Weaponizing refugees
Beyond the headlines on Syria’s refugee crisis, a more sinister development involving displaced people has emerged in the country’s civil war. Fighting on behalf of the Assad regime, the Liwa Fatemiyoun is a Shia militia overwhelmingly composed of Afghan refugees who sought shelter in Iran during the 1980s. Since 2015, Tehran has recruited several thousand members of this community for its war effort in Syria, offering “high wages and residence permits for […] families [of fighters].” In so doing, the Iranian government has exploited the dire living conditions Afghan refugees on Iranian soil contend with. The plight of Afghans in Iran is a fate that many refugees in protracted refugee situations face.[*] A lack of perspective has made these populations easy targets of instrumentalization for political and military purposes.
Protracted refugee situations have proliferated in recent years and put strain on the international refugee regime. Mainly due to a spread of conflicts around the world, the number of refugees has significantly increased over the past two decades. At the same time, the successes in ceasing hostilities and enabling a safe return of displaced people to their homes have diminished. As a consequence, more and more refugees find themselves in situations of prolonged exile; as of 2016, some 12 million out of the 22.5 million refugees under UNHCR mandate lived in protracted refugee situations.
The international refugee regime is not able to cope with this development. Established after World War II to primarily address emergency situations, the current framework focuses on immediate humanitarian assistance for war-affected people and repatriation as well as resettlement efforts. In light of continuous conflict in many regions and little global willingness to resettle refugees, the regime has no adequate instruments to serve people in situations of prolonged exile. This leaves millions of refugees in limbo, with no prospects of a worthwhile future.
This situation has become a source of political instability and conflict. Disenfranchised and marginalized populations are susceptible to violent extremism. Terrorist groups and non-state actors such as the Palestinian PLO have a history of recruiting in refugee camps. More recently, states have started exploit the desperation of refugees in situations of prolonged exile. Iran established the approximately 12,000 to 14,000 men strong Afghan Liwa Fatemiyoun to support its war efforts in Syria.
Faced with great poverty and often threatened with deportation, Afghans as young as 14 have been pressured to join the militia in return for residency permits and a stable income (the Afghan community in Iran consists of refugees who fled their homeland during the 1980s Afghan-Soviet war). These refugee soldiers serve as ‘cheap’ shock troops who bear the brunt of Iran’s military actions in Syria. The instrumentalization of displaced people has thus reached a new level of intensity: host states entrusted with providing secure environments for refugees are now forcing displaced people to serve as combatants in conflicts they are not party to.
The case of the Liwa Fatemiyoun not only sheds light on Tehran’s ruthless foreign policy but also highlights that the international community must alter its approach towards protracted refugee situations. Despite being a signatory to the 1951 Refugee Convention, Iran does not shy away from exploiting its refugees, who are utilized to cause human misery and more displacement in Syria.
The current refugee regime has developed into a mere administrator of unending crisis situations. These act as breeding grounds for perpetuating conflict. To overcome this vicious cycle and sustainably tackle sources of global instability, the international community must seek to fully integrate refugees in host countries and offer support in form of comprehensive development programs. These efforts will be pricey, but change is necessary. Only then, the Liwa Fatemiyoun will remain an isolated incident and not become a blueprint for future instrumentalization of refugees.
[*] The UNHCR defines protracted refugee situations as situations where refugees have been in exile “for five or more years after their initial displacement, without immediate prospects for implementation of durable solutions.”
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This story takes me back to 1983 in Somalia when military units surrounded 4 refugee camps that I was working in, picking up 200+ refugees, transporting them to a local military compound. Within days all men were released after their names were provided to the government along with a request that they be immediately released. I recall my meeting with the US Ambassador to Somalia afterwards, being commended for fast action to collect the names. The government of Iran must be held to account.