REGISTRATION IN EMERGENCIES
2.1 Overview and Function
Registration of persons of concern is one of UNHCR’s primary activities at the onset of an emergency, in addition to identifying and assisting persons with specific needs (PSNs) who require targeted interventions, including protection support. Emergency registration should be conducted as soon as possible, as this forms the population baseline for the delivery of protection, targeted assistance, programming and planning, and provides for the efficient use of resources.
These guidance notes provide an overview on camp, rural and urban emergency registration procedures, including instructions on information and population data management. The steps for all refugee emergency registration scenarios are the same unless otherwise specified under specific sub-headings of these guidance notes.
This chapter should be referenced in tandem with the Registration Checklist in Refugee Emergencies (included as Annex 1 of this section).
2.2 How-to Guide: Emergency Registration Steps
2.2.1 Objectives of registration in an emergency
“Registration of refugees and asylum-seekers is, first and foremost, a key protection tool. It can help to protect refugees from refoulement and forcible recruitment. It can ensure access to basic rights and family reunification, help to identify persons in need of special assistance, and provide information crucial to finding appropriate durable solutions,” according to the UNHCR Handbook for Registration (UNHCR Geneva, Provisional Release, September 2003, pg. 5).
It is important to note that the standard registration approach in refugee emergencies has changed.
Depending on time and context, the recommended approach will now be to implement Individual Emergency Registration, a process used to collect a minimum set of data for all individuals in a household, along with a limited set of data at the household level.
Individual Emergency Registration is used to establish basic distribution lists, identify and record PSNs, and issue documentation or ration cards at the household level to facilitate the delivery of life-saving aid and services.
In the case of an organized movement to a registration site, a limited set of pre-defined Household registration data may be collected to plan and facilitate organized movement to a registration site. After which, an Individual Emergency Registration would be conducted at the registration site itself.
See Annex 1: Registration Checklist in Refugee Emergencies; subheading ‘Registration Methodology’, pgs. 6-7, for detailed instructions and data to collect, in addition to Predefined household data required to facilitate organized movement to a registration site, covered under, ‘Organized Movement’, pgs. 3-4.
2.2.2 Time frame for emergency registration
As capacity permits, individual emergency registration must be conducted within the first month of a population influx. However, as a target to aim for, emergency registration should be conducted within three to seven days of an initial influx. Since populations increase over the course of days, weeks and months, registration procedures and infrastructure should continuously support individual emergency registration (as defined in the Registration Checklist in Refugee Emergencies; included as Annex 1 with this section) throughout an emergency.
2.2.3 Shared roles and responsibilities
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UNHCR: To ensure that individuals are registered, to facilitate individual protection and the delivery of emergency assistance. UNHCR may assist the host Government’s planning, conduct registration on behalf of the host Government as required, or conduct the registration itself. The UNHCR Representative will need to hold a meeting with the host Government and key partners such as WFP, the International Organization for Migration (IOM) and the International Committee of the Red Cross (ICRC) to ensure their support and as necessary, their involvement and cooperation in registration activities. If a Government is not capable or willing to engage in an emergency registration, UNHCR may assist the Government by either planning or carrying out the registration in collaboration with the Government or on behalf of the Government. The appropriate coordination fora should be developed, depending on the context this may be (amongst others) the Protection Working Group (See the Protection Section, Section 13, of this Toolkit for additional information) the RIM WG (refer to the Information/Data Management Strategy section (Section 2) for the RIM WG terms of reference). The working group should consist of representatives of the host Government; the UNHCR Registration focal point, protection, programme and sector leads (where deployed); and key partners working with UNHCR on the overall emergency response. Within the protection working group or the RIM WG, the registration officer and the Information Manager should work together as appropriate, to ensure the regular dissemination of information on registration activities, along with population statistics and demographics.
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Host Government: Registration of asylum-seekers and refugees is a Government responsibility. If not conducting the registration directly, Government counterparts should participate in registration planning and activities, including camp managers (were available) and government security forces.
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Partners: Key partners (WFP, UNICEF, ICRC, IOM etc.) may participate in the emergency registration and the Protection Working Group or the RIM WG. UNHCR’s capacity on the ground to conduct an emergency registration will vary. Therefore, a partner capable of sharing the responsibility under the guidance of UNHCR may be identified to conduct or support the emergency registration.
2.2.4 Pre-registration process
The registration officer is responsible for the design and delivery of an emergency registration plan of action, which must take into account any emergency contingency planning and will need to include the following elements.
Planning documents prepared by the registration, field coordinators and protection officers (noted below) should be endorsed by the UNHCR Representative. After endorsement but prior to the start of the emergency registration, the UNHCR Representative, with the support of the registration officer, will need to present the plan of action to the host government agreement and support.
After partners have been briefed in the Protection Working Group or the RIM WG and the emergency registration strategy is drafted, the registration, protection, community services and external relations officers will need to meet with representatives from the population of concern. During these meetings, they will need to inform them about and consult on registration activities.
After the start of emergency registration, the registration officer may use the Protection Working Group or the RIM WG meetings to discuss activities and issues surrounding registration, for which the support of partners may be required. The Protection Working Group or RIM WG, will also be useful for the regular presentation and discussion of initial baseline population and updated registration figures.
The registration officer will need to present the outcomes of registration activities and population figures to the UNHCR Representative, who in turn will present this information for final endorsement by the Government, with the support of the registration officer.
Note: Keep in mind that baseline population figures must always be triangulated with other sources of population data, the sources of which will need to be recorded and presented during the Protection Working Group or the RIM WG. For the tracking of population statistics, including recording baseline population registration data, use the Population Reporting Template included in the Population Statistics section (Section 3) of this Toolkit.
2.3 Emergency Registration Strategy
The emergency registration plan of action should include the following elements, in parallel:
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Emergency registration objectives (as pre-defined above, while taking the situational context into account);
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Background analysis and situational overview (define the population to be registered and situational considerations in the host country, identify possible constraints and gather existing population statistics, including information on who collected data and when);
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Define staffing requirements;
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Create a standardized list of place names and codes that all parties involved in the registration agree on (including standardized registration names/labels, place names, country of origin location names) before the start of registration. Once standardized, this list will need to be referenced on site during registration;
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Map current registration system (if any);
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Include a time frame and budget for required resources based on the scope of planned registration activities; and
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Refer to the ‘Registration Checklist in Refugee Emergencies’, included as Annex 1 of this section for additional guidance.
Note: A sample emergency registration strategy is included as Annex 4, in this section.
2.3.1 Border Monitoring
Border monitoring activities should capture and assess information related to registration, such as lists of formal and informal entry points, estimation of the number of arrivals per day at each entry point, means of arrival (i.e. number of cars, buses or persons on foot crossing the border or other means of estimation), patterns of arrival, intended destination, profile of the persons of concern including potential vulnerabilities (sex/age breakdown, civilian vs. armed forces, persons of concern vs. third county nationals, or other criteria relevant to the operational context). No personal data should be gathered at this stage.
2.3.2 Security and site selection
Emergency registration must be conducted only if it is safe to do so for staff and persons of concern, conforming to the following procedure.
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The Representative will need to request security officers from UN/UNSECOORD, UNHCR or Government authorities to access the proposed registration sites and develop a security plan as required.
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The Representative, with the support of the Registration Officer, will then need to discuss the nature and aim of the emergency registration with central and local authorities and with security forces, and ensure their understanding, support and, if necessary, presence at the registration site to provide security.
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The registration officer will need to select the registration site, based on considerations for location, space, waiting areas, security and crowd control, electricity, water and toilets. Consider selecting a site that, given its location and ease of access for refugees, may also be used after the emergency registration for aid distribution. When selecting the site, be sure to include any site upgrade requirements that may be needed in the registration budget.
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The registration officer will need to select the registration site, based on considerations for location, space, waiting areas, security and crowd control, electricity, and water and toilets. Consider selecting a site that, given its location and ease of access for refugees, may also be used after the emergency registration for aid distribution. When selecting the site, be sure to include any site upgrade requirements that may be needed in the registration budget.
2.3.3 Procuring supplies and registration infrastructure
Once the registration strategy, budget and supply list have been agreed upon internally by the UNHCR Representative, registration supplies and infrastructure will need to be procured and set up, respectively. To save on time and costs, basic supplies, equipment and infrastructure should be procured in the local market, to the extent possible.
A registration stockpile of specialized registration supplies for over 500,000 individuals is maintained at UNHCR HQ in Geneva, which can be used for emergency registration needs. Refer to the Registration Stockpile Supply List, included in the annexes of this section. Normally, the material can be released and shipped from the stockpile within a day, but the shipment may take more time depending on the destination, customs procedures, etc. See Annexes 16-17 for UNHCR registration stockpile procedures and order forms.
2.3.4 Preparation of data sets and forms
If not already in place, an electronic registration database will need to be set up and functioning at the UNHCR office. The use of standardized UNHCR registration categories and codes must be ensured throughout the registration and beyond, a list of the UNHCR standard registration codes has been included in the annexes. Standard registration forms are recommended for use and included with these guidance notes.
Note: UNHCR data-entry formats, such as dates of birth and specific needs categories, should not be amended.
2.3.5 Hiring staff and training
As much as possible, try to use partner staff who have worked with UNHCR in various capacities and who should be familiar with UNHCR protection principles, including working with vulnerable persons. A session on the UNHCR Code of Conduct will need to be conducted by the registration and protection officers prior to the start of registration (UNHCR Handbook for Registration, pgs. 121-122). Training will also need to be provided by the registration officer, to cover the various roles and responsibilities within the registration process (UNHCR Handbook for Registration, pgs. 68, 120).
Note: Annex 10, Staff Training: Household Level Process Flow Illustration may be useful for staff training in order to illustrate the physical movement of refugees through the registration process. See also, Annex 11, Staff Training: Interviewer Introductory Registration Statement, which may be read by staff to a refugee household before commencing the registration process (and also annexed to the operations Registration SOP’s). The ‘Attendance and Payment’ form included as Annex 12, may be used to track staff attendance and calculate payroll.
2.3.6 Information campaign
Prior to the start of registration, a thorough information campaign, undertaken collaboratively by the registration, protection and external relations officers, will need to be conducted. This process should explain the reasons for registration, the locations of the registration and the desired outcomes of the registration activities. The Government, operational and partner staff will also need to be briefed on key registration messages.
The information campaign should include detailed information on the following:
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Purpose of the registration;
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Location of registration;
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Confidentiality and sharing of data gathered;
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Basic steps for registration;
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Specific procedures for PSNs;
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Registration opening hours and interview scheduling;
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Pre-conditions for being registered;
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Procedures for requesting a registration appointment and information on scheduling;
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Procedures for newborns, absentees and others;
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Procedures for reporting misconduct by staff and other difficulties in assessing the UNHCR office or registration premises;
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Include and explain the link between registration and protection to address fears and concerns. For example: “Explain to the community how the registration system is intended to ensure that each individual and each household will have an accurate and lasting record, a means of identifying themselves, and a full and equitable share of benefits” (From UNHCR Handbook for Registration, pg. 87); and
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Ensure a mechanism exists to respond to questions from persons of concern- including before, during and after the registration process.
Note: For additional details on each of the above steps, refer to the, UNHCR Handbook for Registration, pgs. 131-135.
There are many types of information campaign techniques to consider – SMS messaging, the use of local radio stations, poster campaigns, information leaflets, using the Internet, etc. However, keep in mind that in the context of an emergency, verbally informing community leaders of key registration-related messages will likely be the most effective approach. Ensure messages are adapted or relayed in a manner that persons with specific needs have access to them. See, ‘Sample Information Campaign Fliers’, Annex 7 for an example.
The below chart illustrates possible information campaign approaches depending on the operational context.
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Urban context
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Informal settlement
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Grouped settlement
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- in person
- through community leaders
- hotline
- internet
- SMS
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Map the locations/villages where refugees are settled. Allocate each to a mobile registration team, who will then conduct scheduling:
- in person
- through community leaders
- hotline
- Internet
- SMS
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- by registration number if any
- by section (block, zone, etc.)
- by place of origin/community
- by family size
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Additionally, in an urban emergency registration context, conducting an information campaign over local radio stations will be particularly important for mass communication. Consider setting up a telephone hotline where registration information is pre-recorded for playback, and where individuals can be assigned registration slots. Also, meet with community leaders and inform them of the registration, and leave posters and leaflets in key locations where persons of concern have congregated.
2.3.7 Fixing and scheduling interviews
“Fixing” a population is when only persons of concern are provided with a UNHCR token or wristband (one to each individual to be registered at the household level in an emergency) or by marking individuals’ fingertips with invisible ink. Fixing a population works to ensure that only persons of concern are registered.
However, it will not always be possible to fix the population before beginning the registration. In camps, fixing can be conducted through the use of wristbands, fixing tokens or invisible/indelible ink (examples of fixing tokens have been included in the annexes of this section). The wristbands are then removed or fixing tokens collected during the registration, and/or hands marked with ink once registration is completed (double check whether individuals have been previously marked with invisible ink, in order to prevent double registration) (see annexes 21- 24 for related templates and tracking tools).
Tracking fixing tokens will help to ensure the integrity of the eventual registration process, and will assist UNHCR in maintaining current statistics on the population of concern, see Annexes 21 and 23 for templates for tracking and printing tokens. When scheduling interviews, divide the populations into smaller groups based on residential locations/addresses, token numbers, etc. (see Annexes 21 and 22 for related templates).
Although for a number of reasons biometrics (fingerprinting, iris scanning, etc.) are not yet systematically used for emergency registration, UNHCR is increasingly looking towards using this approach as a standard component of emergency registration. The UNHCR registration section in HQ may be contacted at: hqdpsmru@unhcr.org for additional information regarding the use of biometrics in emergency registration.
In an urban emergency registration, fixing may not be required or may not always be possible. When considering a scheduling system, first take into account the projected time frame for emergency registration as noted in the registration plan of action. Break down the city by district or by GIS-gridded location while leaving more time for areas believed to have higher densities of persons of concern. Using GIS to grid a location is covered in the Mapping section of this Toolkit under Annex 5: UNHCR Addressing Guidance. Also, develop a schedule list in a spreadsheet, which can be populated by collecting names by call-in, etc.
2.3.8 Organized movement(s)
In certain urban, camp or informal settlement contexts, the Office may provide transportation to assist new arrivals to reach their destination for registration. Movement support mitigates security risks (i.e. check point delays) and facilitates access to registration. In a grouped settlement context, transportation is usually organized from the border to transit centres and/or to the settlements themselves. The following actions should be considered:
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Information campaign: define and communicate how and when families can access organized movements (including schedules). Use leaflets, public announcements, meetings with community leaders, health and social workers and partners, and mass gatherings to widely disseminate information. Ensure that meetings are organised to address fears and concerns, allowing adequate time to answer questions. Coordinate the movement schedule with the established registration schedule at the registration location (see Reception and Registration Facilities below). Always identify and give priority boarding to persons with apparent Specific Needs.
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Crowd control: if necessary, erect simple fencing and/or controlled barriers to reduce crowd pressure and facilitate boarding procedures. Arrange support from security personnel if required. Liaise and seek advice from security focal points.
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Coordination and logistics: Ensure all stakeholders are involved and informed about movement activities (Government authorities, partners, and reception facility etc.). Liaise with supply or logistical focal points to ensure transport arrangements are in place (hiring of buses, trucks, etc.).
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Data set: if transport manifests are required to facilitate movement, determine the minimum data set (and/or token numbers?) of the household level registration for proper movement planning, including boarding process (see the ‘Relocation Pre-Manifest’ included as Annex 26 of this section).
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Data Management and information sharing: upon departure of the vehicles or convoys, and prior to their arrival at the reception/transit/arrival point, inform colleagues at the destination point of the number of households, sex/age breakdown and those households identified as having members with specific needs, if possible by e-mailing a copy of the control sheet / manifest. A copy of the manifest should also travel with the staff member accompanying the convoy.
2.3.9 Access and verification
If it is unclear whether a person presenting him- or herself for emergency registration should be registered, grant that individual access to registration procedures and refer them to protection colleagues.
Depending on the context, any of the following screening techniques may be used by UNHCR protection staff to establish whether a person presenting him- or herself should be registered:
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Establish a set of targeted questions about the country of origin: History, geography, customs and other features that only a native would know (update regularly depending on the length of the registration exercise).
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Visual clues: Clothes and body language may provide initial indications, but should not be the sole determinant.
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Language differences: To the extent possible, registration and verification teams should include people who may identify country or area of origin through differences in language.
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Knowledge of locations and conditions in country of origin: Interviews should include questions to verify knowledge of the stated area of origin. Resource persons with knowledge of those areas should be consulted, and maps and lists of events should be gathered by the team to facilitate cross-checking.
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Assistance from the refugee population: The population of concern will normally cooperate in identifying verification techniques, such as knowing specific geographic and linguistic details, and should be consulted.
2.3.10 Referral mechanisms
As protection objective of registration, the recording and tracking of persons with specific needs will also need to be built into the emergency registration process.
Individuals with special needs are “prioritized” for registration, meaning they are physically moved to the front of the registration list or line. Additional identifying information/details that will result in the further targeting of assistance are also collected for prioritized individuals.
Examples of persons to be prioritized for emergency registration include:
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Unaccompanied and separated children (a Standard Referral and Registration Form for Unaccompanied or Separated Children, has been included in the annex of this section);
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Child-headed households;
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Single parents with small children;
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Elderly persons, particularly unaccompanied ones;
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Persons with disabilities and their families;
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Persons with specific protection concerns and their families;
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Single women in certain circumstances; and
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Persons with specific medical needs.
A full list of persons to be prioritized for registration, including standard UNHCR codes has been included as an annex in this section. Given time or staffing constraints, the collection of data surrounding only certain specific needs may be prioritized during an emergency registration, based on agreement reached internally in the office (see Annex 30 and 31 for sample templates which may be used for this purpose during registration).
The protection officer will need to provide training to all registration staff on identifying and working with persons with specific needs, prior to the start of registration.
2.3.11 Data elements to collect and data entry
Data elements to collect will be as specified in the standard UNHCR registration forms included as annexes within these guidance notes (Sample Control Sheet: Automated and Manual, Sample Counting Form, Sample Registration Site Layout Form). Data will be handwritten on the standard registration form and may be entered electronically at the registration site, with data later uploaded into the registration database at the UNHCR office. The physical registration record will also need to be filled out and maintained at the UNHCR office.
Adding extra questions or fields to the UNHCR registration form is generally discouraged, unless extra questions or fields serve to collect information that may be linked to lifesaving emergency response, such as, “Who within your family is trained as a community health worker” (if Yes, give name) or “Has everyone in your family received a measles vaccination?” (Yes or No).
For both an urban and rural population, ensure that at least one or more telephone numbers is collected for each family, and possibly an e-mail address, so that UNHCR has the ability to locate the family in the future.
2.3.12 Issuing documents and producing distribution lists
During the registration, each household will be issued a ration card, which will allow the household to receive assistance. The ration card number will be recorded in the registration database and/or on the registration form. For guidance on the standard use of the Ration Card refer to the Registration Checklist in Refugee Emergencies and the stockpile guidelines.
2.3.13 Population data agreement and management
With the support of the registration officer, the Representative should present the results of the registration to the host Government for official endorsement. Registration figures will also be shared with the management of partner organizations that have participated in the emergency registration.
In the Protection Working Group or RIM WG, agreement will need to be reached on the type and frequency of distribution lists as well as population demographic breakdowns to be produced by the registration unit as required. (Do not include individually identifiable information in these lists, unless the partner has signed a confidentiality agreement and as directed by the protection officer.) If a partner collects the data, individuals will not be officially registered until UNHCR and the host Government accepts the data, according to the UNHCR Handbook for Registration (pg. 36).
Once this process is completed and agreed at all levels, the registration officer and the Information Manager should work together to ensure that population baseline figures and, later, updates to population figures (as a result of ongoing registration, i.e. new arrivals, departures, births and deaths) are disseminated to partners through standard information management and coordination structures outlined throughout these guidance notes.
The registration officer should regularly provide a prioritized list based on vulnerability broken down by age, sex and camp/settlement. As discussed and agreed with the protection officer, this type of list will need to be produced on a regular basis for targeted protection interventions and ongoing protection and programme analysis, and should be provided to partners and concerned colleagues. Deciding on what type and level of registration information to share outside of UNHCR must be carefully considered by senior managers and agreed to by the Representative.
2.3.14 Continuous updating of records
After the completion of the initial registration, UNHCR Registration and Information Management staff will need to ensure that procedures are in place to continuously update registration records, and to share them systematically with partners. Recommended approaches to continuously updating registration records include the following:
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Flag households that have missed distribution(s), and ascertain whether households should remain active or not after 2 or 3 consecutive distribution(s).
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Put in place continuous registration mechanisms in order to register newly arrived refugees and newborns. For newborns registration, it is advised to liaise with medical partners and put in place procedures for issuance of birth notifications: this may have the double objective of increasing the number of children born in the medical facilities and prevent possible multiple registration (mark the birth notification once the new born has been registered).
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As a possible verification technique, UNHCR and partners may conduct spot checks in camps/homes, etc. to confirm the presence of registered refugees. In this regard the existence of a functioning camp address system will be important.
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Revised population figures, with necessary demographic breakdowns, are distributed regularly, and updated at minimum on a weekly basis.
Note: An updated version of the Handbook for Registration is anticipated in 2015.
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