Applicants for the UN High Commissioner for Refugees

I wish to thank ICVA for the opportunity to engage in a dialogue both in person in Geneva and in writing on my candidacy to lead the UNHCR given the critical role of NGOs in the humanitarian space.

At a time when forced displacement reaches historic levels and the multilateral system faces unprecedented stress, UNHCR must remain a beacon of humanity, legality and trust. It must preserve its mandate of global guardian of refugee protection while adapting to the rapidly evolving political, economic, and humanitarian landscapes to keep providing solutions to the plight of refugees. The task ahead is to ensure that the institution continues to defend the international protection regime with integrity, while engaging constructively with States and partners to sustain its effectiveness and operational impact.

UNHCR is today impacted by a triple crisis with profound political implications. First and foremost a crisis in humanity, with growing hostility towards refugees, forcibly displaced and stateless and with the weakening of the bond of shared responsibility which is at the heart of the 1951 Refugee Convention and the Global Compact on Refugees. Second a crisis in response, with severe cuts in financing significantly affecting refugees and host communities. Thirdly, there is a crisis of crises, with conflicts multiplying around the world and many of them becoming protracted.

Leading UNHCR in these troubled times will be a serious challenge. Having devoted more than 30 years of my life to international cooperation in my native Spain, at the European Commission and within the United Nations itself, I am aware of the growing difficulties, I am not naïve about the depth of the divisions and the breakdown in solidarity. But having worked in many of the world’s most complex contexts I am also humbly aware of the opportunities that come from relentless investments in building bridges and finding spaces for understanding with pragmatism and creativity. I have witnessed on the ground the devastation and suffering brought about by conflict but also the power of solidarity of neighbours, often low- and middle-income countries and partners. I have seen violations of most basic human rights, but I have also been part of efforts to protect and uphold them in a principled manner. I have seen the power of working together with states, other international organisation and with civil society partners doing admirable work on the ground to achieve scale and drive impact. I am conscious of the current funding challenges, and I am ready to work to address them. I have done it in the past. It is possible. It is more urgent than ever.

The organisation is already undergoing a painful restructuring, under the leadership of High Commissioner Grandi and his team. And these reforms are taking place concurrently with the changes being decided within the UN80 three workstreams and the ongoing Humanitarian Reset. The three need to be synergised.

In the short term, the first imperative is to stabilize the financial situation which will allow a more strategic setting of priorities. No stone should be left unturned in the effort at diversifying and expanding UNHCRs funding base. This includes deepening partnerships with traditional funders, engaging new ones, tapping into the generosity of individuals through UNHCRs national committees, enhancing partnerships with the private sector and focusing on more flexible and unearmarked contributions. At the same time, efforts should continue to maximize efficiency and impact. The short term should guide the medium to long term capacity of the organisation to be nimbler and more impactful.

In the medium term, UNHCR must evolve into a more agile and learning-oriented organization. This means investing in innovation, data, and predictive analytics to anticipate displacement trends, guide policy decisions, and strengthen risk management. The organization must also deepen its engagement in the humanitarian-development-peace nexus, integrating long-term perspectives from the start of crises to reduce dependency and foster resilience.

But restructuring is not only a financial or administrative exercise; it is also a human one. Rebuilding staff morale and trust is essential. Transparent internal communication, fair accountability mechanisms, and inclusive decision-making will be central to restoring confidence among staff and Member States alike.

While acknowledging that UNHCR is an intergovernmental organisation, I would also be guided by paragraph 34 of the Global Compact on Refugees when it says that “UNHCR responses are most effective when there is meaningful engagement of refugees and host communities”. It is not just tokenism; the reality is that there cannot be effective solutions without those most affected. This would be my guiding star. Empowering those UNHCR serves begins with shifting decision-making and resources closer to the field. Local teams and communities must be equipped to drive strategic choices based on the realities they face. This includes strengthening collaboration with national and local NGOs, whose contextual understanding and community trust make them indispensable partners in cost-effective and sustainable delivery. It also requires creating genuine legitimate spaces for refugees and stateless persons to contribute meaningfully to planning, monitoring, and evaluation processes. Their insights and experiences are essential to designing interventions that are both relevant and dignified.

Building a culture of partnership is equally vital. It is not “us versus them” but rather working “as one”. All stakeholders, including Governments, both local and national, UN organisations, International and local NGOs, refuge-led and women-led organisations, International Financial Institutions, host communities and, obviously, the forcibly displaced, must act together with a common sense of shared responsibility within their mandates.

The same is true within the UN family with UNHCR working closely with OCHA and reinforcing its cooperation with IOM to manage mixed movements through route-based approaches that recognize the complex drivers of mobility, while maintaining clear distinctions between mandates. UNHCR must also be a solid partner of development actors, particularly UN development agencies, first and foremost UNDP, and development banks, to strengthen national systems and public institutions in host countries, better linking humanitarian aid to longer-term resilience and inclusion.

The obligation to protect those fleeing danger was codified in the landmark 1951 Refugee Convention and its subsequent protocol. Since then, similar frameworks have been developed at the regional level in Africa, in Latin America or in Europe. States built these instruments, and states are accountable to implement them. The primary responsibility to protect is with states with UNHCR having supervisory responsibilities and the obligation to defend and uphold the legal compact and moral compass that it represents.

For some time now there is a growing questioning of the system of asylum, an erosion of humanitarian principles and more broadly a crisis in solidarity. Refugee protection is conflated with migration and instrumentalised for political purposes. At the same time the number of forcibly displaced keep growing as do “mixed movements”. Many situations have become protracted and questions such as internal displacement have grown significantly. All of this has created normative challenges and operational tensions. Yet the Convention remains a resilient and adaptable instrument, capable of guiding members through contemporary complexities. As custodian of the Convention UNHCR is uniquely positioned to help members operationalise the principles in the convention and adapt them to national specificities. And the more recent Global Compact on Refugees and the UNSGs Action Agenda on Internal Displacement contains avenues to address many of the challenges that we repeatedly hear.

As High Commissioner I would defend with vigour the principles enshrined in the convention but would also work with all members to identify practical and humane solutions, first and foremost with low and middle-income countries who host three quarters of world refugees. I would be guided by principled pragmatism anchored in dialogue, transparency and honesty putting forcibly displaced at the centre.

The humanitarian-development-peace nexus is not an abstract concept. For UNHCR it is the path towards sustainable protection. In a world where conflicts exponentially increase humanitarian needs, with the reality of protracted displacement as emergencies become increasingly prolonged it is crucial to ensure humanitarian action supports transitioning from short-term relief to long-term resilience and inclusion. And that this is integrated with conflict prevention and peace building and within the broader efforts at supporting countries achieve the SDGs and respect human rights. UNHCR must deliver by playing to its many strengths while contributing to bridge-building across the humanitarian, development, and peace pillars, enabling durable solutions rooted in national systems and community ownership.

UNHCR’s comparative advantage lies in its ability to connect humanitarian response with long-term investment. Using data, knowledge, and local analysis, it can support development partners and governments in prioritizing interventions that build resilience. Collaboration with international financial institutions, such as the World Bank and regional development banks, is key to aligning humanitarian objectives with national development goals.

During my tenure as Executive Director of the ITC we partnered with UNHCR to enhance economic and employment opportunities for refugees worldwide. This partnership aimed to improve refugees’ livelihoods by increasing their skills and connecting them to international trade opportunities, ultimately supporting their economic empowerment and self-reliance. It is one clear example of how the nexus can work in practice.

Operationally, such approaches must be rooted in a culture change that moves organisations from individual achievements to collective outcomes, that is supported by funding mechanisms that incentivise collaboration and that is embedded in joint accountability mechanisms.

The multilateral system established after the Second World War — with the United Nations and its specialized agencies, such as UNHCR, at its core — is undergoing a period of profound transformation. It now faces competition from national and regional agendas that, however, cannot match the UN as a provider of global security.

The uniqueness of the UN system can be illustrated by a simple thought experiment: if the United Nations did not exist and we sought to establish it today, would it be possible to create a common forum of 193 countries where every nation has a voice? Certainly not.

Yet we know that truly global fora are indispensable — for promoting peace and development, and for addressing issues related to displacement and refuge. The true value of internationally agreed conventions is highlighted during challenging times. UNHCR was needed yesterday, and it is needed today and tomorrow. I believe that UNHCR’s mission — to protect, assist, and find durable solutions for displaced people — is more essential than ever.

We are seeing narratives that are increasingly hostile towards refugees in many Western countries, many of whom are also reducing their funding to humanitarian assistance, and focusing development aid to countries with better promises of trade benefits. At the same time, we have more refugees, asylum seekers, stateless people and displacement than ever before. The crises they are fleeing are politically difficult to solve, and increasingly protracted. Climate change is also pushing people to move.

The truth is that UNHCR will be in an increasingly difficult position in the years to come. It will have to reform and adapt to ensure delivery at country-level; it will have to prioritize services while coordinating with host nations and donors; it will have to bring in development actors and political action for more permanent solutions for displaced persons. UNHCR will need a leader who can listen to different sides and come up with implementable solutions for all. All this must be done while ensuring the UNHCR is listening to what displaced persons themselves need and want.

Why am I a candidate for the position of UN High Commissioner for Refugees? I am a long-serving Member of Parliament who has held several ministerial positions — twice as Minister for Development and Humanitarian Assistance, and most recently as Minister for Foreign Affairs. As Minister, I have successfully steered several large organization-wide processes. I have also worked within the United Nations (UNEP) for six years, leading post-conflict environmental assessments in the Balkans, Afghanistan, Iraq, the Occupied Palestinian Territory, Liberia, and Sudan. In addition, I have served as the EU Special Representative and as a UN ASG-level adviser on the crises in Sudan and Darfur. I have seen firsthand what the nexus between displacement, development, and peace truly means.

In my work within the UN, I have gained valuable insights and leadership skills from within its organizational structures. I have also learned both the challenges of internal UN coordination and the critical importance of cooperation with other actors — including civil society organizations and local groups — in achieving meaningful results. In all my positions, I have emphasized the value of networks and the importance of understanding the realities on the ground.

We are living in a time of change — but within UNHCR, change must be managed and guided. I want to thank every UNHCR staff member for their commitment, dedication and contribution, and I fully understand the significant impact that major transformations can have among the organisation’s personnel.

The UNHCR has been — and will remain — a cornerstone of the United Nations family. I commit to ensuring that UNHCR will remain strong despite being smaller. Our shared task is to renew it for a changing world — with courage, cooperation, and compassion.

My first priority would be to place UNHCR’s financing on a more stable footing. This requires renewed dialogue with donor countries — and, hopefully, an increase in the number of states contributing to humanitarian assistance. Greater cooperation with regional development banks will be essential. UNHCR has been a pioneer in mobilizing funding from the private sector. I intend to build on the work done thus far and to accelerate the efforts. Nonetheless, UNHCR must be at a size that is financially viable in the longer-term; it must define which services and geographical areas are priorities, and where it has to rely on others to do the job. This means having some tough discussions and listening. The task that UNHCR will set out to do, will also have to be realistic for UNHCR’s staff to implement.

My second priority would be to strengthen cooperation with other UN agencies, international organisations, and local actors. Each partner has its own comparative advantage, and by combining the strengths and efficiencies of different actors, we can achieve more impact with the same financial resources. I believe this is crucial both for refugee-hosting countries and for the donor community.

Dialogue among host countries, donor countries, and operational partners is of utmost importance. It is essential that UNHCR shares accurate information with its partners and listens carefully to them. I have appreciated that the current High Commissioner, Filippo Grandi, listens attentively to member states’ interventions during Executive Committee sessions and responds to them. I would act in the same spirit, and I believe that dialogue and building strong partnerships is where I have much to offer.

Forcibly displaced and stateless persons are the best experts on their own situations. It is therefore key that they are also active and engaged around the selection process for the next High Commissioner for Refugees, asking questions and making their voices heard.

In my own country, Finland, I have worked extensively with organisations representing refugees and defending their rights. I was also the founder of the Human Rights Group in the Finnish Parliament. During my term as Minister for Foreign Affairs, Suldaan Said Ahmed — a representative of Finland’s Somali community — was appointed as my Special Envoy for Peace Mediation. It is important to recognise the strength and potential of the diaspora in advancing peace and development.

Throughout my political career, I have worked closely with citizens and civil society organisations. Finland is one of the UN member states that consistently includes representatives of civil society in its UN General Assembly delegations.

UNHCR has been a pioneer also in promoting broader participation by citizens and civil society. I would continue to advance along this path. UNHCR’s work to support refugee-led organizations and institutionalize their participation in decision-making is something we need to continue to push further. It is not only morally right; it is necessary. If we want more permanent solutions, we cannot do this without hearing the people for whom these solutions are intended.

Operational actors – especially local organisations – are those most familiar with field realities. They are on the ground, and respond before, during and after crises, and are the backbone of humanitarian and refugee response. So as High Commissioner, I would ensure that UNHCR focuses on its mandate, expertise and added value within the larger humanitarian ecosystem and in the countries that it operates – to be a strong supporter, enabler and partner to operational actors. Humanitarian and refugee responses are not sustainable, effective or accountable without these close partnerships.

Engaging and increasing the role of national and local organizations in aid delivery creates more sustainable outcomes, and it is more cost-effective. We need to increasingly move in this direction step-by-step.

This is one of the most important questions. UNHCR has a vital and central mandate to protect refugees and stateless persons, and as High Commissioner I would act fully in line with this mandate and defend it firmly.

UNHCR must also take part in the public debate concerning refugees and their place in the world — not only because of its mandate, but because through its operations and global network, UNHCR has the most comprehensive overview of the global refugee situation.

In many countries, public discourse about refugees can be discriminatory, dismissive, or even hostile. This makes accurate and fact-based information absolutely essential.

Even in contexts where refugees are portrayed as a source of problems, UNHCR must remain present in the discussion, bringing forward its own perspectives and evidence.

We need to ensure that the refugee protection regime is respected globally, so that it will stay credible and effective. While being clear on the fundamentals of the importance of international protection, as High Commissioner, I would be ready to engage in dialogue with all actors on current challenges. We should not be scared of dialogue, but see it as an opportunity to increase understanding and agreement.

In a world where discussions increasingly revolve around security, it is crucial to demonstrate how upholding UNHCR’s mandate and maintaining effective tools for addressing refugee situations actually enhance collective security — and how the world would be far less safe for everyone without a functioning international refugee protection system. The protection, humanity, predictability, and collaboration between countries that the Convention Relating to the Status of Refugees has brought globally is exceptional.

It is also important to remind everyone that we are talking about people, and that refugee protection and the global asylum system provide protection for us all.

The intersection between humanitarian assistance, development, and peace is real, and it would be a mistake not to consider the linkages between these areas. While the United Nations and the international system have dedicated organisations for each of these themes, my answer is increased and seamless cooperation among these actors. The future High Commissioner has a key role to play in this regard.

In my earlier career, I have also witnessed “friendly fire” situations between organisations — and in such cases, everyone tends to lose. From the donors’ perspective as well, it is encouraging when organisations are able to cooperate effectively and harmoniously.

There is also some overlap within the UN system itself, which processes such as the UN80 and the Humanitarian Reset aim to address. While they arise from a challenging starting point and bring about change that can be difficult to accept, I consider the much-needed reform effort a positive and welcome one.

Unfortunately, there is no end in sight for UNHCR’s core tasks. The world’s refugee challenges will not be resolved quickly, but we must work tirelessly to ensure that secure resettlement in a new country, safe and voluntary repatriation, or – if neither works – sustainable integration in host countries are all real and achievable options. We also need political solutions for countries in crises, and we need to enable safe conditions for repatriation. In addition, we cannot ignore the impact that the changing climate has for the forcibly displaced and host communities, whether through repeated droughts or floods.

Even if the times are different, luckily we don’t have to invent the wheel again. The Global Compact on Refugees includes the main elements already. Especially in increasingly protracted situations, the key is to increase responsibility and burden sharing.

A refugee’s life is a full human experience — and in addition to protection, water, food and health, it must include shelter, education for children, opportunities for employment, and above all, a life in dignity. This can best be supported with the tools, capacities and resources of UNHCR, through smooth and effective cooperation among organisations and actors.

I understand the gravity of the moment. We are facing a profound crisis of protection: the convergence of conflict, climate change, growing demographic trends and a rising hostility to multilateralism is driving up displacement and statelessness, shrinking asylum space and threatening to reshape the international order in ways that could erode the very notion of international solidarity.

This crisis is compounded by an unprecedented financial emergency across the humanitarian system and within UNHCR itself, which has seen budget cuts of nearly 40 percent and the loss of thousands of staff positions, negatively affecting programme delivery for millions of refugees, as well as staff morale.

My vision for UNHCR is therefore grounded in a sober acknowledgment of the difficulty and complexity of this situation. It calls for pragmatic, principled and people-centred leadership by the High Commissioner to deliver on the dual goal of shoring up and strengthening the refugee protection regime, and building an agile, effective, and accountable organization that concentrates its attention and resources on its core protection mandate and on areas where it can demonstrably add the greatest value. More than ever, as the Custodian of the 1951 Convention and related treaty, the High Commissioner must be a defender of international law, a builder of coalitions, a voice of moral authority on behalf of the displaced, and stand firm on humanitarian principles, ensuring that efficiency never trumps ethics.

I believe that I am fully prepared to lead UNHCR because of my personal history, political leadership, and lifelong commitment to justice and solidarity.

My family’s story is rooted in exile. My grandfather fled General Franco’s Spain during the Civil War, seeking refuge in France. After returning, he was condemned to death—though eventually pardoned—and ultimately imprisoned. I learned early that the right to asylum is not an abstract principle but a matter of both survival and dignity. This, and my feminist commitment, has given me a sense of mission to protect those who flee.

As mayor of Paris—the first woman ever to hold this office—I directly confronted the consequences of global crises.

During my two terms, I have led one of the world’s most complex cities through terrorist attacks, social unrest, mass migration, and the COVID-19 pandemic. Each crisis tested my ability to make difficult decisions swiftly, stand firm on principles, and bring people together when fear and division loomed.

I therefore have extensive experience in managing large, complex organizations in crisis. For over a decade I led a municipal workforce of over 55,000 people, managed an annual budget of EUR 9 billion, delivering frontline services while shepherding a difficult institutional reform process that boosted the effectiveness and morale of the city’s administration.

My leadership has transformed Paris—advancing sustainability, pedestrianization, cycling infrastructure, and green urban policies—in ways that placed me at the forefront of international climate diplomacy. I have chaired C40 Cities, a grouping of 100 of the world’s largest cities; currently serve as president of the International Association of Francophone Mayors (AIMF), which brings together 300 mayors, of whom 80 per cent lead cities in Africa; and am a global ambassador for both the Global Covenant of Mayors for Climate and Energy (GCOM) and United Cities and Local Governments (UCLG). My experience preparing Paris to host the Olympic and Paralympic Games, one of the most complex international events of our time, also stands as a strong testimony of my capacity to lead, raise funds for and build coalitions to successfully deliver a major global project.

The future of displacement is increasingly urban, and the solutions will be built not only at central government level, but also in the city halls, community centers, and local businesses of host countries. My experience as Mayor is not only relevant to many of the core challenges the organization faces. It has also profoundly shaped my mindset and approach in ways that I believe will have prepared me to lead UNHCR well: the work of mayors is to build and work collaboratively with teams, and to provide services and an enabling environment for people from birth to death.

As my entire career has been defined by local, bottom-up action – implementing participatory budgets and building broad coalitions with civil society – I will bring to UNHCR the specific, highly relevant practical, ground-up experience and skillset of a local solutions insider.

My firm conviction is that such bottom-up approaches are essential to enrich and strengthen multilateralism, and I am deeply grateful for the support of so many countries and cities from both the Global North and South for my candidacy. I take their endorsement as a clear sign of their trust in my strong coalition building skills, essential to get different national and local stakeholders to work together to turn the principles of the Global Compact on Refugees into a reality.

I would be honoured to serve as High Commissioner, to defend protection space, to strengthen UNHCR’s presence in the field, and to ensure that refugees, the stateless and other displaced people everywhere are treated not as a burden but as human beings with rights, dignity, and potential.

My immediate objective will be to consolidate the political and financial support required to improve refugee protection. To this end, my attention will be focused on three interconnected priorities: fundraising, shoring up political support, rebuilding the organization’s internal strength and rekindling its morale.

First, the issue of financing is central. I will lead a robust and creative fundraising strategy, making a compelling case to traditional country donors, boosting support from other countries and enlarging to new ones. As hosting countries, largely in the global south, bear the brunt of the costs of hospitality, other countries, especially those in the North, must pay more and I will be relentless in pressing this point with them. I will also actively tap new and innovative funding sources. I will endeavour to forge new coalitions across governments, cities, NGOs, civil society, and non-traditional donors to strengthen UNHCR’s reach and increase resource channels. This will be coupled with internal reforms to make UNHCR more efficient and effective, demonstrably improving value for money to inspire donor confidence.

Second, we must enhance political support for UNHCR’s protection mandate and ensure effective delivery of protection, assistance and solutions to those we serve. This requires a strategic clarification of our role to ensure we focus where we add the most value and adjust to ambitious but realistic fundraising prospects. This is not about shrinking our mandate, but about clarifying roles for greater impact. I will work with our sister UN agencies and NGO partners to ensure that the refocusing of UNHCR’s work is done responsibly, preventing any gaps in protection or services for those in need.

My experience has shown me that protecting women and children is not just a worthy end in itself, but also a powerful lever of inclusion and social welfare. I intend to ensure that we continue to center them at every turn, through UNHCR’s work and that of NGO partners.

Third, this strategic prioritization will inform a review of our organizational footprint, building on the work already started, to ensure our structure is fit for purpose following the recent drastic cuts. This is not about doing more with less, but about focusing on what matters most and empowering our staff and NGO partners to deliver.

To achieve these goals, we must invest in our people. Working for refugees and the displaced for UNHCR’s staff and those of its NGO partners is more than a job. Their motivation is rooted in a deep, lifelong commitment to refugees and justice, which I share. I look forward to working with them to support, strengthen, and bring new resources to this vital organization and its dedicated workforce.

My immediate priority will be to re-engage and remotivate a workforce that has been hurt by recent cuts, which while necessary in light of the situation, were traumatic for many. In this regard, I will be paying particular attention to our national staff and those closest to the communities we serve, who deliver protection and facilitate assistance and solutions at the “first kilometer”. This will involve determining where functions should best be placed between HQ, regional bureaus and country operations to best deliver protection and facilitate assistance and solutions to those we serve.

My leadership will be empathetic, focused on rebuilding the psychological safety of our staff, as we cannot deliver principled action without a motivated and supported workforce.

This entire process will be guided by collegiality, trust-building and transparency. I commit to regularly communicating our reform plans and budget decisions internally and externally, ensuring our partners and the public are fully informed as we navigate this crisis and rebuild a stronger, more resilient UNHCR together.

While working out a detailed, full-scale program will necessarily require extensive engagement and consultations as outlined above, I would like to share some of my initial reflections on how to improve partnerships, building on the strong basis laid by Filippo Grandi and his team.

First, we must meaningfully improve our partnership with refugees and affected populations. Rebalancing power and fostering genuine partnerships demands a profound cultural shift. Building on what has been achieved to date, I am committed to doing the utmost to take concrete and trackable steps so that our actions towards refugees, the displaced and host communities are co-constructed and delivered with them, and to ensure that their voices influence global debates. To this end, we need to provide greater support to refugee-led organizations (RLOs), particularly those led by and looking after issues important for women.

Moreover, to localize effectively, we must shift from a supply-driven, project-based approach to a more demand-driven, area-based model. Working with local actors, we can co-design holistic, multi-year plans that respond to community-defined needs, truly localizing our response and operationalizing the HDP Nexus. Our NGO partners should be at the forefront of this effort.

Second, concerning NGOs I will strengthen our alliances with the local, national and international NGOs as well as civil society and local authorities that are at the front end of humanitarian and protection delivery.

In this regard, we need to acknowledge that despite years of discussion on localization, and some notable headway, we must do better for UNHCR’s 900+ NGO partners. Simplification of our bureaucratic requirements, which disproportionately burden local NGOs, will be my priority. This could include championing a new approach on overheads for national partners within the IASC, and pushing for a simplification of due diligence for NGO partners.

In refugee settings, HCR has the mandate and capacity to take much of this forward, with the support of our donors. In non-refugee settings, we will need to work collegially with our IASC partners to deliver change.

Change starts with ourselves. Staff should be UNHCR’s agents of change. As such, while they will need to both embrace and adjust to change and the new partnership paradigm, they must be supported by the organization with enabling policies and leadership to do so.

To ensure this does not remain just a statement of intent, I will commit to developing early in my tenure, a set of specific and trackable actions, grounded in consultations with staff, refugees, NGO partners, national and local authorities as well as IASC partners, to meaningfully move the dial on partnerships in the coming years.

Keeping protection at the center in both words and deeds—the core of my mandate as custodian of the 1951 Convention and related treaties—will be my highest priority. In today’s fraught political context, defending the right to seek asylum requires more than just asserting principles; it demands sophisticated humanitarian diplomacy, strategic action, and an unwavering commitment to international law.

My approach will be one of principled pragmatism. I will be a tireless and principled advocate for refugees, speaking truth to power when necessary, following in the footsteps of Filippo Grandi. Effective advocacy requires engaging with states not only on the basis of law and compassion but also on their own security, economic, and stability interests. We must build ‘coalitions of the willing’ to find practical solutions that uphold protection standards. When necessary, I will not hold back from holding governments accountable for violations of international law, such as refoulement, pushbacks, and the offshoring of asylum.

This vision is also grounded in my mayoral experience, when I had to find dignified solutions to welcome tens of thousands of refugees from Syria, Afghanistan and elsewhere in Paris. Working together with civil society, NGOs and communities, we demonstrated that it was possible to generate public support for refugee friendly policies.

Defending and, where possible, reinvigorating the protection regime requires a multi-faced strategy. The GCR will be central for me. It provides clear commitments essential to operationalize the 1951 Convention in the 21st Century. I would like to pay tribute to all those who worked hard to make the GCR a reality, and will make its implementation my highest priority. This could include:

1) Working to support States and to carefully strengthen global Legal Frameworks and Norms in developing the right and highest standard normative framework at national level, and to implement durable solutions and protection. Recognizing the link between safe migration and asylum, I believe strengthening the UNHCR-IOM partnership should be a top priority to harmonize our approaches on mixed migration and complementary pathways. Throughout, we will need to be vigilant and stand firm on the 1951 Convention and the principle of non-refoulement and defend the existing legal framework against erosion.

2) Protect Humanitarian Space: I will proactively advocate for the protection of humanitarian space and the security of all aid workers. The ability of UNHCR and our NGO partners to operate safely and independently is essential.

3) Prioritize the Most Vulnerable: I will put women, children and other vulnerable groups first. This includes an absolute commitment to making the prevention of and response to Sexual Exploitation and Abuse (PSEA) an operational priority.

4) Win the Narrative War: We must counter the toxic narratives that fuel xenophobia and erode solidarity. I will explore investment in strategic communications, working with tech companies, media, and academia to anticipate and counter disinformation campaigns.

5) Improve emergency response capacity: Even as we pursue long-term solutions, as our ability to deliver life-saving protection effectively and in a timely manner when new crises arise is ultimately what makes the greatest difference for those affected by displacement.

Working effectively across the Humanitarian-Development-Peace (HDP) Nexus is essential for finding durable solutions, but it requires greater clarity on UNHCR’s role and that of other stakeholders. My position is clear: UNHCR cannot and should not be a development or peacebuilding agency, and our role in the Nexus is to be an indispensable catalyst and guarantor of durable solutions rather than an implementer. In practical terms, this means that UNCHR should use its expertise and field presence to ensure that development and peace initiatives are designed with and for displaced people, that their rights are respected at every stage, and that humanitarian principles are upheld.

I believe that this strategic focus is not just a matter of principle; it is made necessary by the combination of the growing complexities of asylum, statelessness and the financial crisis we are in. Delivering on this requires acting on a number of fronts simultaneously:

1) Break the cycle of prolonged emergency assistance: We must more systematically establish mechanisms for responsibly transferring responsibilities to states and development actors whenever conditions allow. One of my objective is to evolve camps into cities that offer protection, education essential services and access to the labor market. This requires investing in local capacity and advocating for the inclusion of refugees in national development plans. I will push for greater mobilization of Multilateral Development Banks (MDBs) to support host countries in this transition. Working closely with States, local authorities and sister UN mandated agencies such as UNICEF, WHO, UNHabitat and UNDP WFP will be essential in this regard.

2) Facilitate new solidarity pacts: Building on the Comprehensive Refugee Response Framework (CRRF), we will strengthen UNHCR’s role as a facilitator.

3) Build a New Funding Architecture: A primary obstacle to the Nexus is the lack of effective funding for protracted crises. I will propose to convene a high-level initiative with the World Bank, other MDBs, and the private sector to develop innovative financing mechanisms—such as resilience bonds and blended finance instruments—that can bridge the divide between humanitarian and development funding streams.

4) Champion responsibility-sharing: I will be a vocal advocate for a more equitable sharing of responsibilities between the Global South, which hosts 75% of refugees, and developed states. This means pushing for greater financial solidarity and remaining a tireless advocate for the expansion of resettlement programs.

5) Better integrate climate action: Given the prospects of growing climate induced displacement and statelessness, UNHCR’s credibility depends on more fully integrating climate considerations into our work.

6) Contribute to peace by facilitating voluntary returns, promoting social cohesion, and coordinating with peace actors to ensure refugee perspectives are included in peace processes. Throughout, our actions will remain principled and needs-based, and we will always retain our independent voice on protection.

I would be honoured to serve as High Commissioner. I am ready to commit all my heart, energy and capacities to defend protection space, to strengthen the organization, and to ensure that refugees, the stateless and other displaced people everywhere are treated not as a burden but as human beings with rights, dignity, and potential.

My vision for UNHCR is to uphold and strengthen the protection of people forced to flee, restoring their dignity and helping them rebuild safe and thriving futures. UNHCR must defend the integrity of international asylum systems while modernising its protection tools to meet today’s realities—marked by instability, climate change, and deepening inequality.

Its unique mandate—to turn legal frameworks into tangible protection—must remain at the heart of its work, balancing the defence of rights with the promotion of self-reliance and agency among displaced people. In a world of limited resources and complex politics, UNHCR must deepen collaboration across the UN system, especially with OCHA and IOM, to reduce duplication and harness shared strengths. Route-based cooperation along key migration and displacement corridors can enhance protection, continuity, and collective impact.

I bring more than 30 years of humanitarian experience with Médecins Sans Frontières, from frontline operations to international leadership. I have witnessed both the courage and suffering of displaced communities and the pressures on host populations. As International President of MSF, I advocated for people on the move in the Sahel, the Balkans, and the Americas, while engaging governments and donors to find principled, pragmatic solutions. I have also managed austerity budgets and made difficult organisational choices grounded in our humanitarian mission.

As a board member and now Chair of the Centre for Humanitarian Dialogue, I have seen the quiet strength of impartial mediation and discreet diplomacy—approaches that build trust even in the most polarised settings. My leadership style is grounded in humility, service, and collaboration—guided by the belief that protecting life and dignity is a shared responsibility. Finally, I acknowledge a personal bias towards people on the move: I am myself a product of migration, from parents who left Asia decades ago in search of a better future.

In the short term, my priority would be to stabilise and re-energise UNHCR’s workforce after recent layoffs and financial strain. Staff morale and trust are the foundation of effective protection. The organisation must regroup around a clear, common direction centred on forcibly displaced people.

In the medium term, I would guide a pragmatic re-prioritisation of activities. UNHCR should sharpen its focus on its protection mandate, diversify funding sources, and strengthen operational efficiency through shared platforms and partnerships. Collaboration with OCHA and IOM, including through route-based approaches, can create coherence and resource optimisation across displacement contexts. Recognising that budgets may not rebound quickly, UNHCR must make choices transparently—acknowledging trade-offs, engaging openly with staff and partners, and maintaining humanity in all internal decisions. Clarity, accountability, and compassion must guide this period of adaptation.

Rebalancing power in humanitarian action is long overdue. People affected by displacement must be recognised not only as beneficiaries but as key actors in shaping their own protection and recovery.This requires shifting decision-making, resources, and leadership closer to affected communities, with increased direct funding to local, community-led, and refugee-led organisations, alongside strong accountability to those we serve.

UNHCR must also strengthen partnerships across the humanitarian ecosystem. Working hand in hand with OCHA, IOM, and other agencies can help preserve protection space, navigate political sensitivities, and improve continuity of response. Route-based collaboration with IOM, in particular, offers a framework to protect people along their entire journey—from origin and transit to destination and return. It must never become a tool to stop people’s movement, but rather a way to safeguard their rights throughout the journey. This is how we can build a more inclusive, legitimate, and effective humanitarian system.

The global protection framework is under strain. Pushbacks, externalized asylum policies, and the criminalisation of asylum seekers and humanitarian workers reflect a worrying erosion of international norms. This moment demands moral clarity and principled leadership—tempered by realism and engagement.

As High Commissioner, I would ensure UNHCR continues to act from a principled foundation— upholding non-refoulement and access to asylum—while working constructively with states to identify humane and workable solutions. UNHCR must also help shape a counter-narrative that restores our shared sense of humanity and collective responsibility. Transparency—both about progress and shortcomings—will be essential to rebuilding trust with member states, donors, and the people we serve.

In protracted crises, UNHCR must bridge humanitarian response with long-term development and peacebuilding. Durable solutions emerge when protection is linked to inclusion—access to work, education, and rights for both refugees and host communities. A developmental mindset should guide UNHCR’s approach, embedding protection within broader recovery and stability efforts.

Collaboration across the nexus is key: with OCHA and IOM in crisis coordination, with UNDP and development banks on resilience and inclusion, and with local authorities for implementation. Route- based cooperation with IOM can strengthen continuity of protection and return strategies. Upholding international humanitarian law and protecting civilians remain the moral anchors of this work— because peace and development cannot take root where dignity and rights are denied.

More than ever before, the international protection system is under pressure, with funding constraints, deteriorating levels of trust, the multiplication of conflict, and a growing complexity of the operating environment. Ensuring that UNHCR is capable of delivering on its core mandate of protection, assistance and sustainable solutions within this difficult geopolitical environment, is what motivated me to run as a candidate for the position of High Commissioner, with humility but firm determination.

Ensuring the protection of refugees, displaced and stateless persons must remain the cornerstone of humanitarian efforts. In my view, protection should be at the heart of any humanitarian response and must go beyond good-quality programming. UNHCR needs to be present where it matters most, working closely with communities in conflict or at risk, and listening to their needs. This focus on protection is also about preserving human dignity in the face of displacement and crisis. While emergencies must receive continued focus, the emphasis should also be put on long-term sustainable solutions for refugees and displaced persons, as well as for their host communities and the potential crisis within the protracted crises. Only sustainable solutions can help refugees and displaced persons to become less aid-dependent, while at the same time empowering host countries, by assisting them in enabling access to education, healthcare, employment opportunities and the prospect of a better future. Ultimately, UNHCR needs to be where human needs are greatest, not only in moments of crisis, or when media and donor attention is at its peak, but also on the path towards durable solutions.

I believe today’s global displacement challenges demand realism, empathy and perseverance. The High Commissioner is both the face and the leader of the organisation. As a principled yet diplomatic communicator, I would, as High Commissioner, foster partnerships and build bridges, with a wide range of stakeholders, including host countries, member states, donors, other UN agencies, and civil society organisations. In a time of financial scarcity, my vision is to ensure UNHCR continues to focus on building sustainable partnerships, across the public and private sector. Whereas protection must remain the compass, efficiency, innovation, and shared responsibility are the way forward.

In order to fulfil this task, I believe I bring a credible blend of external and legal expertise, a strong sense of responsibility and proven management capabilities to the table: qualities that could significantly contribute to the leadership of UNHCR in the years ahead. As a Minister for Asylum and Migration, I needed to demonstrate clear vision, and worked with a strong sense of collaboration, bridging political debate with practical solutions, always in dialogue with relevant stakeholders. Listening carefully, weighing different perspectives, and making decisions balancing between principle and pragmatism, has always guided my work. Leading complex negotiations, both nationally as well as multilaterally (for instance during Belgium’s Presidency of the Council of the European Union in 2024 and the conclusion of the European Pact on Asylum and Migration), formed me as a results-oriented, determined and reliable negotiator, with the ability to engage with diverse views and build consensus. Throughout my time in office, I have always invested in building strong and constructive international relationships across people and regions, resulting in a broad network of trusted international partners that strengthen my capacity to serve as an effective and unifying global leader in the field of refugee protection.

As a Minster, I needed to balance humanitarian imperatives with budgetary and political constraints. That experience could be vital at UNHCR, where needs are outpacing available funding and political restraint may be growing the next couple of years. I have the experience of negotiating budgets for the expansion of reception facilities in budgetary difficult times. Trained as a lawyer and holding a PhD in International Refugee Law, I have built a career grounded in legal depth and marked by direct engagement – from working with refugees as a protection officer and in civil society to shaping international policy at the highest level. This combination of political leadership, academic expertise, and hands-on operational experience in the field of asylum and migration, formed me both as a diplomat and decision-taker capable of negotiating pragmatic solutions at the highest level, while always defending the most demanding principles of protection.

The difficult budgetary reality has already compelled current High Commissioner Grandi and his team to make tough decisions, regarding the organisation’s staff, internal structure and operations, in order to ensure that UNHCR can continue to deliver on its core mandate with fewer resources. The next High Commissioner will have to continue on this path and focus on priorities, always with the people UNHCR serves in mind, and make decisions based on the needs in the field. Yet the longer-term questions remain pressing: What should the organisation look like in 10 years from now? How should the protection system be structured, and how should we be organised at UN level to safeguard it? And where will the necessary funding be found? These are challenges that must be addressed in the period ahead and are also intrinsically linked to the ongoing UN80 process and the humanitarian reset. I aim to rebuild the organisation in a modern and fit-for-purpose organisation that will be able to react in an agile way not only to today’s, but also tomorrow’s challenges.

Firstly, in an environment with tightly earmarked funding, a growing key challenge to UNHCR is how to ensure resources are allocated according to the needs on the ground. Clearly, there is an urgent need not only to expand the volume of core financing for UNHCR, but also to reform the architecture through which it is delivered, including the strategic place of pooled funds in the humanitarian structure. The current funding constraints show a clear need for diversification of UNHCR’s funding, with more flexible, predictable and pluri-annual core funding. Due to the voluntary nature of the funding, it is essential for the next High Commissioner to make this a top priority. Partnerships with the private sector and development banks are promising, and should be further stimulated, for example in shaping sustainable responses such as labour market integration, but traditional donors will need to be encouraged to step up as well.

Secondly, prioritising UNHCR’s position in the upcoming UN reforms is crucial for me. Improving its operational efficiency in the UN system and strengthening the cooperation with other humanitarian agencies as well as development actors while being loyal to the principles upon which it was founded, is more important than ever before. I want to continue UNHCR’s leadership role in contributing to these reforms, both in the short and the medium term.

In that regard, strengthening the general operational efficiency within the UN system is a no-brainer, for example in core service areas, such as procurement, finance, ICT, logistics, and HR. But we need more than that. We need courage to think outside the box. Streamlined operational coordination with UN partners at the field level (not only in internal displacement situations, where there has already been significant improvement), as well as a strengthened cooperation with development actors, needs to be further encouraged. UNHCR should also play a catalyst role for host communities, breaking down silos and presenting sustainable solutions in partnership with development actors, that benefit all residents of the host country. Specifically in protracted refugee situations, the inclusion of refugees in national development plans helps them become economically active and self-reliant. If we really want to make the paradigm shift from crisis to solutions, this is crucial. As I have always done throughout my career, I intend to work more closely with NGOs, including local NGOs, and to actively involve refugee-led organizations in these processes.

I strongly believe that refugees should not only be seen as beneficiaries of aid, but as full-fledged agents of change, that can provide solutions and drive resilience for their communities. As High Commissioner, I want to involve refugee-led organisations as true strategic partners in the development and implementation of policies on protection and sustainable solutions. Therefore I would establish concrete mechanisms for regular consultations, as well as provide direct and flexible funding for refugee-led organisations, in order to strengthen their capacity for action. I have witnessed myself the value and strength of their work in the field, both in terms of practical solutions as well as in policy-making, including at the national Belgium level when working on our national pledges for the Global Compact on Refugees.

Recently in Kenya, I visited a refugee-led organization, supported by UNHCR, that operates a child-friendly space that allows refugee mothers to pursue work or education while their children are cared for in a safe and nurturing environment. I witnessed how the organisation provides vocational training, financial literacy programs, and psychosocial support services. Moreover, among the beneficiaries of their programmes were about 40% vulnerable Kenyans. This strong example of community empowerment, building stronger communities through education, skill development, and sustainable programs, creates lasting positive change for the refugees as well as their host communities.

Working to ensure that forcibly displaced and stateless individuals are genuinely involved in shaping the policies and actions that impact their lives is something that I want to further strengthen. I strongly believe we need to continue advancing locally-led protection systems. By partnering with municipalities, civil society and the private sector, UNHCR can continue to build stronger and locally rooted responses. In recent years, decentralization of its own organization has clearly helped UNHCR to work closely with and through country systems and local actors. We must therefore ensure that the current reductions do not result in setbacks for these operations.

Local actors are often the first responders in humanitarian crises and play a vital role in providing protection and assistance, particularly in areas with limited access for UNHCR and other UN actors. As a signatory of the Grand Bargain, UNHCR has already placed strong emphasis on localization as a key element of its protection and solutions work, with support reaching hundreds of refugee-led and community-based groups. These efforts have included tailored training, improved coordination structures, and easier access to funding. These organizations have subsequently led initiatives ranging from rights-based advocacy and psychosocial support to improving access to housing, education, and employment, thereby promoting grassroots solutions. In my opinion, UNHCR should continue to support efforts to strengthen local governance by collaborating with municipalities and civil society to build inclusive, community-informed systems.

This year we are marking the 75th anniversary of UNHCR. Next year, we will also be marking the 75th anniversary of the 1951 Convention. These two events should not be taken lightly. And indeed, never in these 75 years, the international protection regime has been under pressure like it is today. In some parts of the world, questions are rising about the viability of the 1951 Convention. Certain states have effectively ended, or are considering ending, access to asylum and adherence to the principle of non-refoulement. At the same time, the multilateral system’s ability to respond to the rising numbers of refugees and displaced persons is being constrained. Finally, the reasons for people to flee have also become more complex and varied than before, because the world is more complex and the push factors have evolved accordingly.

As High Commissioner, a central concern for me would be the question of restoring public trust and support for the provision of non-refoulement and asylum. As global advocate on behalf of refugees and displaced persons, an important task of the High Commissioner is to continuously raise awareness in the public debate. In my opinion, this is also crucial to ensure member states’ support for refugee protection. In this context, I will continue emphasizing to them that UNHCR’s core mandate also contributes to global stability and can curb increasing secondary migration movements.

I firmly believe that, now more than ever, we need to approach migration and protection in a humane, effective, and legally sound way. Refugees and displaced persons have the right to safety, to dignity, and to prospects for the future. At the same time, migration must be managed with respect for national contexts and with a strong sense of solidarity. That requires leadership capable of building bridges between countries, between beliefs, and above all, with the people at the heart of these issues. In that regard, a High Commissioner needs to uphold humanitarian principles in the delivery of protection and humanitarian assistance, and to remain impartial while maintaining trust and credibility with the governments of donor and host countries. Exercising strong leadership and personal authority, is for me essential.

In the debate on innovative approaches to refugee protection and territorial asylum, I believe UNHCR should actively contribute to finding new approaches and global partnerships with host and destination countries, without lowering the bar grounded in international law, and with core human rights principles as our compass. Questions on the possible restriction or expansion of the refugee definition in the 1951 Convention, or on how to keep respecting the principle of non-refoulement when discussing externalisation of asylum procedures as an alternative to territorial asylum, will undoubtedly further shape the debate on refugee protection in the coming years. As a High Commissioner, I want to be actively involved in these debates. Modernising the protection architecture with approaches that are globally equitable, operationally workable, and legally sound, can help to prevent the unravelling of the refugee regime, and restore trust of both governments and the wider public.

As the guardian of the 1951 Refugee Convention and its 1967 Protocol, I want to continue to lead efforts to advance the agenda of the Global Compact on Refugees as High Commissioner, including by convening the Global Refugee Forum. I believe both are strong achievements in creating clear international frameworks on solidarity and burden-sharing, and refugee inclusion in whole-of-society approaches to finding sustainable solutions to displacement situations.

In these unprecedented and challenging times, it is clear that we absolutely need a paradigm shift from mere short-term crisis assistance to long-term sustainable solutions for refugees, displaced people and their host communities. The aim of those durable solutions is to increase self-reliance, reduce dependency on humanitarian aid and alleviate protracted crises, easing pressure on host countries. Nationally-led plans, such as the Shirika Plan in Kenya, are promising as groundbreaking multi-year initiatives aimed at socio-economically integrating refugees and transitioning them from refugee camps to integrated communities.

Next to local integration, expanding access to third-country solutions and supporting conditions in countries of origin for returns in safety and dignity, remain important sustainable solutions. This is not a change in the mandate of UNHCR, but a willingness to be more effective in the long term, in line with the Global Compact on Refugees.

In this context, it is crucial to better involve national and other multilateral actors, in particular the development sector, with UNHCR as a central catalyst, and this from the beginning of an emergency situation. In order to strengthen national capacities, UNHCR can share technical expertise for local actions, for example by facilitating access to work or identity documents, or by stimulating voluntary returns and reintegration. Among others, partnerships with the private sector can be directed towards sustainable solutions, such as the partnership with the IKEA Foundation. We need not only a whole-of-government leadership to reinforce sustainable solutions, but also a whole-of-society approach that includes development actors and the private sector more actively.

Secondly, the support for host communities is of central concern to me. The current financial constraints for UNHCR are of course worrying host governments, many of whom are low- and middle-income countries. One of the objectives of the Global Refugee Compact was exactly equitable responsibility sharing. We need further burden sharing instead of burden shifting.

In that regard, it is important to ensure that humanitarian aid can benefit not only refugees, but also the populations of the host countries that are in need of it. Moreover, and especially in protracted and complex crises, I believe UNHCR can break out of fixed structures and enter into new partnerships on sustainable solutions with development actors, for example for the sustainable strengthening of basic services that will benefit all residents of the host country. This enables refugees to make a positive contribution to society rather than being perceived as a burden. Likewise, it is important to mobilise support for host states to ensure that both refugees and their host communities are not left behind in a country’s implementation of the 2030 Agenda and progress towards the SDG’s. By intensifying the cooperation with multilateral and regional development banks, I want to further explore this area in the coming years.

To conclude
The world needs hope, humanity, and principles that endure, even in times of crisis. As High Commissioner, I want to dedicate myself to providing refugees, displaced and stateless people around the world not only with protection, but also with perspective. I believe in the power of international solidarity and in the necessity of taking responsibility. It would be a great honour to help shape this mission further together with UNHCR and its partners.