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T. MCGEE
engage with statelessness situations due to possible conflict between its now multiple mandates.
A 2001 study speculated that, “such an involvement will have an adverse effect on the organization’s activities in relation to refugees, returnees and asylum-seekers” (Engstrom & Obi, 2001,
para. 7; see also Crisp, 2010).
Although statelessness had been taken up by, and had become a subject of, international law,
and progressively internationalized from the 1930s to 2000s, a globalized statelessness response
only came much later. Tellingly, Loescher’s (2001) monograph detailing UNHCR’s evolution in
more than 400 pages barely made a mention of the statelessness mandate. Instead, he focused
on the agency’s involvement in IDP protection and its “mission creep” into repatriation and
postconflict reintegration (Loescher, 2001, pp. 281–324). This reflects that statelessness still played
only a minor role within the global humanitarian agenda, with UNHCR continuing to focus on
other “persons of concern” (primarily refugees, but increasingly also IDPs and returnees).
Seet (2016) considered the globalization of UNHCR’s statelessness responsibility to have
evolved gradually as, “Over the past two decades, ExCom conclusions and General Assembly
resolutions have progressively developed UNHCR’s mandate on statelessness” (p. 11). For instance,
in 2006, the General Assembly bolstered UNHCR’s statelessness responsibilities by explicitly
ascribing it a global responsibility for identification, prevention, and reduction of statelessness
and the protection of stateless persons (UNGA Resolution 61/137, 2006).
Despite this further landmark, programming specifically responding to statelessness situations
was still limited, patchy, and lacked coherent overarching strategy, partly because most funding
remained dedicated to refugee emergencies. Likewise, although acknowledging that “[t]he problem
of statelessness exists throughout the world and may be identified as a global issue,” Kingston
argued in 2013 that, “highlighting solutions that are similarly global in nature present[s] a major
obstacle for issue emergence” (p. 82).
Although international interest around statelessness gradually resurged in the late twentieth
century, it was not until 2014 that the UNHCR began to conceive of and frame its statelessness
work in global terms. This occurred through the launching of its IBelong campaign, which has
served as the central pillar of the globalization of statelessness work (discussed further in the
next section). Of course, this 2014 global turn in approaches to statelessness would not have
been possible without building on the key developments within the international human rights
system over earlier decades.
In addition to progressive strengthening of UNHCR’s mandate for statelessness worldwide
alongside its more well-established refugee work, the 2011 Ministerial Meeting, with more than
60 states making statelessness-related pledges, can be considered as prelude to a globalized
response to statelessness (UNHCR, 2011). Indeed, coinciding with the 50-year anniversary of
the 1961 Convention, this engagement constituted a “quantum leap” (UNHCR, 2014a, p. 7).
Building on this momentum, the IBelong campaign was born. Its foundational discourse and
promotional branding speaks to constructions of statelessness as a global(ized) issue. The next
section considers the context in 2014 within which this campaign emerged.
2014 as culmination of global(ized) statelessness discourse
The UNHCR has played a prominent role in shaping understandings of statelessness, culminating
in the 2014 launch of the global IBelong Campaign to End Statelessness within a decade (UNHCR,
2014d). The campaign launch represents a significant milestone in the statelessness sector, signaling the start of concerted long-term (multiyear) strategic efforts to address the issue. However,
2014 should be understood as the wider confluence of developments (including some in the
months prior to the IBelong campaign launch) that have collectively “globalized” the framing
of the international community’s response to statelessness. This can be understood through
Carpenter’s (2007) concept of issue (non)emergence within transnational advocacy networks (see
also Kingston, 2013). On this point, I support van Waas’s observation from that year (2014)
that, although it is challenging to pinpoint a precise moment of arrival, “we may, indeed, be
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