discussed then, the situation of stateless persons (non-refugees) was left for consideration at
a later date. A reading of the preamble to the Refugee Convention further indicates a ‘strong
human rights language’. 302 Specifically, the Preamble affirms the principle of nondiscrimination in the enjoyment of fundamental rights and freedoms, such as those set out
in the UDHR. Combatting discrimination is therefore a fundamental purpose of the
Convention. More generally, it is now the common view that ‘Refugees are owed
international protection precisely because their human rights are under threat’ and that
‘Human rights principles … should inform the interpretation of the definition to who is
owed that protection’;303 a strong interrelationship therefore exists between human rights
principles and refugee protection, based on the Preamble.
With reference to Article 1A(2) of the 1951 Refugee Convention, the case law surveyed above
indicates that not all stateless persons are refugees. Firstly, there is overwhelming agreement
and support amongst courts across the world that the inability (by being stateless) to return
to one’s country of former habitual residence due to practical obstacles does not amount to
persecution. What matters is whether the applicant can demonstrate a well-founded fear of
being persecuted on the five listed grounds. Courts generally acknowledge a clear link
between persecution and arbitrary denial of nationality resulting in the denial of the right to
return, and therefore assess persecution by reference to issues of nationality.
Secondly, the very lack of nationality may itself lead to severe discrimination amounting to
persecution, without consideration of return.304 This scenario is captured in the case law of
domestic courts, which shows divergence in the level of severity required for discriminatory
treatment(s) to amount to persecution. For example, the NZ RSAA and the US Court of
Appeal accept as persecution the denial of nationality together with the social and economic
problems faced by a stateless person provided these problems are sufficiently intolerable or
causing unbearable suffering. The case law of the US and German courts ought to be flagged
in this context as it contains elements of good practice. US courts (and similarly the German
Federal Administrative Court) view statelessness as a sufficiently deplorable condition itself
to amount to persecution provided it occurs on account of a protected ground, such as,
ethnicity or membership in a protected group,305 and this regardless of the consequences of
the act of denationalization.
This approach must be praised for it recognizes
denationalization for what it is: a severe and serious violation of human rights that entails
‘the total destruction of the individual’s status in organized society’.306 Hence, the misfortune
is ‘not the loss of specific rights, then, but the loss of a community willing and able to
UNHCR, Interpreting Article 1, p.1.
UNHCR Interpreting Article 1, p.2. See also, Storey, ‘Persecution: Towards a Working Definition’.
304 See in particular para.54 of the UNHCR Handbook: ‘… It is only in certain circumstances that discrimination
will amount to persecution. This would be so if measures of discrimination lead to consequences of a
substantially prejudicial nature for the person concerned, e.g. serious restrictions on his right to earn his
livelihood, his right to practice religion, or his access to normally available education facilities’.
305 The United States is a party to the 1967 Protocol, and this practice reflects that advocated in para.51 of UNHCR
Handbook.
306 US Supreme Court, Trop v. Dulles, 356 U.S. 86, 101-2.
302
303
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