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Viewing cable 09BANGKOK1376, Thai Government Plans Migrant Worker Amnesty
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| Reference ID | Created | Released | Classification | Origin |
|---|---|---|---|---|
| 09BANGKOK1376 | 2009-06-09 00:08 | 2011-08-25 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Bangkok |
VZCZCXRO3669
PP RUEHCHI RUEHDT RUEHHM RUEHNH
DE RUEHBK #1376/01 1600008
ZNR UUUUU ZZH
P 090008Z JUN 09
FM AMEMBASSY BANGKOK
TO RUEHC/SECSTATE WASHDC PRIORITY 7225
RUEHC/DEPT OF LABOR WASHINGTON DC PRIORITY
INFO RUEHCHI/AMCONSUL CHIANG MAI 6646
RUCNASE/ASEAN MEMBER COLLECTIVE
UNCLAS SECTION 01 OF 03 BANGKOK 001376
Department for EAP/MLS DRichelsoph, DRL/IL MJunk, DOL/ILAB for
Brandie Sasser
SENSITIVE
SIPDIS
E.O. 12958: N/A
TAGS: ELAB PHUM BM TH
SUBJECT: Thai Government Plans Migrant Worker Amnesty
BANGKOK 00001376 001.2 OF 003
Sensitive But Unclassified. For Official Use Only.
Ref A: Bangkok 1319 (Unemployment)
¶1. (SBU) Summary: Thailand will soon implement an "amnesty" plan to
register illegal migrants from Burma, Laos, and Cambodia who are
employed in certain sectors of the Thai economy: fishing,
fisheries-related work, construction, farming and livestock, and
domestic work. While details of the plan are still being developed,
the process envisioned would require these migrants to register by
July 25 of this year and verify their nationality with the
government by February 2010. The plan, while still not well
understood by international or local observers, has elicited a mixed
(but mostly negative) response so far. Some have lauded the plan as
a positive initiative, noting any registration of illegal migrants
is better than none. Still, others are quick to point out expected
operational problems and potential for abuse that the process may
open. Given the difficulties companies and laborers will likely
face through participation in the registration, none of the
observers that we consulted expect this registration process, as
currently proposed, to successfully attract a large number of
participants. End Summary.
Background and Rationale
------------------------
¶2. (SBU) On May 26, the Royal Thai Government (RTG) cabinet
approved a plan to open a new round of registration for unregistered
migrant laborers in Thailand. While the plan and the procedures it
envisions have not yet been formally announced, according to the
Ministry of Labor (MOL) and Ministry of Foreign Affairs (MFA)
officials we consulted, the registration process will cover illegal
migrants from Laos, Cambodia, and Burma who arrived in Thailand
after 2004 and are employed in five sectors: fishing,
fisheries-related work, construction, farming and livestock, and
domestic work. According to the plan, unregistered migrants in
these economic sectors must apply for identification cards (that
will act as work permits) and complete a citizenship verification
process by February 2010. Thai officials have stated the government
may, at some later date, expand the registration to include workers
in other sectors of the economy should the government see a need to
do so. Migrant workers (from Cambodia, Laos, and Burma) who had
previously registered to work temporarily in Thailand may continue
to renew their work permits.
¶3. (SBU) Economic migrants from Cambodia, Laos, and Burma, as well
as those seeking to escape the Burmese regime, began crossing into
Thailand in great numbers in the 1980s. Technically under Thai law,
all such entries are illegal as are efforts to aid and assist
illegal migrants. Recognizing the value of these migrants to the
Thai economy, however, the government in 1992 began a series of
amnesty registrations that allowed for those illegal migrants
already working to remain in Thailand for a limited period to work
legally. Limited amnesty registrations (by sector, geographic area,
or for renewals only) continued until 2004 when a blanket amnesty
was provided for all working illegal migrants from Cambodia, Laos,
and Burma. Every year since, these registered migrants have been
allowed to renew their work permits. The number of registered
migrants has gradually declined, however, from approximately 1.26
million in 2004 to approximately 540,000 today. Reasons given for
this decrease include the changing of employers by migrants (who
then thereby lose their registered status) and the lack of perceived
benefits of registration by many migrants who often face poor
treatment and discrimination. Today, the RTG estimates that in
addition to the 540,000 registered migrants, between 1.3 and 1.5
million additional illegal migrants reside within Thailand.
¶4. (SBU) RTG discussions about a new registration process have been
on-going for months. Plans for a registration last year were put on
hold out of concern for rising unemployment due to the global
economic crisis. The Thai government conducted several job fairs at
which only a few Thais applied for jobs in the sectors covered by
the registration. In light of this excess labor demand, the plan
for a new migrant registration went forward.
The Process As Envisioned
-------------------------
¶5. (SBU) While the Thai Cabinet has approved the registration plan,
various aspects of it, including the related citizenship
verification system for those claiming Burmese nationality, still
need to be developed. This citizenship verification process is
expected to take at least a few months to be implemented. Some
aspects of the plan have apparently been established and will
require action by laborers, employers, and government offices by the
following deadlines:
- The Ministry of Interior (MOI) must issue an official notification
(much like a USG Federal Register Notice) that allows illegal
BANGKOK 00001376 002.2 OF 003
migrants from Laos, Cambodia, and Burma to temporarily reside in
Thailand. The RTG plans for this to happen within 30 days of the
cabinet decision (possibly by June 25).
- The MOI's Department of Provincial Administration (DOPA) must
receive all applicants for registration (from employees or their
employers) within 30 days after the MOI issues its notification.
- The Ministry of Public Health will need to conduct health checks,
and register migrants for health insurance by no later than 45 days
after the DOPA registration.
- The MOL's Department of Employment (DOE) must receive from the MOI
the names of the migrant workers applying for work permits and
provide the MOI authorization for them to be issued. This is to be
done within 60 days after DOPA first receives a migrant's
application for registration.
- After DOPA receives proof of health screening from the MOPH and
authorization from the DOE, DOPA will issue a migrant
identification/work permit card (within 60 days after receiving
authorization from the DOE).
- While migrants can receive work permits prior, they must complete
a nationality verification process by February 2010.
¶6. (SBU) According to the current plan, spouses and children of
migrant laborers will not be allowed to register, unlike the 2004
registration. Migrant workers registering in this round, regardless
of which of the five listed employment sectors they enter, will
receive work permits that prohibit them from working outside these
five sectors. In order to change jobs within the five listed
sectors, laborers (or their employers) must first transfer
registration documentation from one employer to the next, and file
the documentation with government authorities.
Citizenship Verification - A Necessary Evil
-------------------------------------------
¶7. (SBU) One key component to the registration process, which even
RTG officials admit is fraught with difficulties, is the
verification of citizenship, at least for those claiming Burmese
nationality. For those claiming citizenship from Laos and
Cambodia, the RTG plans to (in collaboration with the governments of
Laos and Cambodia) set up one-stop service centers in various
locations in Thailand where migrants can go to verify their
nationality. After doing so, migrants will receive a temporary
passport and visa, allowing them to live and work in Thailand for
two years. Registered migrants will generally be required to return
to their country of origin to receive a permanent passport and visa
(to replace the temporary ones received in Thailand) and then return
as legal, temporary migrants. However, the RTG will allow migrants
who do not want to return to Cambodia or Laos for the new passport
to apply for a temporary passport extension at their embassy in
Thailand.
¶8. (SBU) For migrants originating from Burma, the RTG has been
negotiating with Burmese government officials for months with the
hope of establishing a process similar to that established for
migrants from Laos and Cambodia (Minister of Labor Phaitoon
Kaeothong traveled to Burma the week of May 18 for this purpose).
The Burmese government initially insisted that those claiming
Burmese citizenship should travel to Burma to verify their
citizenship, but has since backed away from this stance. According
to a Thai MOL official June 5, the Thai and Burmese governments have
agreed (at least in theory) to a plan that will require Thai
employers to bring the Burmese migrant laborers to (yet to be
established) Thai processing centers along the Burmese border for
processing. Once registered at the Thai center, the migrant would
then cross to another processing center on the Burmese side of the
border to receive a temporary passport with which to cross back into
Thailand. Once back on the Thai-side of the border, the migrant
would then receive a non-immigrant visa from the Thai center and
would be able to proceed to their place of employment. A Thai labor
official claimed this entire process could be done in a day.
¶9. Several logistical hurdles stand in the way of this
implementation, however. Currently, registered migrant laborers are
not allowed to leave the province in which they are employed without
seeking permission from the provincial governor. Also, under Thai
immigration law, immigration police are obligated to deport
unregistered illegal migrants whom they encounter. As such, MOL
officials are discussing with MOI and Immigration police officials
how to establish procedures that will allow for unregistered
migrants to cross provincial lines and national borders in order to
verify their nationality.
BANGKOK 00001376 003.2 OF 003
Reaction Mixed, But Mostly Negative
-----------------------------------
¶10. (SBU) Observers from international organizations (the
International Labor Organization and International Organization for
Migration) and non-governmental organizations (NGOs) have little
knowledge of the details of the plan. Some, including a
representative from the International Organization for Migration
(IOM) and a prominent labor activist, believe the registration is a
good initiative. The IOM official plainly stated, "Is it a move in
the right direction? Absolutely." Nonetheless, others are
critical of the plan: the timeframe in which migrants can register
is too short; migrants cannot change employers when they wish
(potentially tying them to labor abusers); the nationality
verification process (for Burmese) is overly burdensome on employers
and laborers in terms of cost and time, and may require a reliance
on potentially unscrupulous labor brokers.
¶11. (SBU) One NGO activist who works with ethnic minorities from
Burma who reside in Thailand noted the communities he assists are
confused by the lack of detail on the registration so far. He
stated that virtually none of those he works with plan to
participate in the registration, fearing they or their families in
Burma will face extortion or other abuse should they have contact
with the Burmese regime in order to verify nationality. They also
fear for their fate in Thailand if this is to be the last
registration of migrants, as RTG officials have reportedly stated.
In short, many echo the sentiments of a May 29 editorial in the
Bangkok Post on the topic that "the short deadline and complicated
system with its old constraints will fail to attract these
underground workers." As one contact put it, perhaps a bit less
eloquently, "same whiskey, different bottle."
Comment
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¶12. (SBU) Should the Thai government's plan go forward as described
to us, we should not expect Burmese migrants to flock in droves to
apply for registration. The intransigence of the Burmese regime is
to blame for what may very well be the most costly, complicated, and
prone-to-abuse aspect of the plan - the verification of Burmese
nationality. Thai officials with whom we spoke appeared genuinely
frustrated when discussing negotiations with the Burmese government
on the issue, nevertheless feeling that the registration process as
envisioned is the best that can be hoped for under the
circumstances. At the same time, aspects of the plan over which the
Thai government has full control, for instance, the inability of
spouses and children of migrants to register, also invite criticism
for limiting benefits to the illegal migrant community in Thailand.
We will seek opportunities, however limited, to urge our contacts
both in government and in civil society to develop registration
procedures in ways to maximize their success, at least to minimize
vulnerabilities of those laborers who choose to participate. End
Comment.
¶13. (U) This cable was coordinated with Embassy Rangoon.