UNHCR'S BEIJING REPRESENTATIVE DISCUSSES REFUGEES

S E C R E T BEIJING 002100

SIPDIS

SIPDIS

DEPARTMENT FOR EAP, PRM, EAP/CM, EAP/K
GENEVA FOR STORELLA
BANGKOK FOR REFCOORD

E.O. 12958: DECL: AFTER KOREAN UNIFICATION
TAGS: PREF PREL KN CH
SUBJECT: UNHCR'S BEIJING REPRESENTATIVE DISCUSSES REFUGEES
IN CHINA WITH VISITING PRM DAS KELLY RYAN

Classified By: Political Minister Counselor Daniel Shields. Reasons 1.
4 (b/d).

Summary
--------------


1. (S) Some 160 refugees and 62 asylum seekers are currently
receiving UNHCR protection in Beijing, including individuals
from North Korea, Pakistan, Kashmir, Iran and Iraq, UNHCR
Regional Representative for China and Mongolia Veerapong
Vonguarotai told Deputy Assistant Secretary for Population
Refugees and Migration Kelly Ryan. Of the 19 North Korean
refugees presently under UNHCR protection, two were just
admitted into UNHCR care on March 27. Veerapong said Chinese
officials estimate that, in the event of a theoretical
situation in which there were massive flows of North Koreans
into China, China could handle an influx of some 300,000
people without needing outside assistance. When asked if
UNHCR could oversee the Mercy Corps-implemented Poverty
Alleviation Program in the Tumen River Valley (since UNDP
plans to end its involvement with the program by May 29,
2007). Veerapong said that UNHCR would have difficulty doing
this because it lacks access to the border region. End
Summary.

Current UNHCR Cases in Beijing
--------------


2. (S) UNHCR Regional Representative for China and Mongolia
Veerapong Vonguarotai provided DAS Ryan with an update on

March 28 on the refugees currently under UNHCR protection in
Beijing. He said that some 160 refugees and 62 asylum
seekers are currently receiving UNHCR protection, including
individuals from North Korea, Pakistan, Kashmir, Iran and
Iraq. Of the 19 North Korean refgees presently under UNHCR
protection, two siters were just placed under UNHCR care on
March 27, he said. Two of the 19 North Koreans have been
approved for resettlement in the United States and another
three have requested resettlement in the United States. DAS
Ryan was very surprised to learn that UNHCR is providing
maintenance for non-DPRK refugee cases, some of whom have
been in China for significant periods. UNHCR had not
previously informed the Embassy about these cases. DAS Ryan
expressed willingness to accept referrals if possible and
told Veerapong that the United States might be able to help
with resettling the two Iraqis, but noted that we may have
trouble assisting with the two Iranians due to their possible
affiliation with the MEK.


3. (S) Veerapong said that UNHCR is anxious to see all the
refugees in its care processed for resettlement as quickly as
possible. The refugees live under very stressful conditions.
Their freedom is constrained and they are vulnerable to
physical and psychological illnesses. Adequate housing is a
particular problem for UNHCR. The Ministry of Public
Security requires the North Koreans in UNHCR custody to live
in the expensive Chaoyang District of Beijing. UNHCR would
like to find new housing in Beijing and perhaps even expand
its capacity, but this would require Chinese government
approval, which may be difficult to obtain. He said that he
hopes resettlement processing can be reduced from the over 12
months that it currently takes.

Theoretical Mass Influx of North Koreans
--------------


4. (S) Veerapong said that he is not aware of any Chinese
contingency planning to deal with a theoretical mass influx
of North Koreans. He has raised the issue with Chinese
officials, who said China could absorb 300,000 North Koreans
without outside assistance if they did not all arrive at
once. If the North Koreans were to pour in over a very short
period of time however, the Chinese believe a "more
aggressive approach" would be needed, such as bringing in the
Chinese military to seal the border, establishing a holding
area and seeing to the North Koreans humanitarian needs. The
Chinese said that perhaps reaching out to the international
community for assistance would be possible in such an event,
he noted.


5. (S) Veerapong said UNHCR has found planning for a mass
influx event to be difficult, because of UNHCR's lack of


access to the border region and its inability to obtain
accurate estimates on the number of North Korean refugees
that might stream into China. He said that he was encouraged
to hear an official from the Ministry of Public Security ask
United Nations High Commissioner for Refugees Guterres how
UNHCR might deal with such an event during the High
Commissioner's recent layover.

Refugees in Mongolia
--------------


6. (C) DAS Ryan asked Veerapong for an update on North
Koreans refugees living in Mongolia. Veerapong said UNHCR is
currently discussing with Mongolia and South Korea how to
improve living conditions for refugees in Ulaanbaatar, who
presently live in a gymnasium converted into living quarters.
According to Veerapong, South Korea favors building two new
facilities for the refugees, but for logistical and security
reasons, UNHCR prefers operating one facility. The
Government of Mongolia can easily protect one facility, he
said, noting the constant presence of DPRK agents that makes
security essential. The final decision rests with Mongolia,
he stated. Veerapong told DAS Ryan that the Mongolian
authorities genuinely want to help the refugees, but are also
concerned that their assistance be kept low-key. Ulaanbaatar
knows that both the DPRK and China watch events closely in
Mongolia, he added.


7. (C) DAS Ryan stressed to Veerapong that it is the ROK and
not the United States that insists that North Korean refugees
in Mongolia bound for the United States be kept in a separate
facility from those bound for South Korea. The United States
is fine with the refugees living together. Veerapong said
that he was pleased to hear this.

UNHCR Working Conditions in China
--------------


8. (C) Veerapong said that UNHCR, without a formal Chinese
government counterpart with which to interact, operates
"alone" in China, dealing separately with various Chinese
ministries. This often leads to conflicting outcomes on the
same issue. Officials from the Ministry of Civil Affairs
have been the most helpful, although they are often overruled
by the Ministry of Public Security. Personal relationships
are essential to producing results. Referring to the recent
arrest in China of two Pakistani nationals, Veerapong said
that his close relations with the Chinese, not diplomatic
pressure, enabled him to gain access to the detainees. He
said that China is the most challenging place that he has
worked in his UNHCR career.


9. (C) Because Beijing does not consider North Koreans in
China to be refugees, providing assistance to them is often
done on an ad hoc basis. However, since the DPRK's nuclear
test, Veerapong has perceived a change in China's attitude
toward North Korean refugees. China's attitudes changed
almost overnight, he said. He noted that the Chinese have
never deported refugees who are already under UNHCR
protection.


10. (C) Veerapong said new concepts like "humanitarian
space" are worth pursuing with the Chinese, but must be
handled in a way that takes into consideration China's
extreme sensitivity to outsiders' providing advice on what
the Chinese consider domestic matters. He suggested
emphasizing to the Chinese the international community's
willingness to assist with the costs for such a project.

UNHCR Relations with NGOs and Third Countries
--------------


11. (C) The Chinese Government does not permit UNHCR to
cooperate with Chinese or foreign NGOs, Veerapong said in
response to a question from DAS Ryan. If the International
Office for Migration were to open shop in Northeastern China,
he said, they would find their operations hindered by the
Chinese Government. Closer cooperation between UNHCR and the
United Nations International Children's Emergency Fund may be
possible in China. North Korean children in China could be
helped in the context of programs that assist broader groups
in children in China, he said.



12. (C) Veerapong told DAS Ryan that nearly all of UNCHR's
funding for its China operations is provided by the United
States. Even though most North Korean refugees in China are
resettled in South Korea, the ROK is anxious to keep a low
profile on its refugee assistance. Although the ROK does not
fund UNHCR, for North Korean-related efforts, it does
financially support activities in other countries, including
Mongolia, where South Korean funds pay for nearly all of the
costs for health care and humanitarian aid to North Korean
refugees.

Operations in Hong Kong
--------------


13. (C) Turning to UNHCR operations in Hong Kong, Veerapong
told DAS Ryan that, despite the relatively smooth processing
procedures and faster turnaround times, Hong Kong UNHCR has a
current backlog of over 2,500 cases. Two hundred refugees a
month from various countries arrive in Hong Kong and are
processed by UNHCR. UNHCR officials are concerned that
speedy resettlement will attract even more refugees to Hong
Kong and stretch already limited resources. With
resettlement options limited and local integration not
possible, most refugees in Hong Kong are resettled in the
United States and Canada, as well as in Australia and in
Nordic countries.

Asylum Provision Nears Completion
--------------


14. (C) Veerapong said that formal legislative and
administrative provisions governing the granting of asylum in
China are in the final drafting stages. However, China has
yet to decide which ministry will be responsible for
implementing the provisions. UNHCR favors the Ministry of
Civil Affairs, he said, adding that the Ministry of Public
Security's involvement in this process will likely complicate
UNHCR efforts.
RANDT