Human Rights Watch
September 2003
BHUTAN/NEPAL
Trapped by Inequality: Bhutanese Refugee Women in Nepal
TABLE OF CONTENTS
MAP 1: Nepal and Bhutan............................................................................................................................................ 3
MAP 2: Location of Bhutanese Refugee Camps in Nepal ...................................................................................... 4
GLOSSARY..................................................................................................................................................................... 5
I. SUMMARY................................................................................................................................................................. 8
II. RECOMMENDATIONS....................................................................................................................................... 12
To the Government of Nepal................................................................................................................................... 12
To the Government of Bhutan................................................................................................................................. 13
To the Office of the United Nations High Commissioner for Refugees (UNHCR) ...................................... 13
To Humanitarian Aid Agencies .............................................................................................................................. 15
To the United Nations Children’s Fund (UNICEF) ............................................................................................ 15
To International Donors ........................................................................................................................................... 16
III. BACKGROUND.................................................................................................................................................... 17
Crackdown on Ethnic Nepalese in Bhutan............................................................................................................ 17
State Persecution of Ethnic Nepalese Women and Girls in Bhutan ................................................................. 18
A Protracted Refugee Situation............................................................................................................................... 20
A Flawed Categorization Process........................................................................................................................... 22
Women’s Limited Participation in the Verification and Categorization Process........................................... 23
Ethnic Nepalese Women’s Status in Bhutan ........................................................................................................ 26
Women’s Status in Nepal......................................................................................................................................... 27
IV. DISCRIMINATION IN REGISTRATION PROCEDURES AND ACCESS TO AID............................ 29
Discrimination against Women and Children in Refugee Registration ........................................................... 29
Non-Registration of Ration Cards in Women’s Names...................................................................................... 31
V. GENDER-BASED VIOLENCE IN REFUGEE CAMPS................................................................................ 36
Guidelines for Preventing and Responding to Gender-Based Violence .......................................................... 37
Gender-Based Violence in Nepal’s Refugee Camps........................................................................................... 38
The Government of Nepal and UNHCR: A Case of Negligence..................................................................... 41
VI. EVALUATING REFORM: STRENGTHS AND GAPS IN THE RESPONSE TO GENDER-BASED
VIOLENCE .................................................................................................................................................................... 45
Security........................................................................................................................................................................ 46
Guidelines for Humanitarian Aid Staff.................................................................................................................. 47
Women’s Leadership ................................................................................................................................................ 51
UNHCR Staffing ....................................................................................................................................................... 52
Reporting and Referral Systems ............................................................................................................................. 53
Response to Domestic Violence ............................................................................................................................. 54
Response to Other Forms of Gender-Based Violence and Discrimination ..................................................... 57
Women’s Focal Points.............................................................................................................................................. 59
Breaches of Confidentiality ..................................................................................................................................... 60
Problems with Administration of Justice .............................................................................................................. 61
VII. INTERNATIONAL STANDARDS ................................................................................................................. 64
Protection from Violence ......................................................................................................................................... 65
Gender Discrimination in the Transfer of Citizenship ........................................................................................ 69
September 2003
BHUTAN/NEPAL
Trapped by Inequality: Bhutanese Refugee Women in Nepal
TABLE OF CONTENTS
MAP 1: Nepal and Bhutan............................................................................................................................................ 3
MAP 2: Location of Bhutanese Refugee Camps in Nepal ...................................................................................... 4
GLOSSARY..................................................................................................................................................................... 5
I. SUMMARY................................................................................................................................................................. 8
II. RECOMMENDATIONS....................................................................................................................................... 12
To the Government of Nepal................................................................................................................................... 12
To the Government of Bhutan................................................................................................................................. 13
To the Office of the United Nations High Commissioner for Refugees (UNHCR) ...................................... 13
To Humanitarian Aid Agencies .............................................................................................................................. 15
To the United Nations Children’s Fund (UNICEF) ............................................................................................ 15
To International Donors ........................................................................................................................................... 16
III. BACKGROUND.................................................................................................................................................... 17
Crackdown on Ethnic Nepalese in Bhutan............................................................................................................ 17
State Persecution of Ethnic Nepalese Women and Girls in Bhutan ................................................................. 18
A Protracted Refugee Situation............................................................................................................................... 20
A Flawed Categorization Process........................................................................................................................... 22
Women’s Limited Participation in the Verification and Categorization Process........................................... 23
Ethnic Nepalese Women’s Status in Bhutan ........................................................................................................ 26
Women’s Status in Nepal......................................................................................................................................... 27
IV. DISCRIMINATION IN REGISTRATION PROCEDURES AND ACCESS TO AID............................ 29
Discrimination against Women and Children in Refugee Registration ........................................................... 29
Non-Registration of Ration Cards in Women’s Names...................................................................................... 31
V. GENDER-BASED VIOLENCE IN REFUGEE CAMPS................................................................................ 36
Guidelines for Preventing and Responding to Gender-Based Violence .......................................................... 37
Gender-Based Violence in Nepal’s Refugee Camps........................................................................................... 38
The Government of Nepal and UNHCR: A Case of Negligence..................................................................... 41
VI. EVALUATING REFORM: STRENGTHS AND GAPS IN THE RESPONSE TO GENDER-BASED
VIOLENCE .................................................................................................................................................................... 45
Security........................................................................................................................................................................ 46
Guidelines for Humanitarian Aid Staff.................................................................................................................. 47
Women’s Leadership ................................................................................................................................................ 51
UNHCR Staffing ....................................................................................................................................................... 52
Reporting and Referral Systems ............................................................................................................................. 53
Response to Domestic Violence ............................................................................................................................. 54
Response to Other Forms of Gender-Based Violence and Discrimination ..................................................... 57
Women’s Focal Points.............................................................................................................................................. 59
Breaches of Confidentiality ..................................................................................................................................... 60
Problems with Administration of Justice .............................................................................................................. 61
VII. INTERNATIONAL STANDARDS ................................................................................................................. 64
Protection from Violence ......................................................................................................................................... 65
Gender Discrimination in the Transfer of Citizenship ........................................................................................ 69
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