ROYG FACES OBSTACLES TO FULL REFUGEE REGISTRATION

C O N F I D E N T I A L SANAA 001287

NOFORN
SIPDIS

DEPARTMENT FOR NEA/ARP AND PRM
AMMAN FOR REFCOORD RUSTY INGRAHAM

E.O. 12958: DECL: 07/21/2019
TAGS: PREF PGOV PHUM PREL SO UNHCR YM
SUBJECT: ROYG FACES OBSTACLES TO FULL REFUGEE REGISTRATION
AND POLICY COORDINATION

Classified By: Ambassador Stephen A. Seche for reasons 1.4 (b) and (d)

Summary
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1. (C/NF) Although refugee-registration centers are now open
in Sana,a and Aden, many questions loom over refugee affairs
in Yemen. Widespread discrepancies in official reporting on
the number of refugees in the country, and ineffectual
communication and cooperation between government ministries
have led to differing opinions on how to approach the topic.
Aid agencies and UNHCR continue to move forward and report
significant successes in their programs, but with numbers of
incoming refugees rising, a fully coordinated approach and
continuing foreign assistance will be necessary to ensure the
communities, stability and integration. End Summary.

"I,m Registered, Now What?"
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2. (SBU) The first ever refugee registration centers in
Yemen opened in Sana,a in March and in Aden in early July.
According to the Ministry of Interior (MOI),there are
currently plans for future centers in Ta,iz, Hudaydah,
Mukalla, and Shabwah, although no dates have been set for
their inauguration. These centers will be run entirely by
the ROYG.


3. (SBU) While numbers of registrants appear to be steadily
growing, they still represent a meager percentage of the
total number of suspected refugees in Yemen. The Sana,a
registration center has already accounted for between 12,000
- 14,000 refugees. Yet, UNHCR,s official count at the end
of June numbers 154,009 known refugees countrywide, over 95
percent of whom are Somalis. Unofficial estimates from the
MOI and Ministry of Human Rights put the total numbers
anywhere between 500,000 to 1.2 million. (Comment: Most of
our interlocutors estimate the number to be between 500,000 -
600,000. End Comment.) Moreover, the newest UNHCR numbers
report almost 30,000 new arrivals by sea half-way through
2009, compared with the 50,000 estimated arrivals for all of

2008. Since return to their homeland is not viable for most
Somali refugees, and fewer than 1,000 are resettled every
year, refugee work in Yemen focuses on integration. Proper
registration of the refugees thus serves an important role in
providing them with vital services such as health care,
counseling, vocational training and educational
opportunities. Additionally, having standardized
documentation will allow the ROYG a better estimate of the
total refugee population and protect the refugees by
facilitating their ability to prove their legal status.


4. (C/NF) The opening of new centers and increasing
registration of refugees indicates a degree of success.
However, government officials and NGOs retain some
skepticism. Colonel Abdelsalam Johar from the MOI,s Refugee
Department told CONOFF on July 8 that many refugees are
reluctant to register due to fear of deportation or
government monitoring. Nagi Khalil, the country director of
Adventist Development and Relief Agency (ADRA),noted that
refugees mistakenly believe that they have nothing to gain by
registering: they already have legal status in Yemen, and
should the government ever wish to close its doors,
registration would be a great way to keep track of everyone
they wished to deport. Similarly, UNHCR and the MOI both
noted that Somalis are more likely to register than the
Ethiopians or Eritreans who do not have automatic status and
are much more likely to be deported or detained. While there
are no signs that Yemen plans to reverse its open door policy
towards Somalis, Ambassador Mohamed al-Shami, the head of the
Africa department at the MFA and chair of the National
Sub-Committee on Refugee Affairs (please protect),confided
that he personally disagrees with Yemen,s refugee policy.
Citing Yemen,s internal conflicts and severe poverty,
Ambassador Shami does not find it appropriate that the
government provides any of its scarce resources to refugees.

Intra-Government Wrangling
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5. (C/NF) The National Committee for Refugee Affairs (NCRA)
is supposed to meet quarterly, but meetings have allegedly
been infrequent and poorly attended. The bulk of the work
has thus shifted to the sub-NCRA headed by Ambassador Shami,
whose work consists mostly of soliciting foreign donations
for ROYG refugee programs. Meanwhile, a draft refugee law

submitted to Parliament last year remains stalled.
Abdelkarim al-Wazan, a representative from the Ministry of
Human Rights, claimed that his ministry has been largely
marginalized and is generally granted minimal support and
funding. Despite Johar,s claims that his work is a top
priority of the Minister of Interior, recent press reports of
Somalis fighting with the Houthis (Shi,a rebels in the
northern governorate of Sa,ada) against government forces
have disillusioned some in the MOI on the need to help the
refugee populations, according to Khalil. (Comment: We have
seen only one such press report, and are unconvinced of its
veracity. End Comment.)


6. (C/NF) Despite inter-agency difficulties within the
ROYG, there have been some successes. UNHCR and the Ministry
of Human Rights have recently created a joint task force to
address problems in the refugee communities. According to
Wazan, the majority of complaints received from the refugees
deal with their treatment by UNHCR employees. The Ministry
has therefore partnered with UNHCR to improve training for
their employees. UNHCR continues educating both refugees and
government agencies about the importance of registration, and
is fighting to earn a monitoring position on the sub-NCRA.
Moreover, the MOI is in the process of upgrading its refugee
unit to a full-scale department, which should include
increased resources and attention within the ministry,
according to UNHCR. ADRA reports ongoing success in its
programs in Aden and is planning to open a refugee community
center in Sana,a during the next fiscal year.

Comment
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7. (C/NF) As long as the security situation in Somalia
remains volatile, the number of refugees in Yemen will
continue to grow, as will the number of Somalis who die en
route. Already dealing with a host of other internal
problems, Yemen lacks the capacity to fully accommodate and
coordinate the growing number of arrivals. The ROYG needs to
improve its coordination internally and with international
stakeholders and make refugee affairs a priority. In
addition, foreign assistance through UNCHR, ADRA, Save the
Children and the various other organizations will remain
vital for the continued security of the some of the most
vulnerable communities in Yemen. End Comment.
SECHE