Model UN Background Guide

Committee: SPECPOL (GA4)
Topic: UNRWA Mandate and Funding
Conference Year: 2025

Topic Background

The United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) was established in 1949 to provide humanitarian assistance, education, healthcare, and social services to Palestinian refugees displaced by the 1948 Arab-Israeli conflict. Its mandate covers five fields of operation: Jordan, Lebanon, Syria, the West Bank, and the Gaza Strip. Unlike other UN refugee agencies, UNRWA’s mandate is unique due to its focus on a specific refugee population and its provision of services rather than resettlement.

UNRWA’s mandate is renewed periodically by the UN General Assembly, most recently extended through 2025. The agency supports approximately 5.9 million registered Palestinian refugees, many of whom live in protracted displacement conditions. Despite its critical role, UNRWA faces chronic funding shortfalls, political controversies, and operational challenges, exacerbated by regional instability, economic crises, and shifting geopolitical alliances.

The issue is on the agenda now due to multiple converging factors: the expiration of the current mandate in late 2025, increasing humanitarian needs amid ongoing conflict and economic hardship in Gaza and the West Bank, and fluctuating donor contributions. Recent years have seen major donors such as the United States and the European Union adjusting their funding levels, impacting UNRWA’s ability to maintain essential services. Additionally, debates over the agency’s role and the political implications of its work continue to divide member states, making the future of UNRWA a critical concern for SPECPOL.

Key Actors

• States:

  • Jordan: Hosts the largest number of Palestinian refugees and is a significant advocate for UNRWA’s continuation. Jordan emphasizes the agency’s role in regional stability and refugee welfare.
  • Lebanon: Also hosts a substantial Palestinian refugee population living in difficult conditions. Lebanon supports UNRWA’s mandate but stresses the need for international burden-sharing.
  • United States: Historically the largest donor, the U.S. has fluctuated in its financial support, influenced by political considerations related to the Israeli-Palestinian conflict.
  • European Union: A consistent donor and advocate for UNRWA’s humanitarian role, promoting multilateral solutions and protection of refugees’ rights.
  • Israel: While not a direct donor, Israel closely monitors UNRWA’s operations and has raised concerns about the agency’s role in the refugee issue and alleged politicization.
  • Palestinian Authority (PA): Relies heavily on UNRWA for refugee services and views the agency as essential to the Palestinian refugee cause.
  • Gulf States (e.g., UAE, Qatar): Increasingly active donors and political actors, with varied approaches reflecting broader regional dynamics.

• International Organizations:

  • United Nations General Assembly (UNGA): Responsible for renewing UNRWA’s mandate and overseeing its funding.
  • UNRWA itself: The operational agency managing programs and reporting on needs and challenges.
  • UN Office for the Coordination of Humanitarian Affairs (OCHA): Coordinates humanitarian response in Palestinian territories and often works alongside UNRWA.
  • International Committee of the Red Cross (ICRC): Engages in protection and humanitarian efforts in the region, complementing UNRWA’s work.

Bloc Positions

• Arab States Bloc: Generally united in support of renewing and strengthening UNRWA’s mandate and funding. They emphasize the agency’s critical role in providing humanitarian aid and preserving the rights of Palestinian refugees until a just political solution is found. Jordan, Lebanon, Egypt, and the Gulf States advocate for increased international financial support and political backing.

• Western Donor Bloc: Includes the United States, European Union members, Canada, and Australia. This group supports UNRWA’s humanitarian mission but often links funding decisions to political developments in the peace process and calls for increased transparency and efficiency within UNRWA. The EU consistently promotes multilateralism and protection of refugees’ rights, while the U.S. position can vary depending on the administration.

• Israel and Allied States: Israel and some of its close partners are cautious or critical of UNRWA, questioning the agency’s role in perpetuating the refugee issue and alleging politicization. They advocate for reforms within UNRWA and emphasize the need for solutions that do not incentivize refugee status perpetuation. They often stress the importance of focusing on peace negotiations rather than prolonged humanitarian mandates.

• Non-Aligned and Developing Countries: These states tend to support the continuation of UNRWA’s mandate as part of broader humanitarian and development commitments. They emphasize the importance of protecting vulnerable populations and often call for burden-sharing and increased funding from wealthier states.

Past UN Action

• The UN General Assembly has routinely renewed UNRWA’s mandate since its establishment, with resolutions reaffirming the agency’s role in providing relief and services to Palestinian refugees.
• Recent resolutions have addressed funding challenges and called for member states to contribute generously to UNRWA’s budget.
• The GA has also passed resolutions emphasizing the protection of Palestinian refugees and the importance of UNRWA’s educational and health programs.
• Various GA resolutions have highlighted the need for a just and lasting solution to the Palestinian refugee problem in accordance with international law.
• Reports by the UN Secretary-General and the Commissioner-General of UNRWA regularly provide updates on operational challenges, funding gaps, and humanitarian conditions.

Questions a Resolution Should Answer

1. How should the mandate of UNRWA be structured and defined for the next renewal period to best address current and future refugee needs?
2. What mechanisms can be implemented to ensure sustainable and predictable funding for UNRWA?
3. How can UNRWA’s operational efficiency and transparency be improved without compromising its humanitarian mission?
4. What role should UNRWA play in coordination with other UN agencies and regional actors to maximize impact?
5. How can the protection of Palestinian refugees’ rights be strengthened within the framework of UNRWA’s mandate?
6. In what ways can member states share the financial and political burden of supporting UNRWA?
7. How should the agency adapt its services to the evolving political and security context in the region, including in Gaza and the West Bank?

Further Reading

• UN Documents: Official General Assembly resolutions on UNRWA, reports from the UN Secretary-General, and UNRWA’s annual reports provide authoritative information on mandate renewals, funding status, and operational challenges. These documents offer insight into the UN’s formal positions and ongoing debates.

• Think-Tank Reports: Analyses from policy institutes specializing in Middle Eastern affairs, refugee studies, and humanitarian aid provide critical assessments of UNRWA’s effectiveness, funding dynamics, and political implications. These reports often include policy recommendations and scenario analyses relevant for delegates.

• News Outlets: Reputable international and regional news sources offer up-to-date coverage of funding developments, political controversies, and humanitarian conditions affecting UNRWA and Palestinian refugees. They provide context on donor decisions, regional responses, and public opinion trends.

This background guide aims to equip delegates with a nuanced understanding of the complex humanitarian, political, and financial issues surrounding UNRWA’s mandate and funding as they prepare to engage in SPECPOL’s 2025 discussions.