The United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) is a specialised UN agency dedicated to providing support for the relief and human development of Palestinian refugees. UNRWA's mandate extends to Palestinians displaced by the 1948 Palestine War and subsequent conflicts, along with their descendants, including legally adopted children. As of 2019, UNRWA has registered more than 5.6 million Palestinians as refugees, actively addressing their humanitarian needs and fostering development in the region.
What is UNRWA?
The UNRWA was established in 1949 by the UN General Assembly (UNGA) to provide relief to all refugees resulting from the 1948 conflict, including Jewish and Arab Palestine refugees within the State of Israel until 1952. As a subsidiary body of the UNGA, UNRWA's mandate is subject to periodic renewal every three years and has consistently been extended since its founding, most recently until June 30, 2026.
UNRWA, with over 30,000 employees, primarily Palestinian refugees and a small number of international staff, was initially focused on providing employment and direct relief. However, its mandate has broadened to include education, healthcare, and social services. Operating in Jordan, Lebanon, Syria, the Gaza Strip, and the West Bank (including East Jerusalem), UNRWA exclusively assists Palestinian refugees, while the United Nations High Commissioner for Refugees (UNHCR) aids Palestinian refugees outside these areas and all other refugees globally.
Unlike UNRWA, UNHCR has a specific mandate to assist refugees in eliminating their refugee status through local integration, resettlement in a third country, or repatriation when possible. In recent years, UNRWA has faced controversy related to its role in the Gaza Strip and its association with Hamas. The suspension of funding by major Western donors, including the United States and the United Kingdom, followed allegations of UNRWA employees' involvement in the October 7 attacks, leading to layoffs and investigations.
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UNRWA Funding
The allocation of UNRWA's budget is determined by the UN General Assembly, primarily funded through voluntary contributions from UN member states. A substantial portion of its financial support is derived from the regular UN budget, specifically earmarked for international staffing expenses. Beyond its routine funding, UNRWA secures resources for unforeseen crises and special initiatives, such as those arising from the Syrian civil conflict and the global COVID-19 outbreak.
In the past, the bulk of the agency's finances originated from the United States and the European Commission. In 2019, nearly 60% of the $1.00 billion total pledge came from EU nations, led by Germany as the foremost contributor. Subsequent major donors included the EU, United Kingdom, Sweden, and the United Arab Emirates, followed by Saudi Arabia, France, Japan, Qatar, and the Netherlands. Collaborative ventures with non-governmental donors, including nonprofit national committees in donor nations, further supplement UNRWA's funding streams.
The voluntary nature of UNRWA's funding has, on occasion, resulted in financial challenges, particularly during acute emergencies or shifts in political landscapes in donor countries. In 2009, officials described a dire financial crisis, marked by a $200 million shortfall following the Israeli offensive in Gaza. The U.S. decision to halt contributions in August 2018, asserting a need to narrow UNRWA's mandate, led to a $300 million loss, contributing to an overall deficit of $446 million, which was offset by increased contributions from other sources.
Mid-2019 witnessed the temporary suspension of funding by the Netherlands, Belgium, and Switzerland to UNRWA, citing an ethics report highlighting mismanagement, corruption, and discrimination within the agency's leadership. By December 2019, the Netherlands had reinstated funding, raising its contribution by €6 million for the year to reach €19 million. The EU and Germany also increased their financial commitments, with the latter agreeing to fund four new UNRWA projects totalling €59 million. Qatar augmented its donation for Palestinians in Syria by $20.7 million, resulting in a 2019 total of $40 million.
The funding scenario for 2019 and beyond was deliberated in a Ministerial Strategic Dialogue in April, attended by representatives from several countries and organisations. A high-level ministerial meeting addressing UNRWA funding took place at the annual General Assembly meeting that year. In July 2020, Commissioner-General Lazzarini raised concerns about the sustainability of UNRWA's budget, citing shortfalls in four of the preceding five years and funding reaching its lowest point since 2012. As per the World Bank, Gaza and the West Bank received a per capita aid budget over double that of the next largest recipient among countries receiving more than $2 billion in international aid in 2012, amounting to $495.
According to UNRWA's official website, in 2022, the agency's resource mobilisation efforts resulted in a total pledged amount of US$ 1.17 billion, inclusive of the UN Secretariat's regular budget support for international staff. Private partnerships contributed an additional US$ 15.4 million in 2022, emphasising the pivotal role individuals play, especially during emergencies, in addressing the needs of Palestine refugees.
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UNRWA History
In the aftermath of the 1948 Arab-Israeli War and the ensuing displacement of Palestinian Arabs, the United Nations General Assembly took decisive action by passing Resolution 212 (III) on 19 November 1948. This resolution marked the establishment of the UN Relief for Palestine Refugees (UNRPR), aimed at delivering emergency relief to Palestine refugees in coordination with other UN or humanitarian agencies. Responding to the multifaceted dimensions of the conflict, less than a month later, the General Assembly adopted Resolution 194. This resolution gave rise to the United Nations Conciliation Commission for Palestine (UNCCP), tasked with facilitating a final settlement between the warring parties. The commission's responsibilities included overseeing the repatriation, resettlement, and economic and social rehabilitation of the refugees, in collaboration with the UNRPR. At that juncture, the conflict had uprooted over 700,000 individuals.
UNRWA subsequently succeeded the UNRPR, assuming a more expansive mandate focused on humanitarian assistance and development, coupled with a commitment to impartiality. Commencing its operations in 1950, the initial scope of UNRWA's work centred on direct relief and works programmes designed to address the immediate needs of Palestine refugees and forestall conditions of starvation and distress. Simultaneously, the organisation aimed to foster conditions of peace and stability. The evolution of UNRWA's mandate gained momentum through Resolution 393(V) on 2 December 1950, directing the agency to establish a reintegration fund. This fund was earmarked for the permanent re-establishment of refugees to transition them away from relief dependency. In a subsequent resolution dated 26 January 1952, a significant allocation of resources—four times more than for relief efforts—was earmarked for reintegration. UNRWA was further instructed to sustain its provision of programs in healthcare, education, and general welfare.
UNRWA Leaders
On 18 March 2020, Mr Philippe Lazzarini was appointed Under-Secretary-General of the United Nations and Commissioner-General of the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) by United Nations Secretary-General António Guterres. Before his appointment to UNRWA, Mr Lazzarini served, from August 2015, as the Deputy UN Special Coordinator (UNSCOL) and as the Resident and Humanitarian Coordinator for Lebanon.
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