The number of refugees, displaced people and others of concern to the UNHCR jumped from under 15 million in 1990 to over 22 million in 2000: a 50 percent increase over the decade. Refugees are a symptom of a deeper malaise in the polities from which they have fled. The failure to establish satisfactory coping mechanisms is a symptom of a deeper malaise afflicting the world. The treatment meted out to refugees by the host countries -- including the entire infrastructure of laws, regulations, administrative practices and personnel -- separates a civilized from an uncivilized society.

Poverty, natural and man-made disasters spawn refugees. The demons of displacement include too much government, leading to tyranny; too little government, leading to anarchy; civil, revolutionary and international warfare; economic collapse; epidemics; and mass expulsions.

One catalyst to the sharp rise in refugee numbers is the phenomenon of complex humanitarian emergencies that produce multiple crises: collapsed state structures; humanitarian tragedies caused by starvation, disease or genocide; large-scale fighting and slaughter between rival ethnic or bandit groups; horrific human-rights atrocities; and the risks of competitive intervention by outside powers. The nature, frequency and scale of such emergencies have strained the capacity of international relief agencies, heightened social concerns in host countries, and increased the interest in addressing the roots of the problem and searching for other preventive measures.