraqi refugees and data on the funding targeted at Iraqi refugee programs. Iraqi refugees live interspersed among the local urban populations and are not easily identified. Official government estimates on the number of Iraqi refugees in each country may be overstated. It is also difficult to determine the amount of funding provided for Iraqi refugee programs because the U.S. government and UNHCR, the largest bilateral and multilateral funding sources, do not report funding for Iraqi refugee programs separately from that provided for all Iraq-related humanitarian assistance. The U.S. government and UNHCR face challenges in offering solutions for Iraqi refugees. According to UNHCR, voluntary repatriation is the preferred solution, but conditions in Iraq are not yet suitable for Iraqis to return. According to the International Organization for Migration, the Iraqi government has cited improvements in security and offered financial incentives to returning refugee families. Although another solution is integration and settlement in host countries, Syria and Jordan consider Iraqi refugees "guests" who should return to Iraq once the security situation improves. The U.S. government has made progress in resettling Iraqi refugees under its U.S. Refugee Admissions Program, with 15,431 refugees resettled in the United States in fiscal years 2007 and 2008. According to U.S., UN, foreign government, and NGO officials, the international community lacks a comprehensive international strategy to address the Iraqi refugee situation. Although the 2009 UN Consolidated Appeal showed progress in strategic planning, the UN and international community continue to lack a longer-term approach. First, the international community lacks a comprehensive independent assessment of the needs of vulnerable Iraqi refugees and the populations that host them. Second, State, UNHCR, and NGOs do not have a strategy that addresses factors that may affect assistance efforts. Third, the international community has lacked a coordination mechanism that involves all stakeholders.
Recommendations
Our recommendations from this work are listed below with a Contact for more information. Status will change from "In process" to "Open," "Closed - implemented," or "Closed - not implemented" based on our follow up work.
Director:
Team:
Phone:
Joseph A. Christoff
Government Accountability Office: International Affairs and Trade
(202) 512-8979
Recommendations for Executive Action
Recommendation: To enhance the ability of the Department of State to evaluate and report progress toward its stated goals and objectives to assist Iraqi refugees, the Secretary of State should develop performance measures to fully assess and report progress in achieving U.S. goals and objectives for Iraqi refugees. Performance measures and indicators should be clearly linked to progress in achieving stated goals and objectives. Performance goals, objectives, and measures should clearly and transparently address the extent to which programs should target refugees and host government populations, respectively, to the extent practicable.
Agency Affected: Department of State
Status: In process
Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
Recommendation: To provide more transparency in funding provided for Iraqi refugee programs and help Congress and the Administration consider funding requests for neighboring countries, the Secretary of State and the USAID Administrator should develop systems to separately track and report funding apportioned, obligated, and expended for Iraqi refugee programs in each host country, to the extent practicable.
Agency Affected: Department of State
Status: In process
Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
Agency Affected: United States Agency for International Development
Status: In process
Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
Recommendation: To enhance the ability of the U.S. government and the international community to plan their assistance programs based on need and provide longer term solutions for Iraqi refugees, the Secretary of State should work with UNHCR and the governments of Jordan, Syria, and other relevant host governments to expedite efforts to conduct independent comprehensive assessments of the number and needs of Iraqi refugees and the related needs of the countries hosting them.
Agency Affected: Department of State
Status: In process
Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
Recommendation: To enhance the ability of the U.S. government and the international community to plan their assistance programs based on need and provide longer term solutions for Iraqi refugees, the Secretary of State should, in conjunction with relevant U. S. agencies and in coordination with the donor community, work with UNHCR and the governments of Iraq, Jordan, Syria, and other relevant host governments to build on the efforts in the 2009 UN Consolidated Appeal for Iraq and the Region and develop a comprehensive international strategy for providing assistance and solutions for Iraqi refugees.
Agency Affected: Department of State
Status: In process
Comments: When we confirm what actions the agency has taken in response to this recommendation, we will provide updated information.
