Trump and Allies Seek End to Refugee Status for Millions of Palestinians
In internal emails, Jared Kushner advocated a “sincere effort to disrupt” the U.N.’s relief agency for Palestinians.
Jared Kushner, U.S. President Donald Trump’s son-in-law and senior advisor, has quietly been trying to do away with the U.N. relief agency that has provided food and essential services to millions of Palestinian refugees for decades, according to internal emails obtained by Foreign Policy.
His initiative is part of a broader push by the Trump administration and its allies in Congress to strip these Palestinians of their refugee status in the region and take their issue off the table in negotiations between Israel and the Palestinians, according to both American and Palestinian officials. At least two bills now making their way through Congress address the issue.
Kushner, whom Trump has charged with solving the Israeli-Palestinian conflict, has been reluctant to speak publicly about any aspect of his Middle East diplomacy. A peace plan he’s been working on with other U.S. officials for some 18 months has been one of Washington’s most closely held documents.
But his position on the refugee issue and his animus toward the U.N. Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) is evident in internal emails written by Kushner and others earlier this year.
“It is important to have an honest and sincere effort to disrupt UNRWA,” Kushner wrote about the agency in one of those emails, dated Jan. 11 and addressed to several other senior officials, including Trump’s Middle East peace envoy, Jason Greenblatt.
“This [agency] perpetuates a status quo, is corrupt, inefficient and doesn’t help peace,” he wrote.
The United States has helped fund UNRWA since it was formed in 1949 to provide relief for Palestinians displaced from their homes following the establishment of the State of Israel and ensuing international war. Previous administrations have viewed the agency as a critical contributor to stability in the region.
But many Israel supporters in the United States today see UNRWA as part of an international infrastructure that has artificially kept the refugee issue alive and kindled hopes among the exiled Palestinians that they might someday return home—a possibility Israel flatly rules out.
Critics of the agency point in particular to its policy of granting refugee status not just to those who fled Mandatory Palestine 70 years ago but to their descendants as well—accounting that puts the refugee population at around 5 million, nearly one-third of whom live in camps across Jordan, Lebanon, Syria, the West Bank, and Gaza.
By trying to unwind UNRWA, the Trump administration appears ready to reset the terms of the Palestinian refugee issue in Israel’s favor—as it did on another key issue in December, when Trump recognized Jerusalem as Israel’s capital.
In the same January email, Kushner wrote: “Our goal can’t be to keep things stable and as they are. … Sometimes you have to strategically risk breaking things in order to get there.”
Kushner raised the refugee issue with officials in Jordan during a visit to the region in June, along with Special Representative for International Negotiations Jason Greenblatt. According to Palestinian officials, he pressed the Jordan to strip its more than 2 million registered Palestinians of their refugee status so that UNRWA would no longer need to operate there.
“[Kushner said] the resettlement has to take place in the host countries and these governments can do the job that UNRWA was doing,” said Hanan Ashrawi, a member of Executive Committee of the Palestine Liberation Organization.
She said the Trump administration wanted rich Arab Gulf states to cover the costs Jordan might incur in the process.
“They want to take a really irresponsible, dangerous decision and the whole region will suffer,” Ashrawi said.
Saeb Erekat, the Palestinians’ chief negotiator, told reporters in June that Kushner’s delegation had said it was ready to stop funding UNRWA altogether and instead direct the money—$300 million annually—to Jordan and other countries that host Palestinian refugees.
“All this is actually aimed at liquidating the issue of the Palestinian refugees,” he said.
The White House declined to comment on the record for this story. A senior executive branch official, speaking on condition of anonymity, said U.S. policy regarding the U.N.’s Palestinian refugee program “has been under frequent evaluation and internal discussion. The administration will announce its policy in due course.”
Jordanian officials in New York and Washington did not respond to queries about the initiative.
Kushner and Nikki Haley, the U.S. ambassador to the United Nations, both proposed ending funding for UNRWA back in January. But the State Department, the Pentagon, and the U.S. intelligence community all opposed the idea, fearing in part that it could fuel violence in the region.
The following week, the State Department announced that that United States would cut the first $125 million installment of its annual payment to UNRWA by more than half, to $60 million.
“UNRWA has been threatening us for six months that if they don’t get a check they will close schools. Nothing has happened,” Kushner wrote in the same email.
State Department spokesperson Heather Nauert said at the time that the U.S. had no intention of eliminating funding for Palestinian refugees, and that it was taking time to explore ways to reform UNRWA and to convince other countries to help Washington shoulder the financial burden of aiding the Palestinians.
But the following day, Victoria Coates, a senior advisor to Greenblatt, sent an email to the White House’s national security staff indicating that the White House was mulling a way to eliminate the U.N.’s agency for Palestinian refugees.
“UNRWA should come up with a plan to unwind itself and become part of the UNHCR [U.N. High Commissioner for Refugees] by the time its charter comes up again in 2019,” Coates wrote.
She noted that the proposal was one of a number of “spitball ideas that I’ve had that are also informed by some thoughts I’ve picked up from Jared, Jason and Nikki.”
Other ideas included a suggestion that the U.N. relief agency be asked to operate on a month-to-month budget and devise “a plan to remove all anti-Semitism from educational materials.”
The ideas seemed to track closely with proposals Israel has been making for some time.
“We believe that UNRWA needs to pass from the world as it is an organization that advocates politically against Israel and perpetuates the Palestinian refugee problem,” said Elad Strohmayer, a spokesman for the Israeli Embassy in Washington.
Strohmayer said that Palestinians are the only population that is able to transfer its refugee status down through generations.
The claim, though long advanced by Israel, is not entirely true.
In an internal report from 2015, the State Department noted that the U.N. High Commissioner for Refugees “recognizes descendants of refugees as refugees for purposes of their operations.” The report, which was recently declassified, said the descendants of Afghan, Bhutanese, Burmese, Somali, and Tibetan refugees are all recognized by the U.N. as refugees themselves.
Of the roughly 700,000 original Palestinian refugees, only a few tens of thousands are still alive, according to estimates.
The push to deny the status to most Palestinians refugees is also gaining traction in Congress.
Last week, Rep. Doug Lamborn, a Republican from Colorado, introduced a bill that would limit the United States to assisting only the original refugees. Most savings in U.N. contributions would be directed to the U.S. Agency for International Development, the United States’ principal international development agency. But USAID is currently constrained by the Taylor Force Act, which restricts the provision of humanitarian assistance to the Palestinian Authority until it ends a policy of providing aid to families of fallen terrorists.
“Instead of resettling Palestinian refugees displaced as a result of the Arab-Israeli Conflict of 1948, UNRWA provides aid to those they define as Palestinian refugees until there is a solution they deem acceptable to the Israeli-Palestinian conflict,” Lamborn’s bill states.
“This policy does not help resettle the refugees from 1948 but instead maintains a refugee population in perpetuity.”
A congressional aide familiar with the legislation said its intent isn’t to gut UNRWA funding, but redirect assistance to descendants through USAID.
“The people that are suffering should still get assistance, but through appropriately defined humanitarian channels and aid programs,” the aide said.
Similarly, Sen. James Lankford, (R-Okla.), has drafted legislation that would redirect U.S. funding away from UNRWA and to other local and international agencies.
The bill, which has not yet officially been introduced, would require the U.S. secretary of state certify by 2020 that the United Nations has ended its recognition of Palestinian descendants as refugees.
“The United Nations should provide assistance to the Palestinians in a way that makes clear that the United Nations does not recognize the vast majority of Palestinians currently registered by UNRWA as refugees deserving refugee status,” reads a draft obtained by Foreign Policy.
An aide to Lankford said the language in the draft “is still being negotiated and being considered by Lankford and other colleagues. It is not final.”
Previous U.S. administrations have maintained that the vast majority of Palestinian refugees will ultimately have to be absorbed in a new Palestinian state or naturalized in the countries that have hosted them for generations.
But the fate of the refugee issue was expected to be agreed to as part of a comprehensive peace pact that resulted in the establishment of a Palestinian state.
“It’s very clear that the overarching goal here is to eliminate the Palestinian refugees as an issue by defining them out of existence,” said Lara Friedman, the president of the Foundation for Middle East Peace.
“This isn’t going to make peace any easier. It’s going to make it harder.”
This story has been updated.
Colum Lynch is a senior staff writer at Foreign Policy. Twitter: @columlynch