Identifier
Created
Classification
Origin
06CAIRO170
2006-01-12 20:03:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
Embassy Cairo
Cable title:  

SUDANESE REFUGEES IN EGYPT

Tags:  PREF PHUM PREL ASEC CVIS EG SU UNHCR 
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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
-------

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.

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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