SUDANESE REFUGEES IN EGYPT

UNCLAS SECTION 01 OF 04 CAIRO 000170 SIPDIS SENSITIVE FOR PRM/A, PRM/AFR, PRM/ANE, PRM/MCE, NEA/ELA, AND AF ROME FOR DHS/CIS GENEVA FOR RMA E.O. 12958: N/A TAGS: PREF PHUM PREL ASEC CVIS EG SU UNHCR SUBJECT: SUDANESE REFUGEES IN EGYPT SENSITIVE BUT UNCLASSIFIED; PLEASE PROTECT ACCORDINGLY -------------- SUMMARY -------------- ¶1. (SBU) THE VIOLENT CONFRONTATION ON DECEMBER 30 BETWEEN EGYPTIAN POLICE AND SUDANESE REFUGEES WHEN AT LEAST 27 LOST THEIR LIVES AND HUNDREDS MORE WERE DETAINED, HAS FOCUSED WORLD-WIDE ATTENTION ON THE LIVES OF THE MANY ASYLUM- SEEKERS WHO HAVE SOUGHT REFUGE IN CAIRO. MANY OF THESE FLED TURMOIL AT HOME IN SEARCH OF A MORE SECURE LIFE AND MANY HOPED TO FIND PASSAGE THROUGH CAIRO TO MORE WELCOMING DESTINATIONS IN THE WEST. SUDANESE REFUGEES (AND IMMIGRANTS) HAVE A DIFFICULT LIFE IN CAIRO. THE EGYPTIAN GOVERNMENT PROVIDES NO DIRECT SUPPORT. THE UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES (UNHCR) ASSISTED BY NGOS, CHURCH GROUPS AND THE INTERNATIONAL COMMUNITY, STRUGGLES TO PROVIDE ASSISTANCE. ALTHOUGH MANY ASYLUM-SEEKERS HAVE SUCCEEDED IN THEIR GOAL OF THIRD-COUNTRY RESETTLEMENT, MANY MORE HAVE FAILED AND ARE NOW FACING UP TO THE DIFFICULT CHOICE OF EITHER RETURNING TO SUDAN OR CONTINUING TO EKE OUT A LIVING IN CAIRO. THE DECISION BY UNHCR TO FOCUS INSTEAD ON REPATRIATION, FOLLOWING PROGRESS IN PEACE TALKS WITH THE SOUTH IN 2004, HAS HEIGHTENED REFUGEES' FRUSTRATION LEADING TO THE TRAGIC EVENTS OF DECEMBER 30. END SUMMARY -------------- CAIRO - A MAGNET FOR ASYLUM SEEKERS -------------- ¶2. (SBU) VARIOUS ESTIMATES PUT THE TOTAL NUMBER OF SUDANESE IN EGYPT AT ANYWHERE BETWEEN 2.2 MILLION AND 4 MILLION. MANY OF THESE SUDANESE SETTLED HERE LEGALLY YEARS AGO BUT THE NUMBERS SPIKED STARTING IN 1983 WHEN SUDAN SLID INTO CIVIL WAR FOR THE SECOND TIME AND MANY SUDANESE - MAINLY FROM THE SOUTH - WERE FORCED TO FLEE FROM THEIR HOMES. THE AVAILABILITY OF SOME PROTECTION AND ASSISTANCE IN EGYPT, AND IN RECENT YEARS, THE PROSPECT OF THIRD-COUNTRY RESETTLEMENT, HAVE ALSO PROVIDED ADDITIONAL INCENTIVE FOR DISPLACED PERSONS FROM THE SOUTH TO COME TO CAIRO. -------------- REFUGEE POPULATION -------------- ¶3. (SBU) SOME 31,200 INDIVIDUALS FROM OVER 30 COUNTRIES CURRENTLY HAVE ACCESS TO SOME FORM OF PROTECTION AND ASYLUM IN EGYPT - MOSTLY IN CAIRO - WITH THE ASSISTANCE OF UNHCR. THEY INCLUDE 25,300 SUDANESE. THOUSANDS MORE SUDANESE LIVE IN CAIRO WHO HAVE NEVER APPROACHED UNHCR, OR WHO HAVE FAILED IN THEIR BID FOR UNHCR RECOGNITION. THE SECOND MOST POPULOUS GROUP OF UNHCR-MANDATED REFUGEES COMPRISES SOMALIS (AROUND 4-5,000) WITH A SCATTERING OF OTHER NATIONALITIES. THERE ARE ALSO BETWEEN 40-70,000 PALESTINIANS THROUGHOUT EGYPT NOT COVERED BY UNHCR'S MANDATE. -------------- -------------- NO LEGAL FRAMEWORK FOR REFUGEE PROTECTION IN EGYPT -------------- -------------- ¶4. (SBU) EGYPT IS A SIGNATORY TO THE 1951 UN REFUGEE CONVENTION AND THE 1967 PROTOCOL RELATING TO THE STATUS OF REFUGEES. EGYPT IS ALSO PARTY TO THE 1969 OAU CONVENTION GOVERNING "THE SPECIFIC ASPECTS OF REFUGEE PROBLEMS IN AFRICA". BUT APART FROM A 1954 AGREEMENT WITH UNHCR AND TWO "TECHNICAL DECREES" FROM THE MINISTRY OF THE INTERIOR RELATING TO RESIDENCE AND TRAVEL, EGYPT HAS NO NATIONAL LEGISLATIVE FRAMEWORK ON ASYLUM. 5.(SBU) THE 1954 AGREEMENT HAS BEEN USEFUL IN COMMITTING THE GOVERNMENT TO MAINTAIN A GENEROUS ADMISSIONS POLICY; TO OBSERVE THE PRINCIPLES OF NON-REFOULEMENT (FORBIDDING FORCED RETURN); TO GRANT UNHCR UNHINDERED ACCESS TO ANY ASYLUM SEEKER OR REFUGEE DETAINED FOR ILLEGAL ENTRY IN THE COUNTRY; AND TO PROVIDE TEMPORARY RESIDENCE PERMITS TO RECOGNIZED REFUGEES. ¶6. (SBU) Egypt's posture towards the refugees leading up to the December 30 tragedy could be characterized as benign neglect. In the absence of national asylum legislation and appropriate institutions UNHCR has provided protection to refugees under its mandate by implementing refugee status determination (RSD) procedures and to coordinate with relevant authorities to prevent detention, deportation or refoulement. Given Egypt's own crushing poverty and high unemployment, refugees are mostly dependent on the assistance of UNHCR and NGOs to provide subsistence and to meet their medical, educational, and material needs. -------------- Difficult Life For Refugees -------------- ¶7. (SBU) THERE ARE NO REFUGEE CAMPS IN EGYPT AND ASYLUM SEEKERS LIVE AMONG THE CAIRENES, COMPETING WITH THEM FOR JOBS AND SHELTER AND FOR SCARCE SOCIAL SERVICES. THE SUDANESE HAVE DEALT WITH THIS BY DEVELOPING THEIR OWN COMMUNITY SUPPORT GROUPS AND MANY HAVE GATHERED TOGETHER IN THE "ARBA WA NUS" SHANTY-TOWN ON THE OUTSKIRTS OF CAIRO. -------------- HARSH TREATMENT -------------- ¶8. (SBU) ALTHOUGH EGYPT GENERALLY RESPECTS THE UNHCR DOCUMENTS CARRIED BY REFUGEES - AND THOSE REFUGEES DETAINED OR THREATENED WITH DEPORTATION ARE USUALLY QUICKLY RELEASED - THERE HAVE BEEN REPORTED CASES OF MISTREATMENT. IN 2003 LOCAL AUTHORITIES ROUNDED UP, DETAINED, AND REPORTEDLY BEAT, HUNDREDS OF SUB-SAHARAN AFRICANS INCLUDING THOSE WITH UNHCR IDS. THE VICTIMS WERE QUICKLY RELEASED. NUMEROUS UNSUBSTANTIATED RUMORS AND CONSPIRACY THEORIES CONTINUE TO CIRCULATE FOLLOWING THE DETENTION OF HUNDREDS OF SUDANESE AFTER THEIR VIOLENT CONFRONTATION WITH POLICE ON DECEMBER 30. NGOS HAVE VARIOUSLY ALLEGED RE-ARRESTS, RAPES, SUICIDES, CONCEALED DEATHS AND THE EXISTENCE OF GREATER NUMBERS OF DETAINEES THAN THE AUTHORITIES ARE ADMITTING TO. THE GOE DENIES CHARGES OF DETAINEE MISTREATMENT UNHCR/CAIRO, WHICH HAS NOW MET WITH NEARLY ALL OF THE REMAINING DETAINEES, HAS NOT VERIFIED ANY REPORTS OF ABUSE. -------------- THE "FOUR FREEDOMS" - NOT IMPLEMENTED -------------- ¶9. (SBU) In 2004 the Egyptian and Sudanese governments announced with some fanfare the "Four Freedoms Agreement" by which Sudanese in Egypt would be accorded freedom of movement, freedom of employment, freedom of residency and the right to buy and sell property. There has been no serious effort to implement this accord but millions of Sudanese go about their business in Egypt without difficulty. -------------- "Freedom of Movement" -------------- ¶10. (SBU) Visas are readily available at the Egyptian Embassy in Khartoum for Sudanese wishing to travel to Cairo. In fact, according to MFA figures (obtained by UNHCR),up to 9,000 Sudanese arrive in Egypt every month. Only 2,000 return. Once in Egypt, refugees face no restrictions on travel within the country although almost all gravitate towards Cairo in search of assistance, employment, shelter and possibly, third country resettlement. -------------- "Freedom of Employment" -------------- ¶11. (SBU) Refugees - to the extent they are employed -- are generally employed in the informal sector. A 2003 decree from the Ministry of Manpower, sets out a cumbersome process for formal employment which is beyond the reach of most asylum seekers. Requirements include the need for employer sponsorship, non-competition with nationals, the need to take into consideration "the country's economic situation", the stipulation that employers must hire a certain proportion of nationals before taking on foreigners and the payment of a $175 fee. -------------- "Freedom of Residency" -------------- ¶12. (SBU) SUDANESE AND OTHER MIGRANTS ARE GIVEN A THREE-MONTH VISA TO ENTER THE COUNTRY. THOSE WHO REGISTER WITH UNHCR CAN STAY BEYOND THIS PERIOD PROVIDED THEIR UNHCR REGISTRATION REMAINS CURRENT. RESIDENCY PERMITS BEYOND THE INITIAL THREE MONTHS ARE DIFFICULT TO OBTAIN FOR MIGRANTS WHO HAVE NOT REGISTERED WITH UNHCR OR WHO HAVE BEEN DENIED REFUGEE STATUS. THE CRITERIA FOR RESIDENCY PERMIT RENEWALS ARE BASED ON EDUCATION, LICENSED EMPLOYMENT, MARRIAGE TO AN EGYPTIAN, BUSINESS PARTNERSHIP AND A DEPOSIT OF $3,500. -------------- HEALTHCARE -------------- ¶13. (SBU) A NUMBER OF SUDANESE INJURED IN THE DECEMBER 30 MELEE WERE TAKEN TO VARIOUS CAIRO HOSPITALS BUT, ACCORDING TO UNHCR AND NGOS, THEY WERE SIMPLY ABANDONED AT THE HOSPITALS AND NOT GIVEN ANY MEDICAL TREATMENT. TREATMENT WAS SUBSEQUENTLY PROVIDED BY UNHCR AND ITS IMPLEMENTING PARTNERS. THUS ALTHOUGH MEDICAL CARE IS TECHNICALLY AVAILABLE TO REFUGEES IN CAIRO AT A PRICE, THOSE WITH MEDICAL PROBLEMS USE THE SERVICES PROVIDED BY CHURCH GROUPS AND NGOS (SOME SUBSIDIZED BY UNHCR). IN 2003, THROUGH THE AMBASSADOR'S FUND FOR REFUGEES, THE USG CONTRIBUTED $7,500 TOWARDS THE ESTABLISHMENT OF A MEDICAL CLINIC FOR SUDANESE REFUGEES AND EGYPTIANS IN ARBA WA NUS. -------------- EDUCATION -------------- ¶14. (SBU) EGYPTIAN LAW GUARANTEES FREE EDUCATION FOR ALL CHILDREN IN STATE SCHOOLS. REFUGEES WITH UNHCR DOCUMENTATION SUPPOSEDLY CAN EXERCISE THIS RIGHT BUT IN PRACTICE MOST LOCAL AUTHORITIES DO NOT ADMIT REFUGEES TO THEIR OVERCROWDED SCHOOLS. IT IS LEFT INSTEAD TO CHURCH GROUPS AND NGOS TO PROVIDE SOME LEVEL OF EDUCATION FOR REFUGEES. IN 2004, THROUGH THE AMBASSADOR'S FUND, THE USG GAVE $10,600 TO SUPPORT A SUMMER-SCHOOL PROGRAM FOR SUDANESE REFUGEE CHILDREN. -------------- THE INTERNATIONAL COMMUNITY HELPS -------------- ¶15. (SBU) UNHCR MAINTAINS ONE PERMANENT OFFICE IN EGYPT AND EMPLOYS AROUND 60 STAFF. ABOUT 30 OF THESE WORK ON PROTECTION AND 20 ON FINDING "DURABLE SOLUTIONS". SUBSISTENCE ALLOWANCES ARE GIVEN TO MOST RECOGNIZED REFUGEES ON THE BASIS OF A NEEDS ASSESSMENT CONDUCTED BY UNHCR'S PRINCIPAL IMPLEMENTING PARTNER, CARITAS. THROUGH CHURCH GROUPS AND NGOS, UNHCR OFFERS VOCATIONAL TRAINING SUPPORT, FAMILY PLANNING SUPPORT AND EDUCATIONAL GRANTS. IT ALSO COVERS A PORTION OF MEDICAL EXPENSES AND DISTRIBUTES MONTHLY FINANCIAL AID TO PARTICULARLY VULNERABLE FAMILIES. IN RECENT YEARS UNHCR CAIRO HAS EXPERIENCED A SIGNIFICANT BUDGET CRUNCH STRUGGLING TO STRETCH REDUCED FUNDING FROM GENEVA TO DEAL WITH GREATER NUMBERS OF ASYLUM SEEKERS IN EGYPT. -------------- RESETTLEMENT - ONCE A PRINCIPAL PRIORITY -------------- ¶16. (SBU) IN RECENT YEARS UNHCR'S CAIRO OFFICE HAS DEVOTED MUCH OF ITS RESOURCES TO THIRD-COUNTRY RESETTLEMENT AS AN EFFECTIVE `DURABLE SOLUTION' TO MEET THE PROTECTION NEEDS OF SUITABLE REFUGEES. THIS FOCUS ON RESETTLEMENT ENHANCED CAIRO'S ALLURE AS A DESTINATION FOR ASYLUM-SEEKERS. BY 2004 UNHCR WAS WORKING WITH THE U.S., CANADA AND AUSTRALIA TO RESETTLE AROUND 4,000 RECOGNIZED REFUGEES A YEAR. IN ADDITION, ALL THREE COUNTRIES PROVIDED RESETTLEMENT OPPORTUNITIES FOR CAIRO'S REFUGEES OUTSIDE THE UNHCR PROGRAM, FURTHER ADDING TO CAIRO'S REPUTATION AS A CONDUIT FOR PASSAGE TO A BETTER LIFE ELSEWHERE (CANADA AND AUSTRALIA OFFERED RESETTLEMENT ON HUMANITARIAN GROUNDS FOR SPONSORED INDIVIDUALS AND THE U.S. MAINTAINS TWO FAMILY REUNIFICATION PROGRAMS). -------------- THE U.S. HAS LED THE WAY -------------- ¶17. (SBU) THE U.S. IS BY FAR THE MAJOR RESETTLEMENT DESTINATION COUNTRY OPERATING IN EGYPT. IN FY2004 THE U.S. REFUGEE RESETTLEMENT PROGRAM (USRP) RESETTLED 3,000 REFUGEES FROM CAIRO; IN FY2005 2,000 WERE RESETTLED; AND IN FY2006 THE USRP WILL TAKE APPROXIMATELY 2,700 FROM EGYPT. TRADITIONALLY THE U.S. FIGURES HAVE COMPRISED AROUND 95 PERCENT SUDANESE. INDEED, IN THE ELEVEN YEARS FROM 1996 WHEN THE RESETTLEMENT FIRST BECAME AVAILABLE IN CAIRO, UNTIL THE END OF FY2006 THE U.S. WILL HAVE RESETTLED AROUND 16,500 SUDANESE FROM CAIRO. THE U.S. ALSO TAKES A NUMBER OF OTHER NATIONALITIES AND IN FY2006 THE USRP IS TARGETING AROUND 8-900 VULNERABLE SOMALI WOMEN AND CHILDREN. -------------- UNHCR SHIFTS FOCUS TO REPATRIATION -------------- ¶18. (SBU) UNHCR CAIRO CEASED PERFORMING REFUGEE STATUS DETERMINATIONS (RSDS) FOR SUDANESE IN EGYPT ON JUNE 1, 2004. THE LAST OF FOUR SUDANESE PEACE PROTOCOLS WAS CONCLUDED TWO MONTHS LATER AND UNHCR SCALED BACK RESETTLEMENT ACTIVITIES AND GEARED UP FOR REPATRIATION. IT WAS DETERMINED THAT CONTINUING RESETTLEMENT PROGRAMS IN CAIRO WOULD UNDERMINE EFFORTS TO STEM THE FLOW OF SUDANESE TO CAIRO. THIS DID NOT MEAN AN IMMEDIATE CESSATION OF UNHCR'S RESETTLEMENT ACTIVITIES FOR THE SUDANESE IN EGYPT. INDEED, THERE ARE SUFFICIENT NUMBERS OF ALREADY-RECOGNIZED REFUGEES IN THE U.S. `PIPELINE' FOR SUDANESE RESETTLEMENTS IN THE U.S. FROM CAIRO TO CONTINUE UNABATED THROUGH FY2006. U.S. EFFORTS TO RESETTLE OTHER NATIONALITIES FROM CAIRO HAVE BEEN UNAFFECTED BY THE UNHCR DECISION TO CEASE SUDANESE RSDS. 19.(SBU) EGYPTIAN OFFICIALS WE HAVE TALKED TO GENUINELY REGRET THE LOSS OF LIFE ON DECEMBER 30 AND FEEL THE HUMILIATION OF INTERNATIONAL DISAPPROBATION FOR THE DEATHS. THEY TELL US THEY ARE PROUD OF THEIR GOVERNMENT'S RECORD OF SUPPORT AND TOLERANCE FOR SUDANESE IMMIGRANTS. BUT THEY ARE ALSO NOW MORE ACUTELY AWARE OF THE POTENTIAL FOR INTERNATIONAL DIFFICULTIES THE SUDANESE POPULATION CAN CAUSE. THIS COULD LEAD TO FURTHER STEPS TO SURVEIL AND CONTROL THE SUDANESE COMMUNITY AND POSSIBLY LEAD TO FURTHER DEPORTATIONS. Ricciardone