UNHCR WISHES TO FORMALLY TERMINATE ANGOLAN REFUGEE

UNCLAS SECTION 01 OF 02 LUANDA 000174 SIPDIS SENSITIVE SIPDIS STATE FOR PRM/MMCKELVEY AND MLANGE; AF/S E.O. 12958: N/A TAGS: PREF PHUM PGOV AO SUBJECT: UNHCR WISHES TO FORMALLY TERMINATE ANGOLAN REFUGEE PROGRAM ¶1. (U) This is an action cable. Please see paragraph 8. ¶2. (SBU) Summary: United Nations High Commission for Refugees (UNHCR) Representative informed Embassy Luanda of UNHCR,s intent to terminate the repatriation/reintegration program for Angolan refugees and invoke the cessation clause, recognizing that circumstances leading Angolans to seek refuge in neighboring countries no longer exist and that Angolans should no longer qualify for prima facie refugee status. In support of the cessation clause, UNHCR Rep noted that organized repatriation has ended; reintegration is being phased out; election preparations are underway with the voter registration campaign and the situation is stabilized in Cabinda. However, the GRA must assure documentation for about 40,000 undocumented child refugees before cessation could occur. UNHCR is consulting with Ambassadors from the recipient countries as well as donors and requested USG concurrence with the plan. If all arrangements are satisfactory, UNHCR plans to hold a formal ceremony terminating the refugee program in late March, 2007 in Luanda. End Summary. Angolan Repatriation/Reintegration Nears its End -------------- --- ¶3. (SBU) United Nations High Commission for Refugees (UNHCR) Representative Dario Carminati called on Ambassador Efird on February 13, 2007 to discuss the refugee situation in Angola and UNHCR,s possible termination of the repatriation/reintegration program for Angolan refugees and invoke the cessation clause, recognizing that circumstance leading Angolans to seek refuge in neighboring countries no longer exist and that Angolans should no longer qualify for prima facie refugee status. Carminati outlined the current situation, noting that organized returns had ended and that UNHCR was phasing out the reintegration phase. He said there were some outstanding issues still concerning Angolan refugees in neighboring countries. For example, in the Zambian copper-belt region there were approximately 19,000 Angolans still in camps and about 24,000 living outside refugee camps who had lived for a long time in Zambia, and were not inclined to return to Angola. According to Carminati, the Zambian government was reluctant to talk about local integration, but noted that residency permits might be an option. Regarding Namibia, Carminati said that the Namibian government seemed more open to moving from refugee status to permanent resident status. He also noted that with the dropping of the visa requirement for travel between Angola and Namibia (for Angolan and Namibian citizens) others could return more easily in the future. However, in a subsequent conversation with Ambassador Efird, the Namibian Ambassador commented that the presence of Angolan refugees in Namibia remained a matter of concern for his government. ¶4. (SBU) Carminati said that according to the 1951 Convention Relating to the Status of Refugees, UNHCR can invoke a cessation clause based on the situation (e.g. &the circumstances in connection with which (a refugee) has been recognized as a refugee have ceased to exist8). This clause would become effective January 1, 2008. Normally, one condition for invoking the cessation clause is that elections have been held in the country. However, given that the voter registration process is well underway and the GRA has announced plans for legislative elections in 2008, he believed this showed a good faith effort on behalf of the GRA. GRA Obligations to Terminate Angolan Refugee Program -------------- -------------- ¶5. (SBU) However, Carminati noted a few conditions which the GRA would have to meet before a cessation clause could go into effect. First, he explained that the Ministry of Justice (MOJ) had stopped registering returnees, especially children. He estimated that about 40,000 children in all were affected. Children from 0-10 years of age needed birth certificates issued; those from 10-17 need registration &cedulas8 or certificates. He expected to meet shortly with the Minister of Social Reintegration to explore modalities. UNHCR has offered to pay for registration for 20,000 children if this would help the process. Under the voter registration program, those turning eighteen by January 1, 2008, can register with UNHCR-issued refugee papers. The voter registration card is linked to a nationwide computer database and contains a picture identification and digital imprint, thus it is expected to overtake the national identity card as the primary means of identification for adults in Angola. Note: The process to obtain the voter registration card has proven to be more streamlined and LUANDA 00000174 002 OF 002 simple in contrast with the process to obtain a national identity card which can take between six months and one year. End Note. ¶6. (SBU) Second, he mentioned the technical and legal issue of Cabinda. Since 2004, UNHCR has followed a policy of not advocating for organized return to Cabinda. However, since the signing of the Cabindan Memorandum for Peace and Understanding (MOU) in August, 2006, he believed current conditions in Cabinda had become more favorable for the return of refugees. Ambassador Efird noted that voter registration appeared to be progressing without incident in Cabinda and groups on the ground, such as the International Red Cross, reported a diminution in human rights incidents. Carminati also noted that there have been some voluntary refugees returning from DROC to Cabinda without issue. Finally, he said that a March 27, 2007 ceremony has been planned for Luanda, with technical meetings on the cessation clause to follow on March 28-29, 2007, and UN High Commissioner for Refugees Antonio Guterres planned to visit Luanda for the ceremony. ¶7. (SBU) Carminati noted that if a cessation clause is invoked this would lift refugee status for the class of Angolans worldwide, but that special circumstance individuals could be reviewed on a case by case basis. He mentioned that the Ministry of Interior was building an asylum infrastructure and developing new immigration and refugee laws. Carminati told us that UNHCR would close its Angolan field office in 2007 but would maintain a local presence, continuing to report directly to Geneva. In 2008, Angola and Namibia would be served by the South Africa regional office. ¶8. (SBU) Action Request: Embassy Luanda requests Washington views on UNHCR,s intent to terminate the repatriation/reintegration program for Angolan refugees and invoke the cessation clause, effective January 1, 2008. Several Ambassadors in Luanda, whose countries have funded resettlement projects and/or have significant number of Angolan citizens resident in their countries, have recommended a meeting to discuss these issues. EFIRD