Historically, from the French Huguenots to those fleeing the Irish Potato Famine, from the refugees of Nazi Germany to the massive population transfers of India's partition, migration has been a constant dilemma, with its causes ranging from political persecution to natural disasters, from economic opportunity to environmental degradation.

During the 1970s and 1980s, the world witnessed a steady growth in refugee problems rooted in the Cold War. In the early 1990s, the demise of bi-polar politics led many to believe that there now existed the potential for an era of peace, cooperation, and stability. Instead, a new type of dilemma emerged: the disintegration of the state through ethnic, religious or political conflicts and failed economies. These civil wars are often waged for political and economic gains and intentionally target civilians. (In the 1950s, 50 percent of war casualties were civilians; in the 1990s, 90 percent are.) As a result, the number of refugees and internally displaced people has increased dramatically. Today, there are more than 17 million refugees and 25 million internally displaced peoples -- 80 percent of whom are women and children -- affecting almost every country in the world. Yet, there are few global policies or effective regimes to contend with the issue of displacement or the events that precipitate the movement of people.

The increasing number of migrants and refugees has sparked debate in many states over immigration and asylum policies. These have become top domestic priorities, especially in Western Europe and the United States, raising concerns about national sovereignty and security. Many industrialized and developing countries -- with increased nativist sentiments -- are establishing stricter border controls to prevent the further influx of economic migrants and refugees. It appears that the UN policy of non-refoulement (no forced return) will be increasingly challenged. As it is, what are the rights of migrants and of refugees? What are the rights of states to pursue their national visions?

Complex humanitarian emergencies pose an increasing challenge to the international community. There has been a growing reluctance by states to intervene, whether by humanitarian, economic, military or political means. Efforts are not coordinated and territorial tensions often ensue -- e.g. whose responsibility is it to intervene in Bosnia? Failed efforts, such as the U.S. military intervention in Somalia, have made states even more cautious. This has left a void, often filled by agencies such as the United Nations High Commissioner for Refugees, the International Community of the Red Cross and Red Crescent, as well as many other regional and international non-governmental organizations.

And this is not without problems as the crises become more complex. One recent concern is the role of humanitarian relief in prolonging conflict. The Rwandan camps on the border between the Congo (formerly Zaire) and Rwanda house refugees as well as many of those who are responsible for the 1994 massacre of over 500,000 Tutsis. These armed militias benefitted from the relief assistance. Another example of unintended consequences occurred during the Sudanese civil war. In response to the conflict and famine, the international community sent humanitarian relief via several NGOs. Food was provided to the camps, which were primarily comprised of women and children (the men hid in the hills). The women would save some of their food and then trek it into the hills under the cover of nightfall. At times, the women from the camps were followed by government forces and entire communities were massacred.

With the changing nature of conflicts and the loss of neutrality for aid workers, what challenges do these complex humanitarian emergencies pose for the international community, as well as for the NGOs and other humanitarian relief organizations?

The following are some of the topics that we will be addressing over the next few months:

• What are the root causes of refugee and migration flows and should the international community be involved in preventive measures that address the following: global inequities, conditions that lead to famine and natural disasters, and civil conflicts?
• What security concerns do refugees and migrants present, from border controls to protecting those in need, and from arming relief workers to demilitarizing camps?
• Does the international community have an imperative to intervene and provide humanitarian relief in times of crisis? What form should that intervention take? How can the international community assist in providing durable solutions for refugees?
• What are the human rights of refugees and migrants and how can they be protected? Should there be a single, global immigration policy or regime?
• With the globalization of markets, labor migration has become a significant issue in international politics. What type of policies can be implemented to address both the needs of states and the rights of workers?
• How should the international community contend with the illicit trafficking of people?
• What is the impact of environmental degradation on migration, and conversely, the impact of migration on the environment?

The delegations that we have invited to participate in this conference are: Australia, Canada, China, Colombia, Congo, Cuba, Egypt, France, Georgia, Germany, India, Mexico, Norway, Russia, Sudan, Thailand, and the United States as well as the Kurds, the Palestinians, the United Nations, a consortium of Human Rights NGOs, and a consortium of Humanitarian NGOs.

Each of the delegations is asked to send a representative to each of the following committees: Root Causes of Migration, Security, International Law and Human Rights, Intervention and Humanitarian Relief, Immigration, Labor and Trade, and Illicit Trafficking.

Again, we look forward to the coming months of deliberations.