UN appoints envoy to assess UNRWA amid Gaza conflict and funding crisis

Ian Martin to lead strategic review of Palestinian refugee agency under fire from Israel.

Displaced Palestinians stand beside their tents along the wall of the United Nations Relief and Works Agency for Palestine Refugees (UNRWA) in Gaza City, on March 25, 2025. Photo by Majdi Fathi/Nur

By Anna Fadiah and Hayu Andini

The United Nations has moved to evaluate the future of its Palestinian refugee agency, appointing Ian Martin of the United Kingdom to conduct a full-scale strategic review. The development comes as UN appoints envoy to assess UNRWA, the UN Relief and Works Agency for Palestine Refugees in the Near East, which has faced mounting scrutiny since the escalation of the Israel-Gaza conflict in October 2023.

The review will address political, financial, and security constraints that have increasingly hindered the agency’s ability to operate in the region. According to UN spokesman Stephane Dujarric, the mission is not intended to question UNRWA’s founding mandate but rather to evaluate how the agency can best fulfill its obligations to Palestinian refugees under unprecedented pressure.

“This review is about how UNRWA can operate more effectively in the current environment,” Dujarric said at a press briefing in New York. “We want to ensure the organization is equipped to continue delivering essential services to the communities that rely on it.”

Mandate under pressure after accusations from Israel

The review was announced as the agency grapples with intense criticism from Israel, which severed ties with UNRWA in January. Israeli officials claim that 19 UNRWA staff members were directly involved in the October 7 Hamas attack, which killed over 1,200 people in Israel and sparked a destructive war in Gaza that continues to rage.

Though the accusations have not yet been independently verified, the fallout has severely disrupted UNRWA’s ability to coordinate with Israeli authorities. As Israel remains a key party in Gaza’s access and security, the breakdown in communication has raised serious questions about how the agency can continue to serve the 2 million Palestinians trapped in the besieged territory.

UN Secretary-General Antonio Guterres, under pressure to respond to both the political fallout and UNRWA’s deepening financial crisis, selected Martin—a seasoned diplomat and human rights advocate—to lead the assessment.

Ian Martin brings extensive global experience

Educated at Cambridge and Harvard, Ian Martin brings decades of international field experience to the task. He has previously served on UN missions in countries including Libya, Nepal, Somalia, Haiti, and Timor-Leste. Known for his work in post-conflict reconstruction and human rights, Martin is expected to bring both technical rigor and political acumen to the review.

His appointment aligns with a broader UN initiative dubbed “UN80,” which aims to reassess the structure and sustainability of select agencies in the run-up to the organization's 80th anniversary. While not all UN programs will be subject to review, Dujarric said that UNRWA’s unique position in the Gaza Strip and its long-standing involvement in the Israeli-Palestinian conflict made it a priority for strategic assessment.

Financial strain from U.S. aid cuts

UNRWA’s troubles have also been compounded by severe funding shortfalls, worsened by recent cuts in U.S. aid. The Biden administration froze contributions to the agency following the Israeli allegations, citing the need for independent investigations.

With the United States historically being the largest donor to UNRWA, the funding freeze has left a gaping hole in the agency’s budget. Other international donors, including several EU member states, have also paused or reduced support pending the outcome of the investigations.

The financial crisis has led to delays in service delivery, including education, health care, and food distribution across Gaza, the West Bank, Lebanon, Syria, and Jordan—where UNRWA assists more than five million registered Palestinian refugees.

Dujarric: UNRWA’s role remains vital

Despite the criticism, the UN has reaffirmed UNRWA’s importance in the region. “We are not questioning the agency’s existence or its original mission,” Dujarric stressed. “This is about operational improvement, not undermining the agency.”

Dujarric acknowledged the complexity of the operating environment in Gaza, calling it “one of the most difficult anywhere in the world.” He emphasized that the UN remains committed to the welfare of Palestinian refugees and will continue to seek ways to strengthen humanitarian delivery.

“The review is about ensuring that the communities we serve receive the best possible support under the current conditions,” he said.

Historical role of UNRWA

Created in 1949 by a UN General Assembly resolution, UNRWA was designed to support Palestinians displaced by the first Arab-Israeli war. In the more than seven decades since its formation, the agency has evolved into a cornerstone of humanitarian assistance in the region.

Unlike other refugee groups managed by the UNHCR, Palestinian refugees fall under UNRWA’s jurisdiction, which has led to ongoing political debates over the agency’s mandate and operations. Supporters argue that UNRWA provides an irreplaceable lifeline for millions of Palestinians, while critics—most vocally Israel—contend that the agency has outlived its original purpose and may perpetuate the refugee status of generations of Palestinians.

Yet, for many Palestinians, UNRWA remains the only institutional provider of basic needs, especially in Gaza, where civilian infrastructure has been devastated by repeated conflicts and blockades.

Future of the agency uncertain

As the UN appoints envoy to assess UNRWA, the results of Ian Martin’s strategic review could carry significant implications for the future of Palestinian aid. While the agency is unlikely to be dismantled in the short term, changes to its operational structure, oversight mechanisms, and funding models may be recommended.

Any reform proposals would need to be carefully weighed against the volatile political backdrop in the region and the urgent humanitarian needs on the ground. Guterres has expressed hope that the review will not only address immediate challenges but also offer a long-term path to resilience for UNRWA and the people it serves.

The timeline for Martin’s assessment has not been officially announced, but preliminary findings are expected to be shared with the UN General Assembly before the end of the year.

International community watches closely

The review comes at a critical time as tensions escalate in the Middle East. Global attention remains fixed on Gaza, where Israeli military operations and humanitarian access continue to dominate international headlines.

With growing calls for accountability, transparency, and better coordination among aid organizations, the UN’s decision to conduct this strategic review may serve as a model for similar initiatives across its humanitarian network.

As Martin embarks on his mission, stakeholders from donor governments, regional players, and advocacy groups will be watching closely to see whether the review results in tangible reforms—or further controversy.

The coming months could prove decisive for UNRWA's survival, making this review not just a procedural exercise but a defining moment in the agency’s 75-year history.