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Viewing cable 07LUANDA174, UNHCR WISHES TO FORMALLY TERMINATE ANGOLAN REFUGEE

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Reference ID Created Released Classification Origin
07LUANDA174 2007-02-22 16:08 2011-08-25 00:00 UNCLASSIFIED//FOR OFFICIAL USE ONLY Embassy Luanda
VZCZCXRO4857
RR RUEHBZ RUEHDU RUEHJO RUEHMR RUEHRN
DE RUEHLU #0174/01 0531608
ZNR UUUUU ZZH
R 221608Z FEB 07
FM AMEMBASSY LUANDA
TO RUEHC/SECSTATE WASHDC 3737
INFO RUCNSAD/SOUTHERN AFRICAN DEVELOPMENT COMMUNITY
RUEHGV/USMISSION GENEVA 0007
RUCNDT/USMISSION USUN NEW YORK
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