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

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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