Libya

Libya remains both a major destination and transit country for large mixed migration flows including refugees and migrants due to its geographical position and porous land borders with its southern neighbours. UNHCR’ s multi-year (2023-2025) strategy will address the various protection risks, humanitarian and durable solutions needs of refugees, asylum-seekers, internally displaced people (IDPs), IDP returnees and host communities, in a comprehensive, effective, and coordinated manner. The strategy has been developed through an inclusive and participatory process, bringing together a wide range of relevant stakeholders, and informed by the findings from various needs assessments undertaken by UNHCR and partners over the past years. 
 
By 2023, progress was made towards the resolution of internal displacement which is expected to continue in 2024 and beyond. The number of IDPs, as reported by IOM’  s Displacement Tracking Matrix (DTM), decreased from 316,000 in October 2020 to an estimated 125,802 people by December 2023 largely due to the improved security situation. This marked a 60% reduction in the number of IDPs since the ceasefire agreement, with most IDPs reporting that they have returned to their places of origin due to the improved security situation. Following the September 2023 mission of the United Nations Secretary-General’ s Special Adviser on Solutions to Internal Displacement, Robert Piper, significant progress had been noted towards resolving the challenges faced by IDPs due to a combination of strong community leadership, proactive Government measures and engaged international partners. An estimated 50,000 IDPs still require substantial efforts to realize solutions, mostly belonging to the Tawergha and Murzuq communities. Thus, the UN and UNHCR are gradually disengaging from the IDP response, maintaining only its footing in coordination and protection analysis beyond 2024, with UNHCR assistance provided in critical protection situations. 
 
It is anticipated that the situation for refugees and asylum-seekers will remain challenging as they continue to be regarded as illegal migrants by Libyan authorities. UNHCR will ensure provision of essential protection and assistance services to alleviate some of the suffering, protect from deportation and advocate for alternatives to detention, and facilitate access to durable solutions out of Libya for some of the individuals with heightened protection risks. Since the outbreak of the Sudan conflict in April 2023, the considerable arrival of Sudanese refugees is expected to increase further with up to 149,000 Sudanese refugees in Libya by the end of 2024. Since July 2024, Libya is included in the Sudan Refugee Response Plan (RRP) under the leadership of UNHCR. The plan is targeting 195,000 refugees and host communities with multi-sectoral assistance in Alkufra, Benghazi, Tripoli and other parts of the country. Working with authorities and 17 RRP partners, and in close collaboration with the UN RC/HC’ s Office, the response is coordinated through an inter-agency structure, including seven thematic task forces (Protection, Shelter & NFI, Food Security, WASH, Health & Nutrition, Education, and Access. These planned interventions included in the RRP aim at contributing to the first three objectives of the Global Compact on Refugees (GCR) including: (i) easing pressures on host countries, (ii) enhancing refugee self-reliance, and (iii) expanding access to third country solutions. 

 
In addition, UNHCR will maintain and further improve its contingency planning and emergency response capacity, to rapidly and effectively respond to emergency situations. In 2023, as a result of Storm Daniel and the subsequent floods that hit eastern Libya from 9 to 11 September 2023, UNHCR was able to quickly reprioritize and reallocate resources to support people affected by the floods. Material assistance, including core relief items, medicines, Rubb Halls and generators, and human resources were reprioritized and reallocated to ensure a swift response. While UNHCR in Libya will remain sensitive and responsive towards IDP situations, it will phase out its support to flood affected IDPs during the course of 2024.  
 
Finally, it should be noted that UNHCR’ s multi-year strategy is aligned with the UN Sustainable Development Cooperation Framework (UNSDCF), as well as the Humanitarian-Development-Peace Nexus inter-agency structure for Libya, of which UNHCR is a part, amongst other participating UN Agencies. In the UNSDCF structure, two collective outcomes focusing on: (i) durable solutions for IDPs (CO1) led by UNDP with support from UNHCR and IOM as co-chairs, and (ii) migration management (CO2) co-chaired by UNHCR IOM. The needs of refugees and asylum-seekers are covered under UNSDCF in line with the fundamental principle to “ leave no one behind”  and will support advocacy for their access to social and economic opportunities in collaboration with relevant development and humanitarian actors. 

With its geopolitical location and the proximity of its coastline to Europe, Libya will continue to be a significant transit country along the Central Mediterranean Route in the context of mixed movements. At the same time, Libya remains and will continue to gain traction as a destination country, for refugees, including from Sudan, but also for migrants, depending on the political and security situation in the country as well as in neighbouring countries. 
 
Without political stability and concrete steps towards national elections, and consequent economic development, the situation of forcibly displaced people in Libya is likely to remain unpredictable and dire, especially for refugees and asylum-seekers, but also for a residual group of IDPs. It is estimated that the number of refugees and asylum-seekers registered with UNHCR will increase, especially due to the conflict in Sudan. The IDP population will steadily decline from the approximate 125,000 people in 2023 with most of them achieving a durable solution either through their voluntary return to their places of origin or local integration in their current areas of residence or elsewhere. The potential for durable solutions for the residual group of IDPs will be contingent on the Government’ s engagement to create the necessary conditions including facilitating or even promoting voluntary, safe, and dignified return of IDPs. 
 
The recent crisis in Sudan as well as the impact of Storm Daniel and floods that hit eastern parts of Libya from 9 to 11 September show the need to unify decision-making and coordination among State institutions. UNHCR will continue to support the government efforts and contribute to the overall humanitarian response, including leading the refugee response. 
 
UNHCR contributed to the finalization of the UNSDCF while simultaneously phasing out the Humanitarian Response Plan (HRP) for Libya, which ended at the end of 2022. In this regard, UNHCR, together with other UN agencies and under the leadership of OCHA, created a “ protection transition group”  to ensure that no residual protection issues are left unattended in 2023 following the launch of the UNSDCF and transition to the humanitarian-development-peace nexus (HDP). In addition, under the UNSDCF, UNDP leads the Collective Outcome 1 on Durable Solutions for IDPs supported by UNHCR and IOM as co-chairs, and UNHCR co-chairs the Collective Outcome 2 on Migration with IOM. 
 
The five key priorities foreseen under UNHCR’ s multi-year strategy are to (a) provide ongoing registration and case management for refugees and asylum-seekers, with a focus on preventing gender-based violence and enhancing child protection safeguards through a community-based protection mechanism, (b) provide life-saving assistance, monitoring and reporting of persons in need of international protection within mixed migration flows, including advocacy for release from detention, (c) provide resettlement or evacuation out of Libya to refugees and asylum-seekers with heightened protection risks, (d) continued advocacy for timely and expanded access to forcibly displaced people with a focus on prevention from refoulement and alternatives to detention, and (e) support IDP priority groups, including returnees and host communities, in attaining their preferred durable solution and access to rights and services in 2024. From 2025, UNHCR will disengage from providing material assistance to IDPs, limiting only to critical protection interventions, while continuing its engagement in coordination and protection analysis. 

The priority areas set out within the UNSDCF and the inter-agency structure of the HDP nexus for Libya provides an opportunity for further engagement for UNHCR. This engagement is strengthened firstly, via an expanded geographical scope of intervention, notably to the south and the east, and secondly, via broadened partnerships with other UN agencies.  The aim is to strengthen the resilience of IDPs, returnees, asylum-seekers and host communities, and maximize complementarity of expertise and resources among agencies, through enhanced cooperation with Libyan authorities on protection-sensitive matters related to improved protection and access of refugees and asylum-seekers. This was evident in UNHCR’ s leadership role for the contingency planning in regard to the Sudan conflict and to Storm Daniel, where UNHCR expanded its presence in the east, through its Field Office in Benghazi, and repositioned its resources to address the needs of storm-affected populations. As part of the UNSDCF framework, these efforts were aligned with others exerted by the State, other UN agencies and humanitarian actors. 
 
This strategic approach will require dedicated engagement from the international community, particularly in terms of responsibility-sharing with Libyan counterparts, through more direct resettlement quotas as well as other legal pathways, in order to implement durable solutions for refugees and asylum-seekers at heightened protection risks outside Libya.  
 
To enhance the response capabilities and ensure evidence-based programming, the Office will make use of quantitative and qualitative data collected through different methodologies (Joint Data Centre research, protection needs assessment, registration, etc.) and use advanced data analysis techniques, including trend analysis, predictive modelling, and forecasting. UNHCR will invest in organizational cultural change aimed at achieving a data-informed decision-making culture. This shift will ensure existing staff continue to work on data and information while UNHCR invests in their capacities and information systems. 
 
With regards to predicted results under the second impact area linked to the realization of basic needs in safe environments, these will help address immediate and short-term needs of forcibly displaced people through the delivery of appropriate life-saving assistance including the distribution of conditional and unconditional (restricted and unrestricted) cash assistance, core relief items, and primary health consultations, while advocating for their access to public services through the implementation of quick impact projects, also supporting peaceful coexistence. 
 
Changes expected in terms of empowering communities and achieving gender equality will be achieved by further building on existing community-based structures in which UNHCR and partners will seek to ensure that women, girls, and other specific population groups are adequately represented. 

Throughout 2023-2025, UNHCR will seek to effectively implement its comprehensive strategy on Communication with Communities (CwC), to address the information needs of forcibly displaced people by delivering comprehensive protection services and targeted support. UNHCR will engage closely with government counterparts, UN agencies, and national and international NGOs as well as directly with forcibly displaced communities. 
 
Improved communication and feedback mechanisms through regular community consultations, management of the Communication and Feedback Mechanism (CFM), social media initiatives (e.g. dedicated Facebook page), and home and field visits will serve as a basis for protection and assistance programming. Continuous improvement of platforms like Knowledge Base with updated frequently asked questions on different aspects for UNHCR staff and partners, as well as joint outreach with UN sister agencies (e.g. UNFPA) will be pursued amongst other initiatives. Such engagement will further enhance UNHCR’ s CwC and accountability to affected populations (AAP) approaches. 
 
UNHCR will continuously review and adjust communication methods and information materials to respond to the needs identified through the CwC, to ensure coverage of a full spectrum of information and that proper counselling is made available to forcibly displaced people through all available communication channels including UNHCR hotlines, inter-agency CFM as well as relevant channels used by partners. Regular outreach will be undertaken with refugee, IDP communities and community volunteers to make sure effective communication with forcibly displaced and reinforce UNHCR’ s accountability to affected populations.