UNHCR DOUBLES PROGRAMMING AND SUPPORTS RETURNS IN

C O N F I D E N T I A L SECTION 01 OF 03 BAGHDAD 003479

SIPDIS

E.O. 12958: DECL: 10/29/2018
TAGS: IZ PHUM PREF PREL
SUBJECT: UNHCR DOUBLES PROGRAMMING AND SUPPORTS RETURNS IN
IRAQ

Classified By: Deputy Chief of Mission Patricia Butenis for reasons 1.4
(b) and (d).


1. (C) SUMMARY: Assistant UN High Commissioner for Refugees
for Operations Judy Cheng-Hopkins briefed the Ambassador
October 28 on UNHCR,s new strategy to sharply increase
engagement inside Iraq to support returns. Ambassador
Crocker encouraged UNHCR to continue direct engagement with
the Iraqi Security Forces, as they were the GOI institutions
responsible for security and property restitution, the most
critical factors determining returns. On criticism from Iraqi
officials concerning the resettlement program, the Ambassador
encouraged UNHCR to emphasize its efforts to return families
and implement projects to help them. Regarding Camp Ashraf,
UNHCR opposes any forced return of the residents to Iran,
would assist with requests for voluntary return, and is
prepared to assist and advise the GOI on implementing its
humane treatment assurances. On security arrangements for
the UN once SOFA is implemented, the Ambassador said measures
would be in place to support UNAMI and the UN agencies and
that the GOI would gradually take lead responsibility.
Cheng-Hopkins announced that High Commissioner for Refugees
Guterres plans to visit Iraq November 25-28. END SUMMARY


2. (C) United Nations Assistant High Commissioner Judy
Cheng-Hopkins and UNHCR Middle East-North Africa (MENA)
Director Radhouane Nouicer visited Baghdad October 26-28.
They met with a range of interlocutors, including Deputy
Prime Minister Essawi, Vice President Hashemi, Foreign
Minister Zebari, Deputy Interior Minister Adnan Al-Assadi,
and Baghdad Operations Commander General Aboud Qanbar.
Cheng-Hopkins met separately with Ambassador Crocker and
MNF-I Civil Military Operations Director (CJ-9) Brigadier
General (Promotable) Perkins October 28. She was accompanied
by UNHCR MENA Director Nouicer, and UNHCR Iraq Representative
Daniel Endres and Deputy Representative Shoko Shimouzawa.
Senior Refugee/IDP Affairs Coordinator and Refcoord
participated in the meeting. They met with the Minister of
Displacement and Migration in Amman before arriving in
Baghdad. Cheng-Hopkins and her delegation departed Iraq
immediately after the meetings at the Embassy. We will
report on other meetings septel, as we follow up with UNHCR
staff.

UNHCR PLANS TO DOUBLE INSIDE IRAQ BUDGET


3. (C) Assistant High Commissioner Cheng-Hopkins briefed
Ambassador Crocker on UNHCR,s new strategy to sharply
increase engagement inside Iraq to support returns, while
continuing assistance to a large population of needy IDPs.
While noting that the security situation continues to present
challenges, Cheng-Hopkins said that UNHCR had concluded from
its successful shelter rehabilitation work in Sadr City,
Basra and Mosul this summer that it is indeed possible for
its national staff and local NGOs to implement projects in
many parts of central and southern Iraq. Given the steady
pace of returns ) over 85 percent IDPs for now ) UNHCR
plans to play a leadership role in supporting returns. While
total returns represent less than 10 percent of post-Samarra
displacement and refugee returns only a trickle, the only way
for UNHCR and other agencies to prepare for a larger return
flow is to get capacity on the ground now. As such, UNHCR is
planning in 2009 to double the inside Iraq portion of its
regional appeal to over $80 million. It would raise its
in-country international staff complement from five to nine
and increase its local staff. HCR plans to markedly expand
the reach of its Protection Assistance Centers inside of
Baghdad to provide legal assistance, help Iraqis access GOI
services and address special needs cases. UNHCR would focus
on key return neighborhoods, such as Hurriya and Doura, and
apply a "package approach" to address individual needs and
community services. UNHCR would carry out its mandate for
shelter rehabilitation through its implementing partners and
would coordinate the work of other UN agencies, such as
UNICEF and WHO to address the particular education and social
service needs of returnees. Cheng-Hopkins and Nouicer
commented that the Ministry of Displacement and Migration
(MODM) is ineffective. UNHCR would continue to work with the
ministry, but they made clear that their expansion plans do
not depend on MODM.

GOI NEEDS UNHCR,S HELP


4. (C) Recalling High Commissioner for Refugees Guterres,
commitment to strengthen UNHCR's involvement inside Iraq
expressed during his February 2008 visit to Baghdad, the
Ambassador welcomed UNHCR's expansion plan, especially the
focus on returns. The Ambassador underscored that in
addition to implementing assistance, UNHCR has a critical
role to play in helping prepare the Iraqi Government to
address returns and shape Iraq's approach to the

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international community. Noting that today,s Iraq was far
different from Iraq of the Baathist era (1958-2003),he said
that the GOI needs much help in building relationships and
capacity. To do so, we must understand what Iraq's
transition means, both psychologically and physically.
While the new GOI holds power, it is navigating amidst the
persistent political culture of the past. One practical
reality of this is that Iraqis are very sensitive about being
told what to do by outsiders. Noting that Cheng-Hopkins had
come directly from a meeting with the Baghdad Operations
Commander General Abud Qanbar (whom UNHCR had urged not to
evict squatters on public property unless the GOI had a
definite need for the property),the Ambassador encouraged
UNHCR to continue direct engagement with the Iraqi Security
Forces (ISF),as they are the GOI institutions responsible
for security and property restitution, the two conditions
that are most critical to returns. The Ambassador commented
that this engagement presents an important opportunity within
an opportunity. The ISF does not have a depth of experience
in protecting the people. This had not been how the previous
regime had used the security forces. UNHCR and the other UN
actors have an opportunity to help orient the ISF in this
positive direction and empower it without creating enmity
among the population. At present, ISF are supporting
returns well in some areas, such as northwest Baghdad, and
less well in others, as in Abu-Ghraib. UNHCR had witnessed
positive ISF role in visits to northwest Baghdad, organized
by the Second Brigade Combat Team of the 101st Airborne.

ADDRESS GOI CRITICISM OF RESETTLEMENT WITH FOCUS ON RETURN


5. (C) Cheng-Hopkins said she received sharp criticism from
some Iraqi officials that UNHCR's third country resettlement
program is exacerbating the brain drain from Iraq. (Note: We
learned subsequently that it was Vice President Tariq
al-Hashemi. End Note.) Cheng-Hopkins said UNHCR's standard
response to such concerns is that third country resettlement
is available to only a small number of Iraqi refugees and
that UNHCR prioritizes resettlement for the most vulnerable
and needy of the refugees. She asked the Ambassador for his
advice on how to manage this issue with the GOI. The
Ambassador replied that UNHCR should emphasize that return is
the principal durable solution UNHCR is working to achieve.
This is the case almost everywhere in the world and it is
true for Iraq. Ambassador reminded Cheng-Hopkins that the
refugee experience Iraqis and others in the region have first
and foremost in their minds is that of the Palestinians and
UNRWA, which has no return component. He said the equation
in the Iraqi consciousness is simple: refugees plus UN
equals UNRWA. To counter this, Iraqis need to see UNHCR's
positive role. He encouraged UNHCR to emphasize its efforts
to return families and implement projects to help them and
work with the Iraqi media to publicize this. (Note: In a
related development, last week UNHCR Assistant High
Commissioner Erica Feller told PRM that UNHCR is conducting a
comprehensive review of protection considerations for Iraqis
in neighboring countries and that it will soon issue a new
advisory on returns. The new advisory would still be
"cautionary;" but it would reflect UNHCR's assessment that
parts of Iraq are more conducive for safe and voluntary
returns than others and would therefore be more nuanced and
forward leaning than the current advisory. End note.)

GOI NEEEDS UNHCR HELP TO MANAGE MEK


6. (C) The Ambassador expressed appreciation for UNHCR's
past work in according refugee status to defectors from Camp
Ashraf and in protecting and attempting to facilitate third
country resettlement of the former Mujahedin e-Khalq (MeK)
refugees. He said that the transition from MNF-I to GOI
security control of Ashraf is proceeding somewhat more slowly
than expected because the GOI was not ready. He said the GOI
needs the help of international organizations such as UNHCR
to implement and uphold its humane treatment assurances. Its
presence and attention would remind the GOI that the
international community is watching. Middle East Director
Nouicer laid out UNHCR's longstanding approach to the MeK to
General Perkins. There would be no blanket refugee status
for the Camp Ashraf residents. UNHCR would consider
individual requests for refugee status from individuals as
long as they are outside the camp and have renounced the MeK.
Nouicer encouraged the re-establishment of a camp where
defectors could go, but he deflected an inquiry about UNHCR's
readiness to run it. Nouicer said UNHCR would oppose any
forced return of the residents to Iran. However, UNHCR would
assist with requests for voluntary return. UNHCR is prepared
to assist and advise the GOI on implementing its humane
treatment assurances.

UNHCR CONCERNED ABOUT SECURITY ARRANGEMENTS IN 2009


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7. (C) Cheng-Hopkins said that UNHCR had taken the strategic
decision to expand in Iraq. The Government of Sweden had
funded ($1.5 million) and is supervising the construction of
a 35 room office building in the current UN compound. This
would provide space for UNHCR and other agencies to expand.
However, she was concerned about security arrangements for
the UN once the SOFA is implemented. The Ambassador replied
that measures would be in place to support UNAMI and the UN
agencies. He said that the international presence benefits
the GOI and that the GOI is keen to take on the role of
ensuring effective protection. At present there is a
transition to Iraqi control and the U.S. is heavily engaged
in training and building up ISF capacity. He cited the PRTs
in Najaf and Karbala, as models for the future. Since the
withdrawal of coalition combat forces from those provinces,
both PRTs are located on Iraqi Army bases. U.S. military
units provide perimeter security for the PRT and movement
support. UNHCR Representative Endres expressed the concern
that UNDSS remains a problem and hoped that they would not be
locked down once CF ceased providing protection.

HIGH COMMISSIONER TO VISIT IRAQ NOVEMBER 25-28


8. (SBU) Cheng-Hopkins announced that High Commissioner
Guterres plans to visit Iraq November 25-28 and that he is
keen to travel around the country, possibly to Najaf, Ramadi,
Basra and Mosul. She said that the HC would need support
from MNF-I. Both the Ambassador and General Perkins pledged
support. Perkins urged UNHCR to get their requirements to
MNF-I as soon as possible.

COMMENT


9. (C) We have been nudging UNHCR to expand programming
inside Iraq and focus on supporting returns for months and we
are pleased to see them commit to this. UNHCR's readiness to
engage with the military and MNF-I's strong support have been
critical factors in enabling UNHCR to circulate and assess
conditions. UNHCR has a realistic view of MODM's limited
capacity and is structuring its programming independently of
the ministry. As U.S. forces draw down and the GOI
increasingly assumes its responsibility for security, there
will be need for continued dialogue with UNDSS to ensure that
UNAMI and the UN agencies can move.
CROCKER