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LEGAL AND PROTECTION POLICY RESEARCH SERIES
Protection Mechanisms Outside of the 1951 Convention (“Complementary Protection”)
Ruma Mandal
External Consultant

DEPARTMENT OF INTERNATIONAL PROTECTION

PPLA/2005/02 June 2005

PROTECTION POLICY AND LEGAL ADVICE SECTION (PPLA) DEPARTMENT OF INTERNATIONAL PROTECTION UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES CP 2500, 1211 Geneva 2Switzerland E-mail: hqpr02@unhcr.org Website: http://www.unhcr.org

This paper was prepared on behalf of UNHCR by the external consultant Ruma Mandal. The views expressed in this paper are those of the author and do not necessarily reflect those of UNHCR. This paper may be freely quoted, cited and copied for academic, educational or other non-commercial purposes without prior permission from UNHCR,provided that the source is acknowledged. The paper is available online at http://www.unhcr.org/protect. © United Nations High Commissioner for Refugees 2005

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LEGAL AND PROTECTION POLICY RESEARCH SERIES
Protection Mechanisms Outside of the 1951 Convention (“Complementary Protection”)
Ruma Mandal
External Consultant

DEPARTMENT OF INTERNATIONAL PROTECTION

PPLA/2005/02 June 2005
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Table of Contents
TABLE OF CONTENTS ................................................................................................ V EXECUTIVE SUMMARY .......................................................................................... VIII
I. II. III. IV. INTRODUCTION................................................................................................ viii LEGALFRAMEWORK UNDER INTERNATIONAL LAW........................................ x OVERVIEW OF STATE PRACTICE ....................................................................... x OBSERVATIONS ................................................................................................ xii

I.
A. B.INTRODUCTION......................................................................................... 1
Background and Methodology ........................................................................ 1 Scope of the Study............................................................................................. 2 1. Lack of a Definition of ‘Complementary Protection’ ............................... 2 2. The Conceptual Focus: The ‘Protection Gap’ and UNHCR’sMandate..................................................................................................... 3 3. Terminology .............................................................................................. 7

II.
A.

LEGAL FRAMEWORK UNDER INTERNATIONAL LAW ............................ 7
The 1951 Convention and 1967 Protocol........................................................ 8 1. Proper Scope of theRefugee Definition Contained in the Universal Refugee Instruments ................................................................. 8 2. Indirect Impact of the Non-Refoulement Obligation in the 1951 Convention on Non-Convention Refugees ..................................... 10 Non-Refoulement Obligations Outside of the 1951 Convention/1967 Protocol.............................................................................. 10 1. ExCom Conclusions Concerning Refugees Falling Within UNHCR’s Mandate ................................................................................. 10 2. Regional Refugee Instruments................................................................. 12 a. Africa ............................................................................................. 12 b.Central and South America............................................................ 15 c. Europe............................................................................................ 17
i. ii. Council of Europe Recommendations ...........................................17 EU Qualification Directive ............................................................17

B.

3.

d. Asia...