There are presently over 400,000 registered Palestinian refugees
residing in 12 official camps and a number of unofficial camps and
gatherings throughout Lebanon. These unofficial camps and
gatherings were created as a result of displacement during the 1948
war as well as by population growth. The number of registered
refugees does not account for the large numbers of unregistered
Palestinian refugees living in Lebanon who are not eligible to
receive assistance from the United Nations Relief and Work Agency
(UNRWA), the agency formed in 1949 to cater to Palestinian
refugees.
The Palestinian refugee camps in Lebanon are widely recognized as
having the worst living conditions of any of the Palestinian
refugee camps. The majority of the refugees residing in Lebanon
lack citizenship and have been marginalized from Lebanese society.
The Lebanese government has assigned them the legal status of
foreigners, which has negatively affected their rights to health
care, social services, education and property ownership. As a
result, most Palestinian refugees suffer from abject poverty and
unemployment, have little hope for their situation to improve, and
are utterly reliant on UNRWA.
The Lebanese government's rationale for its refusal to extend
citizenship status to the Palestinian refugees living within its
borders rests upon the argument that the integration of the
Palestinians into Lebanese society would negate their right of
return to a future Palestinian state, and would upset the fragile
sectarian balance upon which Lebanon's government precariously
relies. As the majority of Palestinians who sought refuge were
Muslims, their presence in Lebanon - a country divided along
religious sectarian boundaries with a great deal of tension between
Christians and Muslims - fueled much political and social turmoil.
The Palestinian refugees have been largely blamed for many of
Lebanon's ills, and they have been subjected to discrimination,
intolerance and even massacres throughout the past 60 years. Thus,
the appalling living conditions in the Palestinian refugee camps in
Lebanon are not simply the result of poor planning by UNRWA, but
the consequence of deliberate discrimination on the part of the
Lebanese government.
UNRWA, Not UNHCR
Today UNRWA remains the main agency providing basic services to the
Palestinian refugees, such as education, health, relief and social
services and emergency aid. The current number of registered
refugees under UNRWA's care has now reached over 4.4 million
people, living in 59 refugee camps in Lebanon, Jordan, Syria, the
West Bank, and the Gaza Strip. When the United Nations High
Commissioner for Refugees (UNHCR) was established in 1950, the
decision was made that UNRWA and its field of operations in the
Middle East were to be excluded from the UNHCR's mandate. As a
result, the Palestinian refugees are the only refugees in the world
who are barred from the international legal and physical protection
provided by UNHCR to refugees under its mandate; instead, they must
rely solely on their host country's policies for protection. As a
relief agency, UNRWA does not have the authority to provide the
refugees with protection of their human rights.
UNRWA is financially dependent on voluntary donations from UN donor
countries and does not receive any funding from the UN's general
funds. As a result of the rapidly increasing population of the
beneficiaries of UNRWA's aid and services, since the 1990s,
donations have not been enough to effectively sustain UNRWA's
programs, and the agency is facing severe budget cuts, especially
in educational and medical care programs. Whereas in 1975 UNRWA
spent an annual average of more than $200 per refugee, today these
figures have dropped to around $70 per refugee.
Although most of the refugees were born and raised in Lebanon, they
have been denied Lebanese citizenship - even children born to a
Lebanese mother and a Palestinian father -reflecting the fact that
Lebanon retains a patriarchal political system. The Lebanese
government treats the Palestinian refugees as second-class citizens
and has given them the legal status of foreigners. This means they
cannot attend public schools; they are denied the practice of most
professions; they are denied access to the national health care
system, and they are prohibited from owning property. This leaves
the majority of registered refugees completely dependent on UNRWA
and other NGOs.
Schooling, Job Opportunities
UNRWA administers 80 elementary and preparatory schools and only
six secondary schools for the children of registered Palestinian
refugees. UNRWA schools in Lebanon have the highest drop-out rate
among its schools in the region. The students come from extremely
destitute families, and often feel obliged to drop out so that they
can work to support their families. UNRWA classes average around 43
students per teacher, and children are forced to share desks,
books, pencils, and other educational materials, making it very
difficult for them to learn. As a result of the large number of
students compared to the number of schools, UNRWA schools operate
on a double-shift. Because their access to employment is limited,
refugee children often feel it is not worth it to continue with
school, since they would not be able to afford upper secondary
school or university. Even if they could, Lebanese law prohibits
them from working in most professions that call for an upper
secondary diploma or a university degree. Until 1992, UNRWA
provided scholarships for refugees to attend private and government
schools, but due to financial limitations, this practice was
stopped. A very limited number of university scholarships are
awarded by UNRWA to academically outstanding Palestinian refugee
students.
The Lebanese government requires Palestinians to apply for work
permits - which are rarely granted - before they are able to seek
employment. In fact, between 1982 and 1992, all Palestinian
refugees who applied for work permits were rejected. Even when they
receive a permit, the refugees are largely restricted to menial
labor in such areas as construction, electricity, sanitation,
agriculture, textiles and carpets, smelting, car wash and
lubrication. They can also work as nurses, nannies, servants and
cooks. Recent amendments to labor laws affecting Palestinians have
opened up opportunities in clerical and administrative positions,
but they remain categorically excluded from more skilled
professions, such as doctors, lawyers and business managers. As a
result, unemployment among Palestinian refugees is approximately
65% - although this estimate takes into consideration the tiny
proportion of refugees that have been given citizenship and is
closer to 90% among refugees living in official and unofficial
camps and gatherings. As for those who do work, they are still not
eligible to benefit from Lebanon's social security system.
Health Care, Property Ownership, Documentation
Lebanon has the highest percentage of Palestinian refugees living
in utter absolute poverty among those registered with UNRWA's
special hardship program. This program targets refugee families
that subsist on the meager food rations provided by UNRWA. Fifty
percent of households are living on the equivalent of less than $2
per person per day. This percentage is much higher than that in
Jordan and Syria, even though Lebanon has the highest per-capita
national income among the three countries.
Since they are unable to afford private medical care and are not
offered public health care by the Lebanese government, most
Palestinian refugees rely on the 25 primary health care facilities
administered by UNRWA. Child and adult health among these refugees
is significantly poorer than that of Palestinian refugees in
Jordan, Syria or the Palestinian territories. Similarly, infant,
child and maternal mortality rates and the number of refugees
suffering from disabilities, mental health problems, malnutrition
and chronic illnesses such as hypertension, cancer and diabetes is
also much higher in Lebanon. It is not uncommon for Lebanese
hospitals to deny emergency services to Palestinian refugees, even
when UNRWA clinics are incapable of treating their specific
condition. Palestinian refugees surveyed in Lebanon have reported
that the health services they receive, specifically from UNRWA, are
unacceptable, citing poor hygiene, inadequately trained personnel,
and insufficient medical attention. This has to do with the fact
that UNRWA's clinics have a very low doctor-patient ratio; the
doctors see around 80 patients per doctor per day.
In 2002 the national property law in Lebanon was amended, legally
barring "non-Lebanese persons, who do not possess citizenship
issued by a state recognized by Lebanon, to inherit or buy
property" - a law that obviously targets the stateless
Palestinians. This law has to do with Lebanon's regulations
pertaining to Palestinians becoming formally integrated into
Lebanese society. Thus, Palestinian refugees are prohibited from
owning property or even passing previously-owned property down to
non-immediate family members. In fact, when a Palestinian refugee
dies, his/her property becomes the possession of the Lebanese
government.
Collapsed Infrastructure, Insalubrious Living Conditions
During the Lebanese civil war, over three-quarters of the refugee
camps' infrastructure and facilities were damaged. While there has
been some reconstruction, the Lebanese government has placed severe
restrictions on the rebuilding of camps and prohibited their
expansion to meet the needs of the population, which has grown
four-fold since 1948. Regulations exist even on bringing building
materials into the camps for the purpose of repair, expansion or
renovation. Penalties for disregarding this law have included
fines, imprisonment and the demolition of the newly built rooms or
floors.
The 3,000 to 5,000 Palestinian refugees who are not registered with
either UNRWA or the Lebanese government face even worse violations
of their human rights. They are considered to be illegal residents
and lack identity documents, which puts severe restrictions on
their freedom of movement because documentation is required at the
checkpoints in and out of the camps and around the country.
Consequently, many fear they will be arrested upon leaving the
camps and cannot work. Lack of documentation also means that having
marriages registered by the government is extremely difficult. Even
if a non-registered refugee marries a registered refugee, the
marriage often stays unrecognized and their children cannot be
registered. Additionally, they are not eligible to receive
educational, medical or social services from UNRWA.
According to UNRWA, "all 12 official refugee camps in [Lebanon]
suffer from serious problems - no proper infrastructure,
overcrowding, poverty and unemployment." The Lebanese civil war
left a crumbling infrastructure that has become extremely unsafe
and highly susceptible to structural collapse. Because of
restrictions on horizontal building, Palestinian refugees have been
forced to build vertically, and the alleyways between buildings
have become narrower and darker. Within the alleyways, a hazardous
tangled web of exposed electrical wires can be found. The houses
are typically built of either concrete blocks or corrugated metal
sheets and suffer from numerous indoor environmental problems,
including difficult temperature regulation, weak ventilation, mold
and dampness. Cracks in walls and ceilings allow for seepage and
for cockroaches and other pests to infest the homes. These indoor
living conditions are positively correlated with a number of
illnesses, including dizziness, headaches, eye and skin irritation,
asthma, upper respiratory tract infections and an increase in the
incidence of cardiovascular diseases.
Housing units are tremendously overcrowded. According to UNRWA,
over 210,000 refugees are living in camps designed to provide
accommodation to no more than 50,000 persons. Overcrowding is
associated with acute respiratory infections, mental health
disorders in children and young adults, and household accidents,
such as burns and scalding, cuts, falls and other injuries. As a
result of the lack of space, there are very few playgrounds and
parks for children to play in; most of the time children play in
the streets, in alleyways and in damaged and abandoned buildings,
which exposes them to a multitude of dangers.
Access to piped drinking water, adequate sanitation and electricity
is also severely limited. For those who do have running water,
sanitation, or both, their water supply is cut off on an almost
weekly basis. Piped drinking water is often unsafe because most
camps still use a water distribution network that was largely
destroyed during the Lebanese civil war, and the damaged, corroded,
and contaminated pipes have not been replaced or properly
rehabilitated. Although the majority of refugee households have
electricity, most experience daily power cuts.
The Lebanese government prohibits the connection of the camps'
sewage system with those of municipalities close by. This isolation
has meant that the camps have been denied the benefits of Lebanon's
extensive post-war infrastructure restoration efforts. Thus, in
more than half of the Palestinian refugee households, UNRWA is
relied upon as the sole provider of sewage network connection,
while 14% of households do not have any sewage connection
whatsoever. Open sewers as well as open drainage ditches filled
with garbage and stagnant water are commonly found in the refugee
camps and gatherings.
The Lebanese government does not provide garbage collection in the
refugee camps, either and, in most cases, garbage collection
services are provided by UNRWA or by the NGOs operating in the
camps. However, this collection is infrequent, and one can often
find enormous garbage heaps adjacent to the dwellings. Residents
often complain about the sewage and garbage smells that pervade the
camps. These conditions encourage infestation by
disease-transmitting organisms, such as mosquitoes, lice, flies,
fleas, mice and rats.
Systematic Discrimination, but Some Hope?
It is difficult to deny that the Palestinian refugees living in
Lebanon have been subjected to systematic discrimination and to the
violation of their basic human rights. The Palestinian refugees
have been forced into abject poverty by the Lebanese government's
denial of their rights to remunerated employment, social security,
public health care, public education and property ownership. The
argument that Palestinian integration into Lebanese society would
either cause them to lose their right of return or would upset
Lebanon's sectarian balance is just a pretext the Lebanese
government uses to discriminate against the Palestinians, whom many
Lebanese blame for causing the Lebanese civil war. The Palestinian
refugees are not asking for citizenship; they are simply asking to
be afforded the rights given to other refugees around the
world.
Some recent developments suggest that change is possible. In 2005,
a Lebanese-Palestinian Dialogue Committee was established with the
objective of improving the living conditions of the Palestinian
refugees. Not much has been achieved so far, save for a slight
amendment in 2005 to Lebanon's labor laws pertaining to the
Palestinian refugees, allowing those refugees born in Lebanon to
work in some manual and clerical jobs from which they had
previously been barred, increasing the number of potential jobs
from 20 to 50. Recent clashes between the Lebanese army and the
Islamist group Fatah al-Islam in the Nahr el-Bared refugee camp
have led to the complete destruction of the camp's infrastructure
and water and sewage systems. While this conflict has led to the
further displacement of Palestinian refugees and the deaths of
Palestinian civilians, it has brought some officials in the
Lebanese government to the realization that Lebanon's security
demands a revision of its discriminatory policies against the
Palestinians. This is evidenced by the unprecedented collaboration
of the Lebanese government in efforts to secure funding for the
rebuilding of Nahr el-Bared camp. In September 2007, at a donors'
conference in Beirut, Lebanese Prime Minister Fouad Siniora made an
appeal to international donors for $400 million for the rebuilding
of Nahr el-Bared, acknowledging that "failing to rebuild Nahr
el-Bared will mean catastrophic consequences. We cannot risk chaos
and violence in any of Lebanon's 11 other camps. If we fail to
rebuild, it will not only be tragic, but the dangers will be
limitless. This was a wake-up call." While the possibility that a
complete re-evaluation of the discriminatory policies is slim,
these recent developments represent a positive change and provide
some hope that, in the future, justice will prevail for the
Palestinian refugees.
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