Baqa‘a Refugee Camp

Among all the Palestinian refugee camps in Jordan, Baqa‘a Camp has the largest refugee population. Located in Al-Balqa Governorate, 20 kilometers north of Amman, the camp is surrounded by very fertile land used for agricultural production. The camp has a vibrant economic hub, yet its residents struggle with high rates of poverty and unemployment, like residents in all Palestinian refugee camps.

Establishment

The residents of Baqa‘a Camp were displaced several times. Some were ethnically cleansed from towns and villages during the 1948 war and were living in refugee camps in the West Bank; others are originally from the West Bank. Both groups got forcefully displaced during the June 1967 war to Jordan; they lived in tent camps in the Jordan Valley town of al-Karama. The Palestinian resistance group Fatah had its headquarter in al-Karama.

In 1968, the military confrontations between Israeli forces, the Jordanian Army, and the Palestinian fedayeen (who used the Jordan Valley as a base of operations from which to enter occupied Palestine) prompted the residents of al-Karama refugee camp to move to other camps. Baqa‘a Camp was established on land owned by the Adwan and Al-Wareikat tribes to receive the influx of displaced Palestinians from al-Karama; the land was leased to the United Nations Relief and Works Agency (UNRWA) by the Jordanian government. The camp is one of the six official emergency camps that were created in 1968 by the Jordanian government in coordination with UNRWA to house the new influx of refugees from Palestine. Initially known as Ain al-Basha, the camp has received the majority of those who had initially taken refuge in al-Karama Camp. The refugees who settled in Baqa‘a were originally from Ajjur, Bayt Mahsir, Jericho, al-Abbasiyya, Beersheeba, al-Faluja, al-Jaftelek, Summil, and other villages and towns.

Demography and Infrastructure

In 1968, the camp had 5,000 tents housing 26,000 residents on just 1.4 square kilometers of land. Between 1969 and 1971, UNRWA began replacing tents with prefabricated shelters to better protect inhabitants from cold winters; about 8,000 shelters were built. Since then, inhabitants have built concrete structures that more resemble the housing in the urban area surrounding the camp. The 2020 Department of Palestinian Affairs report states that the camp sits on 1,496,626 dunums (1 dunum = 1,000 square meters) and has 11,500 housing units for 128,586 refugees.

Baqa‘a Camp is laid out in a grid pattern: a main street divides the middle of the camp and small narrow streets separate densely populated residential blocks. The camp borders the Kings Highway (Highway 35), which links Amman to the rest of the country. Many shops and businesses are set up near this highway.

Housing conditions in Baqa‘a Camp are poor; units are overcrowded and infrastructure is inadequate. The houses in Baqa‘a are mostly small and cramped, with extended families sharing the same space. The buildings are often poorly constructed, with inadequate insulation, which can lead to extreme temperatures in both summer and winter. Since 2006, the Department of Palestinian Affairs has been allocating funds to upgrade the infrastructure of the housing units and rehabilitating them. This project was completed in phases; by 2021, a total of 1,087 housing units had been renovated. The department allows camp residents to build two floors on top of their housing unit.

Over time, those who could afford to leave the camp did so, but they remained close by so that they could use UNRWA services. They built their homes in the Ein El Basha neighborhood. This horizonal expansion of the camp meant that some refugees were land owners and others owned their units in the camp; both groups benefited from the vibrant market in the camp and the basic health and education services provided by UNRWA. As people moved out of the camp, their vacated housing units were taken over by other Palestinian refugees or labor migrants with limited income. Sometimes families in the camps rented these vacated units to expand their living space and to accommodate extended families within their proximity. After 2011, many Palestinians from Syria moved to Baqa‘a Camp and rented houses near their relatives.

Through UNRWA intervention and refugee initiatives, the camp is now a buzzing community with organized streets, roads, businesses, and established infrastructure, a unique blend of transience and permanence, resembling an informal city.

Socioeconomic Conditions

Living conditions in Baqa‘a Camp are challenging. The most recent Fafo report (2013) stated that the camp was ranked third poorest among the ten camps in Jordan, with 32 percent of camp residents reportedly having an income below the national poverty line of JD 814 ($1,149) per year. In 2022, the UN High Commissioner for Refugees report stated that many refugee families in Jordan live on less than $5 a day.

Labor

Baqa’a Camp had an unemployment rate of 17 percent in 2023, the second highest unemployment rate among the ten refugee camps in Jordan. Many have low-paying jobs in the informal sector and struggle to make ends meet and provide for their families. Their access to formal employment is very limited, which means few have social security and health care. Unemployment rates are particularly high among young people, who face limited job prospects and few opportunities for career development. As a result of the economic challenges, many families in Baqa‘a live in one room and convert the other one into an income-generating business such as a shop or workshop. Many refugees in Baqa‘a have managed to start small businesses or participate in community-based initiatives as a way of economically integrating in the place and ensuring an income. Some find seasonal work in agriculture. Their shops and small businesses serve as a secured income.  Some community organizations in the camp offer vocational training and other support to help refugees develop new skills and start small businesses.

Education

UNRWA runs eight schools which follow Jordan’s educational curriculum for basic education. UNRWA schools are committed to providing basic education from first to tenth grade (ages 7–16 years old). Four public secondary schools in Baqa‘a Camp offer secondary education (Grades 11 and 12) for boys and girls ages 16 to 18 years old. Yet a large percentage of refugees in general lack access to reliable education.  As a result, only a limited number of high school graduates seek higher education. University education is costly in Jordan; for families with limited income, it can be difficult to secure the fees. Scholarships for the camp dwellers are limited. A royal initiative in 1998 established a quota for camp residents for acceptance at universities. This, however, does not secure a financial scholarship.

Health

UNRWA operates two health clinics across the camp that offer a range of services, including primary healthcare, such as including medical consultations, vaccinations, and treatment of common illnesses, maternal and child health services, and some specialized services such as dental care and eye care. One of the centers in the extended part of the camp (locally referred to as the New Camp area) was established by Médecins du Monde in the mid 1990s.  According to UNRWA, in 2016 as many as 46 percent of Palestine refugees in the camp had no health insurance, reflecting the large number of workers in the informal sector.

Management/Administration

The Jordanian Department of Palestinian Affairs, which is part of the Ministry of Foreign Affairs, monitors all issues related to Palestinian refugee camps within the country. It also seeks to foster economic and social development within the camp system. The department retains an office in Baqa‘a Camp.

In the late 1960s, Palestinian factions within the Palestine Liberation Organization (PLO) such as Fatah were at the height of their influence and were based in Jordan. These groups had heavy support within the camps, including Baqa‘a. The rise of militant activities within camps affected the role of UNRWA and ushered its transition from administering the camps to providing services such as education and health care. The  increasing influence and aggressiveness of Palestinian factions toward the Jordanian government came to a head during the Jordanian civil war, more commonly known as Black September, which took place between 1970 and 1971. Although Baqa‘a Camp did not play a central role in the conflict, it was not immune to the conflict, and Jordanian forces actively controlled fedayeen support within the camp. By the end of the conflict, the PLO withdrew from Jordan and established itself in Lebanon.

Civil Organizations

The residents of Baqa‘a Camp have a strong sense of community and resilience. More than 46 community-based organizations in the camp provide support and services, including education, health care, and social services. The ordinary sociality of refugee camps reflects the importance of people as autonomous actors who creatively engage with, and shape, their surroundings, which in turn reflects an increasing level of self-organization within the camp space as a form of adaptation. These community organizations work closely with one another, as well as with the UNRWA, to support and improve the lives of refugees in Baqa‘a Camp.

To address the poverty and unemployment issue, several organizations offer vocational education programs, in addition to UNRWA’s vocational education program, that offers courses in computer repair, graphic design, and hairdressing, among others. Vocational education programs in Baqa‘a Camp are an important way for young people to gain skills and knowledge that will enable them to become self-sufficient and contribute to the economic development of their communities. The Jordanian Hashemite Fund for Human Development provides training in fields such as sewing, embroidery, and handicrafts. Another organization, the International Rescue Committee, offers vocational training in areas such as hospitality, food service, and construction. The Baqa‘a Women’s Association, established in 1976 to widen opportunities for women in the camp to participate in the labor market and improve their social and economic status, provides training and education programs, as well as health and social services. The Baqa‘a Youth Center provides educational and recreational activities for youth in the camp, including sports, cultural events, and vocational training programs. The Baqa‘a Cultural Center promotes Palestinian culture and heritage through various activities and events, including traditional dance performances, music, and art exhibitions. The Baqa‘a Community Development Society focuses on community development projects, such as improving infrastructure, providing clean water and sanitation, and promoting environmental sustainability. The Baqa‘a Relief and Development Agency provides humanitarian aid and relief services to refugees in the camp, including food assistance, healthcare, and shelter.