Older persons in armed conflict and peacebuilding

The nature of armed conflict¹ has changed significantly since the Second World War, with modern conflicts often occurring in urban areas, causing mass displacement and widespread destruction in areas inhabited by civilians. For over a decade, the frequency and intensity of conflicts have increased, and there has been an increase in conflict-related displacement.² Older persons in conflict zones face not only violence but also other severe challenges, such as non-accessible shelters, disrupted support systems, limited access to healthcare and other basic services, and exposure to trauma. In the emergency handbook developed by the Office of the United Nations High Commissioner for Refugees (UNHCR), it is highlighted that refugees and displaced persons may experience accelerated ageing due to malnutrition and disease, compounding their vulnerabilities.³

1. For the purposes of the present report, the term “armed conflict” is used in a broad sense, encompassing sustained political and criminal violence (Central America and Andean regions) and situations of occupation (Gaza), and not in the strict sense of the definition of the term under international humanitarian law. ↩
2. See www.unhcr.org/global-trends. ↩
3. See https://emergency.unhcr.org/. ↩

In 2024, older persons accounted for approximately 7 per cent of those displaced and registered with UNHCR (older women, 4 per cent; older men, 3 per cent).⁴ The actual number of displaced older persons, however, is estimated to be significantly higher due to underreporting and registration gaps. These gaps lead to missing data, causing older persons to remain invisible and miss out on support. Displacement is often protracted, lasting an average of 20 years for refugees and 10 years for nearly 90 per cent of internally displaced persons,⁵ which leaves many older persons in long-term uncertainty, without adequate social protection or traditional support networks. Projections indicate that by 2050, 80 per cent of the world’s older population will live in low- to middle-income countries, which are more prone to humanitarian crises.⁶

4. See www.unhcr.org/sites/default/files/2025-06/global-trends-report-2024.pdf. ↩
5. See https://civil-protection-humanitarian-aid.ec.europa.eu/what/humanitarian-aid/forced-displacement_en. ↩
6. See www.refworld.org/docid/4ee72aaf2.html. ↩

Although older persons are mentioned in the Geneva Convention relative to the Treatment of Prisoners of War (Third Geneva Convention) and in the Geneva Convention relative to the Protection of Civilian Persons in Time of War (Fourth Geneva Convention), the focus on older persons in international humanitarian law is not strong enough in practice. Current international human rights law lacks targeted protections for older persons, despite the fact that they are disproportionately affected by armed conflict and related human rights violations. For example, nearly one in four people affected by the ongoing conflict in Ukraine is age 60 or older.⁷ Many of them have experienced extreme suffering due to exclusion from information channels, as well as inaccessible shelters, disrupted support systems and the use of care institutions as human shields. In addition, structural support for older refugees and internally displaced persons has proved inadequate.

7. See https://data.unhcr.org/en/documents/download/103254. ↩

The special respect and protection due to older persons are covered under various provisions of the Third and Fourth Geneva Conventions, including art. 30 of 1 For the purposes of the present report, the term “armed conflict” is used in a broad sense, encompassing sustained political and criminal violence (Central America and Andean regions) and situations of occupation (Gaza), and not in the strict sense of the definition of the term under international humanitarian law. 2 See www.unhcr.org/global-trends. 3 See https://emergency.unhcr.org/. 4 See www.unhcr.org/sites/default/files/2025-06/global-trends-report-2024.pdf. 5 See https://civil-protection-humanitarian-aid.ec.europa.eu/what/humanitarian-aid/forceddisplacement_en. 6 See www.refworld.org/docid/4ee72aaf2.html. 7 See https://data.unhcr.org/en/documents/download/103254. 4/20 the Third Geneva Convention and arts. 16, 17 and 27 of the Fourth Geneva Convention.⁸ 8 International humanitarian law also mandates the protection of all civilians without discrimination or adverse distinction.⁹ 9

8. See https://ihl-databases.icrc.org/en/customary-ihl/v1/rule138. ↩
9. See https://ihl-databases.icrc.org/en/customary-ihl/v1/rule88. ↩

International human rights law guarantees the rights to life, food, health and safety for all, and those obligations continue during armed conflict.¹⁰ The Human Rights Committee has affirmed that the duty to protect life under article 6 of the International Covenant on Civil and Political Rights also requires States to address conditions that threaten life or hinder dignity.¹¹ The Committee on Economic, Social and Cultural Rights has clarified that minimum core obligations under the International Covenant on Economic, Social and Cultural Rights, which include the minimum essential levels of each of the rights in the Covenant,¹² including the rights to an adequate standard of living, including adequate food and housing,¹³ health¹⁴ and social security¹⁵ are non-derogable and must be upheld even during conflict, emergencies and natural disasters.¹⁶ Furthermore, the States Parties to the Convention on the Rights of Persons with Disabilities must take all necessary measures to ensure the protection and safety of persons with disabilities in armed conflicts,¹⁷ including older persons with disabilities. These obligations are reflected in Security Council resolution 2475 (2019) on the protection of civilians with disabilities during armed conflicts. In addition, the Committee on the Elimination of Discrimination against Women has reaffirmed that States Parties to the Convention on the Elimination of All Forms of Discrimination against Women should pay specific attention to the violence suffered by older women and the impact of armed conflicts on them.¹⁸

10. Article 4 (2) of the International Covenant on Civil and Political Rights states that certain rights, like the right to life and protection from torture or degrading treatment, cannot be suspended during armed conflict or public emergencies. ↩
11. General comment No. 36 (2018) on the right to life. ↩
12. General comment No. 3 (1990) on the nature of States Parties’ obligations. ↩
13. Art. 11. ↩
14. Art. 12. ↩
15. Art. 9. ↩
16. General comment No. 14 (2000) on the right to the highest attainable standard of health. ↩
17. Art. 11. ↩
18. General recommendation No. 27 (2010) on older women and protection of their human rights. ↩

International criminal law can also offer recourse; deliberate attacks on civilians, including older persons, and the wilful impeding of relief to civilians can constitute war crimes. Age-based targeting can also be grounds for crimes against humanity, such as persecution.¹⁹

19. International Criminal Court, Elements of Crime (The Hague, 2013). In relation to the crime against humanity of persecution: “targeting was based on political, racial, national, ethnic, cultural, religious, gender as defined in article 7, paragraph 3, of the Statute, or other grounds that are universally recognized as impermissible under international law”, p. 7. ↩

Under regional instruments on the human rights of older persons, States have an obligation to ensure that older persons enjoy access, on a priority basis, to assistance and to take specific measures to protect older persons in situations of armed conflict and other emergencies.²⁰ In the Inter-American Convention on Protecting the Human Rights of Older Persons, States Parties are called upon to adopt all necessary specific measures to ensure the safety and rights of older persons in situations of risk, including situations of armed conflict.²¹ Under the Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Older Persons in Africa, States Parties are required to provide older persons access to assistance, on a priority basis, during 8 See https://ihl-databases.icrc.org/en/customary-ihl/v1/rule138. 9 See https://ihl-databases.icrc.org/en/customary-ihl/v1/rule88. 10 Article 4 (2) of the International Covenant on Civil and Political Rights states that certain rights, like the right to life and protection from torture or degrading treatment, cannot be suspended during armed conflict or public emergencies. 11 General comment No. 36 (2018) on the right to life. 12 General comment No. 3 (1990) on the nature of States Parties’ obligations. 13 Art. 11. 14 Art. 12. 15 Art. 9. 16 General comment No. 14 (2000) on the right to the highest attainable standard of health. 17 Art. 11. 18 General recommendation No. 27 (2010) on older women and protection of their human rights. 19 International Criminal Court, Elements of Crime (The Hague, 2013). In relation to the crime against humanity of persecution: “targeting was based on political, racial, national, ethnic, cultural, religious, gender as defined in article 7, paragraph 3, of the Statute, or other grounds that are universally recognized as impermissible under international law”, p. 7. 20 A/HRC/42/43, paras. 39 and 40. 21 Art. 29. rescue efforts, settlement, repatriation and other interventions.²² 22 The Protocol also provides for the protection of older women from violence, sexual abuse and genderbased discrimination.²³

20. A/HRC/42/43, paras. 39 and 40. ↩
21. Art. 29. ↩
22. Art. 14 (1). ↩
23. Art. 9 (1). ↩

On 3 April 2025, the Human Rights Council adopted its resolution 58/13, establishing an open‑ended intergovernmental working group for the elaboration of a new legally-binding instrument on the human rights of older persons, which offers a unique opportunity to strengthen the international legal framework protecting the rights of older persons in emergencies and armed conflict.

Non-binding policies and guiding principles provide specific guidance on the protections that should be afforded to older persons during armed conflicts. The Political Declaration and Madrid International Plan of Action on Ageing, 2002, marked a turning point in the international approach to building a society for all ages. In particular, States committed themselves to protect and assist older persons in situations of armed conflict and foreign occupation. In the Guiding Principles on Internal Displacement, it is recognized that certain internally displaced persons, including older persons and persons with disabilities, are entitled to special protection, assistance and treatment.²⁴ In the recently adopted Pact for the Future,²⁵ Member States committed to strengthen their efforts to prevent, anticipate and mitigate the impact of humanitarian emergencies on people in need, while paying special attention to the needs of persons in the most vulnerable situations; and to promote universal health coverage, including in emergencies. In its policy on age, gender and diversity,²⁶ UNHCR sets out guidelines to ensure that all forcibly displaced persons, including older persons, fully participate in decisions that affect them.

24. See www.internal-displacement.org/publications/ocha-guiding-principles-on-internal-displacement/. ↩
25. General Assembly resolution 79/1. ↩
26. See www.unhcr.org/media/policy-age-gender-and-diversity-accountability-2018. ↩

A cornerstone of international humanitarian law is that all parties to a conflict, including non-State actors, must distinguish between military objectives and civilians and are prohibited from wilfully killing or murdering civilians.²⁷ Nevertheless, the Office of the United Nations High Commissioner for Human Rights (OHCHR) has documented that almost half of civilian deaths in the conflict in Ukraine are persons older than age 60, despite the fact that they constitute around one quarter of the population.²⁸ During the first 19 days of the conflict in Gaza in 2023, older people made up 8.6 per cent of fatalities, despite comprising only 5 per cent of the population.²⁹ Furthermore, older persons are often targeted during armed conflicts when forces take control of a new area or when they retake an area. For example, in the Amhara Region of Ethiopia in 2021, two brothers aged 60 and 67 were allegedly summarily executed by Tigrayan fighters who were being pushed out of the area.³⁰ In Myanmar, older persons have reportedly been burned alive in their houses after refusing to flee or being unable to leave due to disabilities. In one case, a 100-year-old Rohingya man was allegedly pushed back into his house by soldiers before they set the house on fire.³¹

27. Art. 3 common to the four Geneva Conventions of 12 August 1949; Geneva Convention for the Amelioration of the Condition of the Wounded and Sick in Armed Forces in the Field (First Geneva Convention), art.50; Geneva Convention for the Amelioration of the Condition of Wounded, Sick and Shipwrecked Members of Armed Forces at Sea (Second Geneva Convention), art. 51; Third Geneva Convention, art. 130; Fourth Geneva Convention, art. 147; Protocol Additional to the Geneva Conventions of 12 August 1949, and relating to the Protection of Victims of International Armed Conflicts (Protocol I), art. 75 (2) (a) (i); Protocol Additional to the Geneva Conventions of 12 August 1949, and relating to the Protection of Victims of NonInternational Armed Conflicts (Protocol II), art. 4 (2) (a); and the Rome Statute of the International Criminal Court, art.8 (2) (a) (i) and art. 8 (2) (c) (i). ↩
28. See www.ohchr.org/sites/default/files/documents/countries/ukraine/2024-12-31-pr41-ukraine-en.pdf. ↩
29. Submission from HelpAge International. ↩
30. See www.hrw.org/report/2022/02/23/no-one-spared/abuses-against-older-people-armed-conflict. ↩
31. See www.amnesty.org/en/documents/asa16/0446/2019/en/. ↩

Older persons are also often victims of torture and ill-treatment, including sexual violence. An 80-year-old woman reported that Boko Haram had intentionally stabbed her foot to leave her in pain rather than kill her.³² The Independent International Commission of Inquiry on the Syrian Arab Republic received reports of guards forcing younger male detainees to rape older male detainees while recording the incident on their phones.³³

32. See www.amnesty.org/en/documents/afr44/3376/2020/en/. ↩
33. See S/2024/292, para. 68, and A/HRC/53/CRP.5, para. 37. ↩

During emergencies, the destruction of homes and property, as well as loss of access to and the destruction and looting of civilian facilities, such as hospitals,³⁴ disproportionately affect older persons, who lose their livelihood, savings and family and find it more difficult to rebuild than younger persons.³⁵ In addition, reconstruction and aid programmes fail to consider the specific needs of older persons. For example, in Ukraine, an older woman reported having received replacement windows from local authorities, but without help to install them or to repair other structural damage, she was still unable to return to her home.³⁶

34. See A/74/170. ↩
35. See www.hrw.org/report/2022/02/23/no-one-spared/abuses-against-older-people-armed-conflict. ↩
36. See www.ohchr.org/sites/default/files/documents/countries/ukraine/2023/2023-HRMMU-Briefing-Note-Older-Persons-ENG.pdf. ↩

Many older persons remain in conflict zones, even when younger populations leave or are displaced, due to strong ties to their homes, lands and territories or physical limitations. In staying, they face increased risks, including of abuse, violence and deprivation. A strong attachment to their place of origin – which is particularly acute in the case of older Indigenous persons, peasants or members of minority groups – and fear of inability to return if they do leave, compounded by lack of mobility and often lack of access to information, mean that older persons often delay leaving until the last minute, rendering it more complicated for emergency services to support them. Furthermore, evacuation procedures often fail to accommodate the needs of older persons.

In Myanmar, many older persons chose not to flee hostilities, thinking that they would not be attacked or wanting to protect their property. Mobility issues and the length and difficulty of the journey also prevented some from leaving. For those who did flee, the journey across jungles and mountains sometimes took over a month, and there were reports of illness, injury and death among those who attempted it.³⁷

37. See www.amnesty.org/en/documents/asa16/0446/2019/en/. ↩

When older persons do choose to evacuate occupied territories, either as hostilities approach or afterward, they may face the challenges of extended delays, changing evacuation routes or lack of timely or effective communication by the authorities. In Ukraine, in Vasylivka, Zaporizhzhia Oblast, which is temporarily occupied by Russian forces, people sometimes had to wait up to eight days in queues at crossing points. Non-governmental organizations reported that older persons were dying from existing health conditions exacerbated by stress while queuing.³⁸ In addition, many older persons living in care homes were relocated to different regions for their safety. While the intention was to protect them, relocations often led to the disruption of family ties and support systems. Older people with dementia or other cognitive impairments were particularly vulnerable, frequently becoming lost within the institutional system after losing contact with their relatives.³⁹ In some cases, older persons, some with disabilities, living in care facilities were allegedly forcibly relocated to Donetsk, having had their passports taken away, and in two cases, older persons with disabilities were allegedly placed in institutions in the Russian Federation, rendering family reunification more difficult.⁴⁰

38. See www.ohchr.org/sites/default/files/documents/countries/ukraine/2023/2023-HRMMU-Briefing-Note-Older-Persons-ENG.pdf. ↩
39. Amnesty International, “Ukraine: Russian invasion has forced older people with disabilities to endure isolation and neglect – new report”, 1 December 2023. ↩
40. Amnesty International, “Older persons in armed conflict and peacebuilding: submission to the Independent Expert on the enjoyment of all human rights by older persons”, 28 March 2025, p. 9. ↩

Older persons comprise 7 per cent of registered displaced populations.⁴¹ The actual figure, however, is estimated to be significantly higher because older persons encounter difficulties when registering due to a lack of information on the registration process, lack of identity documents and inaccessible registration points. In addition, many older persons are unable to reach official displacement sites and may stay in unofficial locations. Displaced older persons in Nigeria, for example, often live in undignified conditions, in overcrowded dwellings with inadequate access to drinking water and sanitation, which leads to water contamination and heightened risk of disease.⁴² Older persons who do not register miss out on aid distribution and medical care. This gap in registration processes also affects official statistics, making it more difficult to integrate older persons into the planning process to ensure their access to medical support, adapted accommodations and food supply.

41. See www.unhcr.org/sites/default/files/2025-06/global-trends-report-2024.pdf. ↩
42. See A/HRC/54/26/Add.1, para. 52. ↩

A lack of a legal status in host countries prevents older refugees from receiving social protection benefits, further hindering their integration and recovery. In a survey of displaced older persons and host communities in the north-west of the Syrian Arab Republic conducted in 2024, 53 per cent of respondents reported that lack of documentation was a protection risk.⁴³ Other barriers, such as digital platforms for claims, different legal frameworks and language barriers, impede the ability of older persons to access services without support.⁴⁴ Furthermore, many countries that have social security and state pension systems do not have systems in place to allow for cross-border access to pensions. Ukraine has established a bilateral agreement with Poland to allow Ukrainian refugees to access their pensions.

43. See https://reliefweb.int/report/syrian-arab-republic/older-persons-protection-barriers-report-north-west-syria-july-2024-enar. ↩
44. Submission from Slovenia. ↩

In rural communities, especially in countries with limited social security systems, older persons often continue to farm and engage in other activities to obtain 38 See www.ohchr.org/sites/default/files/documents/countries/ukraine/2023/2023-HRMMUBriefing-Note-Older-Persons-ENG.pdf. 39 Amnesty International, “Ukraine: Russian invasion has forced older people with disabilities to endure isolation and neglect – new report”, 1 December 2023. 40 Amnesty International, “Older persons in armed conflict and peacebuilding: submission to the Independent Expert on the enjoyment of all human rights by older persons”, 28 March 2025, p. 9. 41 See www.unhcr.org/sites/default/files/2025-06/global-trends-report-2024.pdf. 42 See A/HRC/54/26/Add.1, para. 52. 43 See https://reliefweb.int/report/syrian-arab-republic/older-persons-protection-barriers-reportnorth-west-syria-july-2024-enar. 44 Submission from Slovenia. 8/20 food and support their livelihood. Displacement to camps or urban areas causes them to lose their source of revenue and self-sufficiency. Becoming dependent on aid has a profound psychological impact. Older persons are also less likely to be able to adapt to new urban surroundings and find alternative sources of revenue than younger displaced persons.⁴⁵

45. See www.amnesty.org/en/documents/asa16/0446/2019/en/. ↩

The above-mentioned factors leave many older forcibly displaced persons facing destitution and food insecurity. In a survey conducted in the Central America and Andean regions in 2021, 58 per cent of the older displaced population reported not receiving humanitarian aid; 64 per cent said that they had no monthly income; among those who did have a monthly income, 68 per cent reported that it was insufficient to meet basic needs; and a quarter of the respondents reported that they did not eat three meals a day.⁴⁶ In 2023 and 2024, UNHCR has helped older persons to meet their basic needs through cash assistance programmes in Ukraine, where older persons were the priority target group.⁴⁷ Assistance from UNHCR also incorporated the specific needs of older persons by providing them with adult incontinence materials.⁴⁸

46. See https://ageingonthemove.org/. ↩
47. See www.unhcr.org/sites/default/files/2024-10/age-gender-and-diversity-accountability-report-2023.pdf and www.unhcr.org/sites/default/files/2025-06/age-gender-and-diversity-accountability-report-2024.pdf. ↩
48. See www.unhcr.org/sites/default/files/2024-10/age-gender-and-diversity-accountability-report-2023.pdf. ↩

Older refugees and internally displaced persons in camps also face difficulties in accessing essential facilities, such as lavatories and health facilities,⁴⁹ and aid distribution, owing to terrain and distance from their allocated living areas, which is compounded by the loss of informal support systems. Aid distribution is frequently announced online, which means that older persons often receive the information too late, if at all, and, as a result, miss out on the assistance.⁵⁰

49. Access to healthcare is discussed in greater detail in section D, below. ↩
50. Submission from Amnesty International. ↩

Furthermore, health services in many displaced persons camps are not equipped to address chronic illnesses, multimorbidity or geriatric conditions.

Recognizing the difficulties faced by older persons, humanitarian actors established disability and age task forces to respond to the specific needs of older persons and persons with disabilities in humanitarian situations such as those in Jordan⁵¹ and the Republic of Moldova.⁵² Some specific projects have addressed these issues, such as a sponsorship programme in Germany for older Ukrainian persons fleeing the war.⁵³ UNHCR and HelpAge International have also developed and published guidelines on working with older persons in forced displacement. In 2024, adaptation and targeted support services for older persons were a crucial part of the UNHCR strategy in at least 40 countries.

51. See https://data.unhcr.org/en/documents/details/86685. ↩
52. See https://data.unhcr.org/en/documents/details/115340 ↩
53. See https://unece.org/sites/default/files/2024-01/ECE-WG.1-42-PB28.pdf. ↩

In Ukraine, inconsistent data collection has made it difficult to assess and address the needs of older persons in displacement. While older people are often overrepresented in temporary shelters, there is often a lack of data. Amnesty International found that some shelter directors could provide this information, while others had not collected it or lacked the capacity to do so. These gaps reflect the 45 See www.amnesty.org/en/documents/asa16/0446/2019/en/. 46 See https://ageingonthemove.org/. 47 See www.unhcr.org/sites/default/files/2024-10/age-gender-and-diversity-accountability-report2023.pdf and www.unhcr.org/sites/default/files/2025-06/age-gender-and-diversityaccountability-report-2024.pdf. 48 See www.unhcr.org/sites/default/files/2024-10/age-gender-and-diversity-accountability-report2023.pdf. 49 Access to healthcare is discussed in greater detail in section D, below. 50 Submission from Amnesty International. 51 See https://data.unhcr.org/en/documents/details/86685. 52 See https://data.unhcr.org/en/documents/details/115340 53 See https://unece.org/sites/default/files/2024-01/ECE-WG.1-42-PB28.pdf. absence of clear reporting standards across regions. Even where data was collected, data were often not disaggregated by age or type of disability.⁵⁴ 54

54. See www.amnesty.ch/de/laender/europa-zentralasien/ukraine/dok/2023/ukraine-aeltere-menschen-mit-behinderungen/bericht_they-live-in-the-dark_older-peopless-isolation-and-inadequate-access-to-housing-amid-russias-invasion-of-ukraine.pdf. ↩

The intersection of older age, gender and disability presents specific risks during armed conflicts and humanitarian crises. In particular, older persons with mobility issues, affected by the intersection of age and disability, face a significant risk of being left behind during displacement because families are unable to assist them while fleeing or because they themselves choose to remain behind, not wanting to burden their loved ones who are seeking refuge elsewhere. In Ukraine, one third of households with older persons included a member of the household that has a disability.⁵⁵ In 2011, the World Health Organization estimated that 53.3 per cent of persons age 60 or older in Africa had one or more types of moderate or severe disability; the percentage among older women was slightly higher than that among older men.⁵⁶ Older persons are more likely to have disabilities affecting mobility than the younger population, which makes fleeing more difficult.

55. REACH, “Ukraine: Multi-sectoral needs assessment 2024: gender, age, disability and vulnerability situation overview”, 29 April 2025, available at https://reliefweb.int/report/ ukraine/ukraine-multi-sectoral-needs-assessment-2024-gender-age-disability-and-vulnerability-situation-overview-april-2025. ↩
56. World Health Organization and World Bank, World Report on Disability (Geneva, 2011). ↩

During armed conflicts, an unfortunate and unlawful response to the displacement of older persons can be institutionalization,⁵⁷ particularly in countries where it is a prevailing practice. In Ukraine, institutionalization became a common response to displacement among older persons with disabilities, with adults over 60 making up more than half of those institutionalized in 2022 in 14 out of 15 regions, and as many as 80 per cent in Kharkiv Oblast.⁵⁸ Such institutions can become dangerous in armed conflicts, as they may be used as human shields.⁵⁹ In addition, evacuations of institutions require careful preparation and an increased number of personnel. In times of armed conflict, however, the number of personnel is often reduced, creating additional challenges.

57. Submission from Amnesty International. ↩
58. Ibid. ↩
59. See A/76/146, para. 67. ↩

Self-ageism also plays a role in decision-making during crises. Many older persons feel that it is not worth fleeing or restarting in a new environment, either because they believe they lack the capacity to rebuild their lives or due to fear of age-related discrimination, lack of support or becoming a burden on their family.

Older women face heightened risks of sexual and gender-based violence and are often excluded from decision-making and aid distribution. Conflict-related sexual violence remains underreported and continues to affect older women, with reports of women between 65 and 80 seeking medical care following rapes.⁶⁰ 60 In places such as the Sudan, rape and sexual violence have been used as a weapon of war,⁶¹ 61 and no one is spared on account of age: victims included girls as young as 8 years old and women up to 75 years old.⁶² There continue to be reports of the targeting of older women 54 See www.amnesty.ch/de/laender/europa-zentralasien/ukraine/dok/2023/ukraine-aelteremenschen-mit-behinderungen/bericht_they-live-in-the-dark_older-peopless-isolation-andinadequate-access-to-housing-amid-russias-invasion-of-ukraine.pdf. 55 REACH, “Ukraine: Multi-sectoral needs assessment 2024: gender, age, disability and vulnerability situation overview”, 29 April 2025, available at https://reliefweb.int/report/ ukraine/ukraine-multi-sectoral-needs-assessment-2024-gender-age-disability-and-vulnerabilitysituation-overview-april-2025. 56 World Health Organization and World Bank, World Report on Disability (Geneva, 2011). 57 Submission from Amnesty International. 58 Ibid. 59 See A/76/146, para. 67. 60 See www.hrw.org/report/2022/02/23/no-one-spared/abuses-against-older-people-armed-conflict. 61 See https://press.un.org/en/2025/sc16018.doc.htm. 62 See A/HRC/57/CRP.6, para. 171. 10/20 accused of being possessed or witches. This particularly affects women with cognitive impairment, dementia or mental health issues.⁶³

60. See www.hrw.org/report/2022/02/23/no-one-spared/abuses-against-older-people-armed-conflict. ↩
61. See https://press.un.org/en/2025/sc16018.doc.htm. ↩
62. See A/HRC/57/CRP.6, para. 171. ↩
63. See www.amnesty.org/en/documents/afr44/3376/2020/en. ↩

Older persons from ethnic and religious minorities frequently experience compounded discrimination, especially with respect to land and resource disputes.⁶⁴ During violent conflicts, they are among the most vulnerable due to entrenched poverty, political marginalization and systemic discrimination and often bear the emotional burden of seeing their children and grandchildren displaced and their cultural heritage threatened.

64. See A/60/358, para. 60. ↩

Amid the ongoing conflict in Gaza, at least 111,500 older Palestinians face acute risks, which are exacerbated by the blocking of humanitarian aid.⁶⁵ The vulnerability of older Palestinians is shaped not only by age but also by the long-standing effects of occupation, ethnic discrimination and systemic marginalization. Life expectancy in Gaza dropped abruptly between October 2023 and September 2024, from 75.5 to 40.5 years, according to “conservative” estimates.⁶⁶ Dehumanising rhetoric by Israeli officials, who refer to Palestinians as “human animals”, exacerbates the erasure of the dignity of older persons.⁶⁷

65. See www.helpage.org/news/aid-blockade-in-gaza-a-deepening-humanitarian-crisis/. ↩
66. See https://www.thelancet.com/journals/lancet/article/PIIS0140-6736(24)02810-1/abstract. ↩
67. See www.amnesty.org/en/documents/mde15/8668/2024/en/. ↩

In Mexico, older Indigenous persons face compounded vulnerabilities due to conflict, displacement and systemic neglect. In 2017, over 5,000 Indigenous persons, including many older persons, were forcibly displaced from Chenalhó and Chalchihuitán after decades of unresolved territorial disputes and violence by armed groups.⁶⁸ In Peru, rural, poor and Indigenous populations were disproportionately affected by the internal armed conflict that lasted from 1980 to 2000, with nearly 70,000 deaths and over 22,000 enforced disappearances. Many survivors are now older persons who lost family members and endured severe violence. Of the more than 152,000 direct victims registered, some 42 per cent are older persons. Decades later, many still await truth, justice and reparations.⁶⁹

68. See A/HRC/39/17/Add.2, para. 92. ↩
69. See A/HRC/57/42/Add.1, paras. 78–79. ↩

The Commission to Clarify Past Human Rights Violations and Acts of Violence that have Caused the Guatemalan Population to Suffer, established by the Government of Guatemala to document atrocities and human rights violations committed during the civil war, found that armed forces deliberately targeted and killed older Indigenous persons as a means of disrupting Mayan identity and impeding the transmission of cultural knowledge.⁷⁰

70. See https://hrdag.org/wp-content/uploads/2013/01/CEHreport-english.pdf. ↩

In addition, older LGBTIQ+ individuals face targeted violence, including sexual violence and forced displacement, due to their identity. After enduring intimidation and death threats during campaigns of “corrective violence” or “population cleansing” carried out by armed groups, they are often forced to flee their homes, ending up displaced.⁷¹

71. See https://international-review.icrc.org/articles/still-blind-spot-protection-lgbt-persons-during-armed-conflict-and-other-situations. ↩

Older community leaders and prominent older persons are at increased risk of abduction or kidnapping in armed conflicts. Armed actors subject them to illtreatment, including denial of medical care and, in some cases, torture. On 7 October 2023, Hamas and other armed groups abducted 251 people, including Holocaust 63 See www.amnesty.org/en/documents/afr44/3376/2020/en. 64 See A/60/358, para. 60. 65 See www.helpage.org/news/aid-blockade-in-gaza-a-deepening-humanitarian-crisis/. 66 See https://www.thelancet.com/journals/lancet/article/PIIS0140-6736(24)02810-1/abstract. 67 See www.amnesty.org/en/documents/mde15/8668/2024/en/. 68 See A/HRC/39/17/Add.2, para. 92. 69 See A/HRC/57/42/Add.1, paras. 78–79. 70 See https://hrdag.org/wp-content/uploads/2013/01/CEHreport-english.pdf. 71 See https://international-review.icrc.org/articles/still-blind-spot-protection-lgbt-persons-duringarmed-conflict-and-other-situations. survivors and older persons with dementia; in March 2025, seven hostages in their 70s and 80s remained in captivity.⁷²

72. Submission from Human Rights Watch. ↩

In accordance with the International Covenant on Economic, Social and Cultural Rights, States are required to take all necessary steps, to the maximum of their available resources, to ensure access to essential health services and medications.⁷³ In situations of severe resource constraints, States must still prioritize the protection of vulnerable populations through low-cost targeted programmes.⁷⁴ If deliberately retrogressive measures are taken, the State Party must demonstrate that they were introduced after careful consideration of all alternatives and that they were fully justified by reference to the totality of rights under the Covenant in the context of the full use of the State Party’s maximum available resources.⁷⁵ Importantly, even during conflicts, States must uphold their core obligations under the right to health, which are non-derogable under any circumstances.⁷⁶ Furthermore, under international humanitarian law, an occupying Power is required to maintain healthcare services, allow medical personnel to perform their duties, and ensure that the population has access to necessary medical supplies.⁷⁷

73. General comment No. 14 (2000). ↩
74. General comment No. 3 (1990). ↩
75. General comment No. 14 (2000). ↩
76. General comment No. 3 (1990). ↩
77. Fourth Geneva Convention, arts. 55 and 56. ↩

The Special Rapporteur on the right of everyone to the enjoyment of the highest attainable standard of physical and mental health has noted that, under the right-to-health framework, health facilities, goods and services should be made available in sufficient quantity, and that, in many cases, older persons are affected by selective unavailability because of rationing of medical care (i.e. allocation and prioritization of health resources), which often results in de-prioritizing older persons for health treatment.⁷⁸

78. See A/HRC/18/37, para. 25. ↩

Older persons face significant barriers to healthcare access in armed conflict settings. Conflict frequently disrupts healthcare infrastructure and support systems, disproportionately affecting older persons who are more likely to have chronic illnesses requiring treatment and care. The reduction in available healthcare personnel, combined with the destruction or closure of medical facilities and pharmacies, severely limits access to even the most basic services. In Gaza, nearly half of the older persons interviewed reported difficulties accessing or affording care in 2021, a situation that has been worsened by Israeli-imposed movement restrictions and systematic destruction of health infrastructure.⁷⁹ As at 28 May 2025, 18 of the 36 existing hospitals in Gaza were functioning only partially, threatening the health of older persons, especially those suffering from chronic illnesses.⁸⁰

79. Carol El Jabari and others, “Barriers to elderly health care in the occupied Palestinian territories, International Journal of Social Determinants of Health and Health Services, vol. 54, No. 2. See also www.helpage.org/silo/files/rna-gaza-rapid-needs-assessment-of-older-people-_pub.pdf. ↩
80. See www.unocha.org/publications/report/occupied-palestinian-territory/reported-impact-snapshot-gaza-strip-28-may-2025-1500. ↩

In many conflicts, primary care physicians are no longer able to practise or conduct home visits. Some older persons must travel long distances to reach an 72 Submission from Human Rights Watch. 73 General comment No. 14 (2000). 74 General comment No. 3 (1990). 75 General comment No. 14 (2000). 76 General comment No. 3 (1990). 77 Fourth Geneva Convention, arts. 55 and 56. 78 See A/HRC/18/37, para. 25. 79 Carol El Jabari and others, “Barriers to elderly health care in the occupied Palestinian territories, International Journal of Social Determinants of Health and Health Services, vol. 54, No. 2. See also www.helpage.org/silo/files/rna-gaza-rapid-needs-assessment-of-older-people-_pub.pdf. 80 See www.unocha.org/publications/report/occupied-palestinian-territory/reported-impactsnapshot-gaza-strip-28-may-2025-1500. 12/20 operational pharmacy or clinic.⁸¹ As a result, many older individuals, especially those with mobility limitations, must rely on volunteers for support.⁸² 82

81. See www.amnesty.org/en/documents/eur50/7385/2023/en/. ↩
82. Submission from OHCHR Ukraine. ↩

Ageism and ableism contribute to the deprioritization of older persons in decisions with respect to triage and life-saving treatment. Older persons may be perceived as “less deserving” of life-saving treatment due to assumptions about limited life expectancy or diminished quality of life. This seems to be an unconscious bias among healthcare providers.⁸³ In resource-constrained settings, negative biases are further compounded. Older persons frequently experience delays in obtaining treatments, medications or even basic healthcare services, as well as care and support, because of the assumption that they have lower chances of recovery, resulting in undertreatment or inadequate care.⁸⁴ Triage procedures must be in line with the tenets of human rights. Withholding or refusing the provision of medical treatment on the basis of age or social worth is implicitly prohibited under international human rights law.⁸⁵

83. For example, doctors in the United Kingdom of Great Britain and Northern Ireland referred older patients with lung cancer for surgery less than younger patients, although age is not a determinant recovery factor. See http://academic.oup.com/ageing/article/32/2/171/29000. ↩
84. Elburg van Boetzelaer and others, “Involving older people in the preparedness, response, and recovery phases in humanitarian emergencies: a theoretical framework on ageism, epistemic injustice, and participation”, The Lancet Healthy Longevity, vol. 5, No. 1 (January 2024). ↩
85. See A/75/205, para. 36. ↩

In Ukraine, older persons have been left behind as conflict drives away the caregivers who once supported them, placing additional burdens of care on already overstretched and underresourced social workers and volunteers.⁸⁶

86. See www.amnesty.org/en/documents/eur50/7385/2023/en/. ↩

Medical and humanitarian teams, which often lack training in palliative care, prioritize acute, life-saving interventions, leaving older persons with advanced or incurable illnesses without the medications and support that they need to alleviate pain and suffering. This reflects a systemic bias where palliative care is seen as a luxury rather than an essential service.⁸⁷ In Bangladesh, projects and programmes run by non-governmental organizations and the International Organization for Migration are providing palliative care in Rohingya camps.⁸⁸

87. Submission from the International Association for Hospice and Palliative Care. ↩
88. See A/HRC/54/26/Add.2, para. 59. ↩

During humanitarian crises, the need for assistive devices increases due to conflict-related injuries, displacement and the loss or damage of essential devices.⁸⁹ Older persons face new challenges adapting to unfamiliar environments, but access to assistive devices remains limited due to poor coordination, lack of technical expertise, disrupted infrastructure and limited availability of trained personnel.⁹⁰ According to a survey conducted by HelpAge International, only 28 per cent of those with walking difficulties, 25 per cent with vision impairments and just 9 per cent with hearing loss reported having suitable devices.⁹¹ Many assistive products are lost or damaged during displacement, and donated replacements are often ill-fitting and difficult to repair locally. Devices reliant on electricity or the Internet cease to function when infrastructure is damaged.⁹² Barriers common in non-crisis settings, such as stigma, cost and lack of awareness, persist and are worsened by crisis conditions.⁹³ Displaced populations, including refugees and stateless individuals, often face additional obstacles, such as legal and administrative exclusion, and miss out on services as a result.⁹⁴

89. See www.who.int/teams/health-product-policy-and-standards/assistive-and-medical-technology/ assistive-technology/at-humanitarian-work. ↩
90. Ibid. ↩
91. See www.helpage.org/silo/files/if-not-now-when-report.pdf. ↩
92. See www.who.int/teams/health-product-policy-and-standards/assistive-and-medical-technology/ assistive-technology/at-humanitarian-work. ↩
93. Ibid. ↩
94. See www.unhcr.org/sites/default/files/2024-08/facilitating-access-to-assistive-technology-and-rehabilitation-2024.pdf. ↩

In displaced persons camp settings, older persons with limited mobility may be physically unable to reach camp health centres and, as a result, receive no medical attention, which reflects inadequate design of the services. Even when clinics are accessible, some are unable to provide medication for common chronic conditions.⁹⁵ Consequently, access to treatment often requires being able to cover the costs of transportation to external medical facilities, diagnostic tests, consultations, hospital stays, pharmacy visits and medication. As a result, many older individuals go without essential medication, while others are compelled to sell portions of their food assistance to afford the necessary treatment.⁹⁶ Furthermore, many older persons are not fully aware of which medication has been prescribed to them or what their main or underlying medical conditions are. Without personal or medical records, medical staff need to reassess the situation to ensure appropriate care, which is another barrier to receiving timely medical treatment.

95. See www.amnesty.org/en/documents/asa16/0446/2019/en/ and www.amnesty.org/en/documents/ afr44/3376/2020/en/. ↩
96. Submission from Amnesty International. ↩

Access to healthcare for older persons in emergency and conflict settings is further exacerbated by systemic neglect and a lack of old age-inclusive planning in humanitarian responses. Healthcare workers in emergency and conflict settings frequently lack training in geriatric and palliative care, and older persons may struggle with limited health literacy or rely on caregivers who may have been displaced.⁹⁷ Moreover, ensuring free and informed consent for treatment becomes more complex during emergencies, particularly given the additional strain placed on health systems.⁹⁸

97. Elburg van Boetzelaer and others, “Health needs of older people and age-inclusive health care in humanitarian emergencies in low-income and middle-income countries: a systematic review”, The Lancet Healthy Longevity, vol. 6, No. 1 (January 2025). ↩
98. See A/HRC/42/43, para. 65. ↩

Despite an estimated 10.5 million older persons having been identified as needing humanitarian assistance in 2021, older persons remain largely invisible in humanitarian data and planning. Although they are often listed as a vulnerable group in humanitarian response plans, such plans rarely include an analysis of their specific needs or capacities. There is typically a lack of detailed, disaggregated data on older persons in the humanitarian programme cycle, and intersectional analysis seldom accounts for age.⁹⁹

99. See www.helpage.org/silo/files/out-of-sight-out-of-mindbriefing.pdf. ↩

Older detainees often require prompt and appropriate medical care. Many also need special assistance with mobility and nutrition, which is often unavailable or denied in detention facilities. During the six-week war between Armenia and Azerbaijan over Nagorno-Karabakh in 2020, there were reports indicating that those who had remained behind, mainly older persons, were detained and, in some cases, 93 Ibid. 94 See www.unhcr.org/sites/default/files/2024-08/facilitating-access-to-assistive-technology-andrehabilitation-2024.pdf. 95 See www.amnesty.org/en/documents/asa16/0446/2019/en/ and www.amnesty.org/en/documents/ afr44/3376/2020/en/. 96 Submission from Amnesty International. 97 Elburg van Boetzelaer and others, “Health needs of older people and age-inclusive health care in humanitarian emergencies in low-income and middle-income countries: a systematic review”, The Lancet Healthy Longevity, vol. 6, No. 1 (January 2025). 98 See A/HRC/42/43, para. 65. 99 See www.helpage.org/silo/files/out-of-sight-out-of-mindbriefing.pdf. 14/20 were allegedly denied medication for chronic illnesses.¹⁰⁰ In western Tigray, Ethiopia, Amhara forces reportedly detained older persons in overcrowded cells for prolonged periods, depriving them of food and medical care.¹⁰¹ 101

100. See www.hrw.org/report/2022/02/23/no-one-spared/abuses-against-older-people-armed-conflict. ↩
101. See www.hrw.org/news/2021/12/16/ethiopia-new-wave-atrocities-western-tigray. ↩

Older persons have been arbitrarily detained in military detention facilities and denied access to adequate medical facilities and treatment, including an 80-year-old Palestinian woman with Alzheimer’s disease in Israel.¹⁰² At times, older persons are targeted for detention as an intimidation tactic against local populations or to obtain information. In Nigeria, the army reportedly detained several hundred older women who allegedly had sons who were members of Boko Haram.¹⁰³

102. See www.ohchr.org/sites/default/files/documents/countries/opt/20240731-Thematic-report-Detention-context-Gaza-hostilities.pdf. ↩
103. See www.amnesty.org/en/documents/afr44/3376/2020/en/. ↩

Older persons are also more vulnerable in cases of inhumane detention conditions. In March 2022, in the village of Yahidne in the Chernihiv Oblast, Ukraine, 360 residents were forced to stay in the basement of a school that Russian forces were using as their base. In the overcrowded conditions, they were unable to lie down and had no access to toilets, clean water or ventilation. Ten people, all older persons, died.¹⁰⁴

104. OHCHR, “the human rights situation of older persons in Ukraine in the context of the armed attack by the Russian Federation”, briefing paper, May 2023. ↩

Occupying forces have an obligation to respect a person as a human being and respect the basic rights of the individual. Civilians in occupied territories are exposed to unique vulnerabilities that are addressed in the Fourth Geneva Convention, the Regulations respecting the Laws and Customs of War on Land and customary international humanitarian law. Under international law, occupation is a temporary situation, and the occupying Powers therefore must not introduce policies or measures that would cause permanent social, economic or demographic changes.¹⁰⁵

105. See www.icrc.org/en/document/ihl-occupying-power-responsibilities-occupied-palestinian-territories. ↩

Occupation affects access for older persons to essential services, healthcare and food. In Gaza, they face severe and escalating humanitarian risks amid ongoing hostilities and the prolonged blockade. A 2021 assessment found that 45 per cent of older persons reported going to bed hungry at least once a week, and 39 per cent had difficulties accessing potable water for drinking and hygiene. Chronic health conditions were widespread, with 80 per cent requiring medicines or medical supplies, yet access to healthcare remained limited. Mental health concerns were also acute: 78 per cent of older persons reported feeling anxious all or most of the time, and 52 per cent felt depressed. As of June 2025, 3,839 older persons age 60 and older had been killed since the onset of the conflict, comprising 7 per cent of total fatalities while representing only 5 per cent of Gaza’s population. Nearly 90 per cent had relied on family or humanitarian aid for basic needs prior to the conflict, and many were facing severe obstacles in accessing assistance due to mobility limitations, lack of assistive devices, and unsafe conditions at distribution points.¹⁰⁶ Attacks since October 2023 have only worsened these conditions. As famine warnings emerged in May 2025, older persons and infants were among the first to die.¹⁰⁷

106. See www.unrwa.org/sites/default/files/content/resources/older_persons_in_gaza_updated.pdf. ↩
107. See https://euromedmonitor.org/en/article/6714/Silent-death-consumes-the-elderly%3A-Starvation-and-siege-claim-14-elderly-lives-in-Gaza-within-a-week. ↩

Access to adequate and specialized medical care, especially geriatric care, can be severely limited under occupation. The 18-year blockade of Gaza has limited the import of certain medicines and materials, including for geriatric care. Since October 2023, the extensive destruction of medical facilities and the severe limitations on available resources, combined with the use of triage systems to maximize survival rates in mass casualty events, mean that older persons are less likely to be prioritized. Between 7 October 2023 and 4 June 2025, 3,839 older persons had been reportedly killed in air strikes or direct fire in Gaza, accounting for 7 per cent of total fatalities. That figure would likely be significantly higher after accounting for indirect death from starvation and lack of medical care.¹⁰⁸

108. See www.unrwa.org/sites/default/files/content/resources/older_persons_in_gaza_updated.pdf. ↩

Occupation also exacerbates food insecurity, owing to rising prices as a result of disrupted supply chains, looting and blockades by occupying forces. Armed groups, in particular, are likely to engage in looting, since they often lack the logistical support available to professional armies and depend on local supplies. In Gaza, domestic food production has nearly come to a halt as agricultural land and infrastructure have been destroyed, and food prices have increased by 4,900 per cent since October 2023.¹⁰⁹ Access to livelihoods and food is also affected by the imposition of restrictions on the local population, such as when Boko Haram banned women, including older women, from working outside their households in north-east Nigeria.¹¹⁰

109. Ibid. ↩
110. See www.amnesty.org/en/documents/afr44/3376/2020/en/. ↩

In occupied territories, older persons have difficulties accessing pension funds because banking services are limited or not available. In several areas of Ukraine that had been occupied by Russian forces and where the Government of Ukraine has regained control, pensioners reported that they had been unable to access their pensions for periods up to nine months during the occupation.¹¹¹ These difficulties are exacerbated by rising prices for essential goods following the disruption of supply chains.

111. See www.ohchr.org/sites/default/files/documents/countries/ukraine/2023/2023-HRMMU-Briefing-Note-Older-Persons-ENG.pdf. ↩

Living under occupation also affects informal support systems, as many older persons are left behind when younger generations flee areas before they are taken. In Nigeria, after government forces regained control of areas previously occupied by Boko Haram, returning villagers discovered older persons and persons with disabilities who had died in their homes.¹¹² In Gaza, older persons reported that they were unable to access food and water and that they remained in mandatory evacuation zones where they were exposed to active hostilities, as discussed above, due to the loss of support systems, either having been separated from family or following the death of their family members.¹¹³

112. See www.amnesty.org/en/documents/afr44/3376/2020/en/. ↩
113. See www.unrwa.org/sites/default/files/content/resources/older_persons_in_gaza_updated.pdf. ↩

Older persons are often overlooked in peacebuilding and recovery efforts despite their potential contributions to reconciliation and stability. Their lived experiences and historical knowledge are crucial for countering radicalization, preserving cultural identity and supporting long-term peace initiatives. 108 See www.unrwa.org/sites/default/files/content/resources/older_persons_in_gaza_updated.pdf. 109 Ibid. 110 See www.amnesty.org/en/documents/afr44/3376/2020/en/. 111 See www.ohchr.org/sites/default/files/documents/countries/ukraine/2023/2023-HRMMUBriefing-Note-Older-Persons-ENG.pdf. 112 See www.amnesty.org/en/documents/afr44/3376/2020/en/. 113 See www.unrwa.org/sites/default/files/content/resources/older_persons_in_gaza_updated.pdf. 16/20

Older persons play an essential and often underrecognized role during and in the aftermath of armed conflicts. While humanitarian narratives may inadvertently portray them as passive recipients of aid, it is vital to acknowledge that older individuals have consistently demonstrated resilience, leadership and agency in their families and communities.¹¹⁴

114. Submission from OHCHR Ukraine. ↩

Older persons are therefore far more than vulnerable dependants; many continue to serve as caregivers, volunteers, breadwinners and community leaders. Some support relatives and neighbours with limited resources, while others are actively involved in volunteer efforts or provide the sole stable income for their families.¹¹⁵ In its research, HelpAge International underscores the caregiving contributions of older persons, noting that 63 per cent care for at least one child and 44 per cent care for another older person.¹¹⁶ Older women in particular often continue to manage caregiving responsibilities while engaging in income-generating activities, food production and household reconstruction.¹¹⁷ The responsibilities of older persons often increase during emergencies, as they mobilize resources and apply traditional skills and environmental knowledge to mitigate the impact of crises.¹¹⁸

115. See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelines-for-best-practice.pdf. ↩
116. Submission from HelpAge International. ↩
117. See https://www.icvanetwork.org/uploads/2023/06/NGO_Statement_Protection_Solutions_SCom_Final-Written_June2023.pdf and www.helpage.org/wp-content/uploads/ 2024/03/I-sleep-on-an-empty-stomach.pdf. ↩
118. See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelines-for-best-practice.pdf. ↩

Moreover, older persons play a critical role in psychosocial programming. Their cultural knowledge and life experience make them invaluable contributors to mental health interventions that are locally relevant and grounded in traditional coping mechanisms. They also serve as key figures in education, communication and leadership, and are highly regarded for their wisdom and traditional knowledge, although displacement can often jeopardize this role.¹¹⁹ This is especially important in challenging environments, such as refugee camps, where the emergence of a negative “camp culture” can threaten traditional values and social structures.¹²⁰ Older persons serve as vital custodians of pre-conflict narratives and lived experiences of coexistence, offering powerful counterweights to extremist or nationalist ideologies. With their accumulated life experiences, they provide an inspirational bridge to the next generation.¹²¹ Their deep-rooted knowledge of community dynamics enables them to prevent radicalization and promote inclusion, as well as social cohesion.

119. See www.unfpa.org/sites/default/files/pub-pdf/Ageing%20report.pdf, p. 87. ↩
120. See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelines-for-best-practice.pdf. ↩
121. See A/78/174, para. 20. ↩

Humanitarian agencies and actors should aim to enhance the role of older persons as not only beneficiaries but also active partners in relief and rehabilitation. Community-based initiatives that engage older persons can offer mutual benefits: older individuals get access to the support they need while service providers gain access to their experience, authority and insight. Numerous practical examples serve to highlight the benefits of such partnerships. Older persons have proved essential in identifying and supporting the most vulnerable within communities, distributing relief materials and participating in projects, such as house-to-house vulnerability assessments, food delivery for immobile individuals and shelter management.¹²² 122 In camps for displaced persons in Ukraine and the north-west of the Syrian Arab Republic, older individuals have formed “senior committees” to support their peers, 114 Submission from OHCHR Ukraine. 115 See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelinesfor-best-practice.pdf. 116 Submission from HelpAge International. 117 See https://www.icvanetwork.org/uploads/2023/06/NGO_Statement_Protection_Solutions_ SCom_Final-Written_June2023.pdf and www.helpage.org/wp-content/uploads/ 2024/03/I-sleepon-an-empty-stomach.pdf. 118 See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelinesfor-best-practice.pdf. 119 See www.unfpa.org/sites/default/files/pub-pdf/Ageing%20report.pdf, p. 87. 120 See www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelinesfor-best-practice.pdf. 121 See A/78/174, para. 20. 122 Ibid. engage with camp authorities and advocate for their communities.¹²³ 123 In Ukraine, older social workers travel across the country providing psychosocial support and sharing critical information about available services.¹²⁴ Projects in the Syrian Arab Republic and Pakistan have served to demonstrate how older persons can act as bridges across ethnic and social divides and contribute to post-conflict recovery and peace.¹²⁵

122. Ibid. ↩
123. See www.helpage.org/wp-content/uploads/2024/02/Roles-Reimagined.pdf. ↩
124. See www.helpage.org/news/empathy-and-perseverance-how-older-people-prop-up-their-communities-in-the-war/. ↩
125. See www.helpage.org/resource/promotion-of-peace-and-development-initiatives-in-the-province-of-khyber-pakhtunkhwa-pakistan/. ↩

In Africa, older persons have demonstrated strong leadership qualities that have contributed to crisis resolution and peacebuilding efforts.¹²⁶ Their involvement in humanitarian activities can enhance programme outcomes, as they bring valuable local knowledge, cultural insight and well-established community networks.¹²⁷

126. Olatubuson Tope Omotayo, Gbeminiyi Mujaheed Adegbola and Sultan Luqman Osigbesan, “Role of older persons in conflict resolution and development: an analysis of Elechi Amadi’s The Great Ponds”, LWATI: A Journal of Contemporary Research, vol. 15, No. 3 (2018). ↩
127. In collaboration with UNHCR, HelpAge International has developed guidelines to support the integration of older persons into reconciliation processes. In these tools, intergenerational approaches are emphasized, and the role of older individuals as stabilizing forces in fractured societies is underscored. See, for example, www.helpage.org/silo/files/older-people-in-disasters-and-humanitairan-crises-guidelines-for-best-practice.pdf. ↩

In Peru, older Indigenous women are still leading the search for the whereabouts and fate of their missing relatives.¹²⁸

128. See www.icrc.org/en/document/international-womens-day-peru-missing-son-mama-angelica. ↩

In armed conflicts, older persons face unique vulnerabilities and, in some cases, heightened risks related to their age. In many conflicts, they suffer from unlawful attacks, arbitrary arrests, torture, all sorts of violence and abuse, including sexual violence, and the destruction of their property. They may suffer from chronic illnesses or disabilities, have difficulty accessing emergency food and medical services, and be at high risk of abandonment or violence if family and social structures collapse. Often, they are found stranded in besieged cities or remote villages, unable to flee or gain access to aid.¹²⁹ Information about evacuation procedures and safe passage, often distributed in digital formats, is in many cases not accessible for older civilians. At the same time, many older persons play crucial roles in their communities during conflict: they care for grandchildren and orphans, support family livelihoods with their savings or pensions and act as custodians of culture and peacemakers at the community level. Around the world, elder community leaders have been instrumental in mediating local disputes and fostering reconciliation.¹³⁰

129. See A/ES-11/5, para. 7. ↩
130. Ibid. ↩

Nevertheless, older persons remain invisible and overlooked in conflict response, humanitarian protection and assistance, and peacebuilding. Less than 1 per cent of humanitarian aid is explicitly allocated to the needs of older persons and persons with disabilities.¹³¹ 131 In addition, humanitarian assessments frequently group all persons older than age 60 into a single category, which results in a failure to analyse and address the diverse needs of different age 123 See www.helpage.org/wp-content/uploads/2024/02/Roles-Reimagined.pdf. 124 See www.helpage.org/news/empathy-and-perseverance-how-older-people-prop-up-theircommunities-in-the-war/. 125 See www.helpage.org/resource/promotion-of-peace-and-development-initiatives-in-theprovince-of-khyber-pakhtunkhwa-pakistan/. 126 Olatubuson Tope Omotayo, Gbeminiyi Mujaheed Adegbola and Sultan Luqman Osigbesan, “Role of older persons in conflict resolution and development: an analysis of Elechi Amadi’s The Great Ponds”, LWATI: A Journal of Contemporary Research, vol. 15, No. 3 (2018). 127 In collaboration with UNHCR, HelpAge International has developed guidelines to support the integration of older persons into reconciliation processes. In these tools, intergenerational approaches are emphasized, and the role of older individuals as stabilizing forces in fractured societies is underscored. See, for example, www.helpage.org/silo/files/older-people-in-disastersand-humanitairan-crises-guidelines-for-best-practice.pdf. 128 See www.icrc.org/en/document/international-womens-day-peru-missing-son-mama-angelica. 129 See A/ES-11/5, para. 7. 130 Ibid. 131 See www.helpage.org/news/less-than-1-of-humanitarian-financing-targets-older-people-andpeople-with-disabilities/. 18/20 groups of older persons, as well as a failure to disaggregate data by gender, sexual orientation, disability and community.

131. See www.helpage.org/news/less-than-1-of-humanitarian-financing-targets-older-people-and-people-with-disabilities/. ↩

This neglect leads to crucial gaps, both when older persons are unable to leave and when they flee, putting them at heightened risk of violence, including elder abuse; sexual and domestic abuse; exploitation by family members; discrimination; accusations of witchcraft; and exclusion from access to humanitarian assistance, education, livelihoods, healthcare, a nationality and other services, particularly for older women, older persons with disabilities and older LGBTIQ+ persons.¹³² Less than 1 per cent of humanitarian projects have activities specifically targeting older persons.¹³³

132. See https://emergency.unhcr.org/protection/persons-risk/older-persons. ↩
133. See http://helpage.org/silo/files/if-not-now-when-report.pdf. ↩

The lack of data on older persons in situations of armed conflict, displacement and occupation contributes to rendering them invisible. The Independent Expert analysed 19 reports presented to the Security Council in the period 2023–2025 that had elements related to the protection of civilians and peacebuilding,¹³⁴ including those on the 11 active United Nations peacekeeping operations. Of those 19 reports, 14 lacked any mention of older persons, 3 mentioned engaging older persons in their activities, and 2 mentioned specific cases where older persons had been affected. The most recent report of the Secretary-General on the protection of civilians in armed conflict (S/2025/271), which contains a review of global trends and is aimed at informing the Security Council and guiding its actions on the protection of civilians, was among the reports lacking any reference to older persons.

134. The reports analysed were S/2024/292, A/79/878-S/2025/247, S/2025/54, S/2024/482, S/2025/383, S/2023/402, S/2025/153, S/2024/857, S/2024/698, S/2023/861, A/79/774-S/2025/86, S/2025/72, S/2024/707, S/2024/740, S/2025/350, S/2025/200, S/2025/6, A/79/947-S/2025/372 and S/2025/271. ↩

In peacebuilding, older women and men – including community elders with deep local knowledge – are rarely consulted,¹³⁵ especially when they face intersecting factors of discrimination, such as having disabilities or belonging to minority or other groups such as migrants, refugees and asylum-seekers, and LGBTIQ+ persons. This perpetuates their exclusion from reconstruction and reconciliation efforts.

135. In humanitarian situations in Jordan and the Bolivarian Republic of Venezuela, over 90 per cent of older persons said they had never been consulted. See www.helpage.org/silo/files/if-not-now-when-report.pdf. ↩

The Independent Expert makes the below recommendations to Governments, as the primary duty-bearers, and to other stakeholders, in particular humanitarian actors, including United Nations entities in line with their respective mandates, as well as civil society organizations and national human rights institutions.

Regarding legal and policy frameworks, the Independent Expert recommends that the above-mentioned stakeholders:
(a) Ensure that the international legally binding instrument on the human rights of older persons, to be elaborated by the open‑ended intergovernmental working group established by the Human Rights Council (Council resolution 58/13), addresses the protection, dignity and safety of older persons during armed conflicts and emergencies, in particular those who are in vulnerable positions;
(b) Ensure the non-discriminatory protection of older persons, including intersectional discrimination, under international humanitarian and human rights law, including the Geneva Conventions;
(c) Implement policy guidance from non-binding instruments to strengthen protections for older persons during armed conflicts.

Regarding, evacuation and displacement, the Independent Expert recommends that the above-mentioned stakeholders:
(a) Ensure strict adherence to international humanitarian law by upholding the principle of distinction between civilians and military targets, with particular attention paid to older persons, who are disproportionately affected in armed conflicts;
(b) Prevent targeted violence against older persons, including summary executions, arson attacks and other atrocities committed when control of a territory shifts during conflict;
(c) Investigate and prosecute deliberate attacks on older civilians as potential war crimes, to ensure accountability and inform protection strategies;
(d) Ensure protection of homes and civilian infrastructure, recognizing that the destruction of property disproportionately impacts older persons, who face greater challenges in recovery and reconstruction;
(e) Ensure that evacuation plans are inclusive and accessible, taking into account the participation and specific needs of older persons, including mobility limitations and health conditions;
(f) Develop targeted communication strategies to reach older persons with clear, timely and accessible evacuation information, especially those living alone or in remote areas;
(g) Provide physical and logistical support for older persons who wish to evacuate but face challenges due to distance, terrain, reduced mobility or the complexity of the journey;
(h) Reduce delays and risks in evacuation corridors, ensuring safe, efficient and humane passage for older persons, with priority given to those with medical needs;
(i) Improve registration processes for older displaced persons by addressing barriers, such as lack of identity documents, inaccessible registration points and limited information about procedures;
(j) Collect data disaggregated by age as well as by gender (including gender identity and sexual orientation where relevant), by disability and by other intersecting factors, while upholding strict data protection measures, such as confidentiality, informed consent, secure storage and restricted access, to protect individuals from harm or discrimination and to facilitate age-appropriate humanitarian responses;
(k) Ensure that older persons in displacement settings have dignified living conditions by improving access to clean water, sanitation, food and adequate shelter;
(l) Ensure that the infrastructure of displaced persons camps, including latrines, health facilities and food distribution points, is accessible, paying special attention to terrain, distance and physical limitations.

Regarding intersectionality and vulnerabilities, the Independent Expert recommends that the above-mentioned stakeholders:
(a) Address the intersectionality of age, disability and gender in all humanitarian response efforts and include other intersecting aspects, such as ethnic, minority or Indigenous background, as well as sexual orientation and gender diversity;
(b) Avoid institutionalization as a default response for displaced older persons with or without disabilities, as it may expose residents to heightened risks, including violence, neglect or even use as human shields;
(c) Protect older women from gender-based violence, recognizing their particular vulnerability to conflict-related sexual violence, which is often underreported;
(d) Promote culturally sensitive aid that supports the emotional well-being of older persons and preserves their cultural identity, particularly in intergenerational contexts.

Regarding access to healthcare, the Independent Expert recommends that the above-mentioned stakeholders:
(a) Design healthcare services that specifically address the multiple needs of older persons in conflict settings;
(b) Ensure that older persons are explicitly included in emergency health response plans and triage protocols to prevent their exclusion from humanitarian aid and services;
(c) Establish community health teams to provide essential care within local settings and develop home-based care services for those who have limited mobility or who cannot access traditional healthcare facilities;
(d) Ensure that assistive devices that are essential for survival and autonomous living are replaced and fit properly;
(e) Incorporate palliative care into health services to manage pain, reduce suffering and improve quality of life for older individuals with chronic or terminal illnesses.

Regarding post-conflict recovery and peacebuilding, the Independent Expert recommends that the above-mentioned stakeholders:
(a) Recognize and leverage the unique contributions of older persons in peacebuilding and recovery, particularly their lived experience, cultural knowledge and role in promoting reconciliation and stability;
(b) Reframe humanitarian narratives so that older persons are portrayed not exclusively as vulnerable individuals but also as resilient, active agents and rights holders;
(c) Establish and empower committees for older adults in refugee and displaced persons camps, enabling older persons to self-organize, support their peers, liaise with camp authorities and advocate for community needs;
(d) Promote the participation of older persons in formal and informal decision-making structures, ensuring that their voices inform policies, strategies and responses at all levels.