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### Viewing cable 04HANOI1421, ADOPTIONS IN VIETNAM: PREVENTING ABUSES

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04HANOI1421 | 2004-05-19 09:13 | 2011-08-25 00:00 | UNCLASSIFIED | Embassy Hanoi

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 HANOI 001421

    SIPDIS

    DEPARTMENT FOR CA/OCS, CA/OCS/CI, CA/OCS/ACS/EAP,
    CA/OCS/PRI, DEPARTMENT ALSO FOR CA/VO/F/P, EAP/BCLTV, AND
    L/EAP
    BANGKOK FOR DHS/DD
    HO CHI MINH CITY FOR CONS AND DHS OIC

    E.O. 12958: N/A
    TAGS: KOCI CVIS CASC PREL VM
    SUBJECT:  ADOPTIONS IN VIETNAM:  PREVENTING ABUSES

    Ref:  A) Hanoi 891  B) Hanoi 0048  C) 03 Hanoi 3203  D) 03
    Hanoi 1759  E) 03 State 49491  F) 03 Hanoi 0218  G) 03 Hanoi
    0064  H) 02 Hanoi 3027  I) 02 HCM 1136  J) 02 Hanoi 2258  K)
    01 HCM 593  L) 01 HCM 580  M) 00 HCM 1363

    This is a joint ConGen HCMC-Embassy Hanoi cable.

    ¶1.  (U) Summary:  As we wait for the GVN to make written
    revisions to the draft text left with them at the conclusion
    of the first round of adoption negotiations in March, we
    wish to take this opportunity to once again raise our
    concerns about the implementation of any agreement we
    eventually reach, and consider how we can improve adoption
    processing in Vietnam once adoptions resume.  Given the
    implementation regulations associated with the Hague
    Convention on Intercountry Adoptions, Mission recommends
    that the USG press the GVN, alone or in concert with other
    countries with the same concerns, to accede to the Hague as
    soon as possible in lieu of negotiating bilateral agreements
    with every country individually.  Otherwise we are concerned
    that we will return to a system with widespread fraud and
    abusive practices.  See Action Item para 11.

    --------------------------
    PAST EXPERIENCE
    --------------------------

    ¶2.  (U) Prior to the passage and enactment of Decree No.
    68/2002/ND-CP, which halted intercountry adoptions within
    Vietnam until a bilateral agreement was reached with
    individual countries with prospective adoptive parents, U.S.
    parents accounted for over 750 orphan visa cases annually.
    While most of those cases seemed legitimate on the surface,
    discrepancies and irregularities appeared in many cases --
    unanswered questions about the origins of the children and
    the circumstances of their relinquishments; the lack of a
    strong central authority governing the adoption process and
    matching children with families; and lack of documentation
    or even explanations regarding what fees were paid and to
    whom -- clouded each decision.  Add to the mix the high-
    fraud environment in Vietnam, where documents can easily be
    bought and manufactured and official corruption is endemic,
    and consular officers issuing orphan visas are almost never
    100 percent sure about the bona fides of these cases.

    ¶3.  (U) This is not merely speculation or suspicion.
    Reftels K, L, and M list several cases of documented
    illegalities in the process.  Certain adoption facilitators
    are believed to have made millions of dollars in the
    adoption business by promising one child to adoptive parents
    with no intention of delivering that child (or, indeed, in
    one case, the child had already been adopted by another
    family), paying off government officials to doctor
    paperwork, and providing a combination of monetary
    incentives, false promises and scare tactics to pressure
    Vietnamese mothers to relinquish their children.  This
    coercion to give up children who are not truly in need of a
    home and family is real and duplicitous.  While $600 may
    seem like a small amount of money in U.S. terms, the average
    per capita income in Vietnam is roughly $480, and in poorer
    provinces where some children have been presented for
    adoption it is only about $200.  The money offered to the
    birth parent or parents is not an amount for reasonable
    medical expenses, but actually remuneration for buying the
    baby.  It is the rough equivalent of offering the average
    American $47,000 for a child over and above medical
    expenses, which are negligible in rural Vietnam.

    ¶4.  (U) Adoption facilitators will often offer the money,
    with pictures of other children in well-furnished homes, and
    a promise that the relinquishing parents will be able to see
    their children again in the future.  Familial ties in
    Vietnam are quite strong and families in dire economic
    straits will often let their children be raised temporarily
    by other more economically prosperous members of the family,
    or place them in "nutrition centers" where they can visit
    the children regularly until they are back on their feet.
    The "relinquishment" in these cases is never promoted as a
    permanent separation, but rather predicated on the accepted
    belief that it is temporary.  We can never be sure in these
    circumstances whether parents are giving informed consent
    when signing a "relinquishment" document.  (Note:  we have
    seen several cases recently in HCMC's American Citizen
    Services Unit where parents of high school aged children who
    went to the U.S. on cultural exchanges have come in to sign
    and notarize U.S. court documents relinquishing parental
    authority over their children so they can be "adopted" by
    the host family in the U.S. and continue their education
    there free of charge.  When consular officers explain to the
    Vietnamese parents that this breaks the parent-child bond
    and they will no longer have any legal tie or claim to the
    child, they universally withdraw the notarial request.)

    --------------------------------------------- --------------
    CURRENT EXPERIENCE OF THOSE WHO HAVE SIGNED
    --------------------------------------------- --------------

    ¶5.  (U) It is also our contention that the vast amounts of
    money that can be earned in the adoption process are
    actually "creating" orphans for intercountry adoption here
    in Vietnam.    Once the new decree went into effect, only
    France had an existing bilateral Agreement in effect with
    Vietnam and could thus resume intercountry adoptions right
    away.   The French Agreement is unique in that it specifies
    set amounts of money that can be paid at each step - not a
    small amount, but certainly less than U.S. adoptive parents
    said they were paying on average.  French Embassy officials
    report that there are nearly 1500 pending dossiers from
    French couples wanting to adopt for whom no children can be
    found.  The supply simply isn't there.  The informal word is
    that children are being "held" until the Americans come back
    into the game, since they will pay more money.  The fact
    that our participation in intercountry adoptions in this
    country is "creating" orphans is disturbing and confirms our
    worst fears about the source of many children who were
    identified as orphans in past cases.

    ¶6.  (U) In addition, five other countries have also entered
    into bilateral agreements with the GVN (Belgium, Italy,
    Ireland, Sweden and Denmark) but none of them has resumed
    adoption processing due to difficulties with implementation
    of their agreements.  At first it appeared a new central
    authority, the Department on International Adoptions in the
    Ministry of Justice, would make the matches between the
    children and adoptive parents and have authority to license
    adoption providers and facilitators in country.  That
    process has now devolved back to the provincial level, with
    the new Department adding a new level of bureaucracy to the
    process but with seemingly no regulatory or enforcement
    mechanism to make changes binding on the provinces.  Under
    this scenario, which is still unfolding, it is increasingly
    apparent that we will return to status quo prior to the
    decree's implementation date in terms of processing adoption
    cases.  At the provincial level there is essentially no
    effective mechanism to prevent the kind of corrupt practices
    we have outlined.

    -----------------------------------------
    STUDY THE CHINESE MODEL
    -----------------------------------------

    ¶7.  (U) During the negotiations, we raised the issue of
    implementation and gave to the GVN side a non-paper
    outlining our concerns.  Unfortunately, the negotiations
    became bogged down in title and form, and discussion of
    implementation was pushed to the back burner pending
    agreement on an actual document to discuss.  We do find it
    encouraging, however, that Mr. Vu Duc Long, Acting Director
    of the Department of International Adoptions and the lead
    negotiator for the GVN, is organizing a trip to China to
    study their adoption system, a model which we agree should
    be emulated here in Vietnam.

    --------------------------------------------- ---
    THE HAGUE AS A WAY FORWARD
    --------------------------------------------- ---

    ¶8.  (U) Pending final approval of a bilateral document
    between the U.S. and Vietnam, we strongly believe now is the
    time to discuss how we can improve implementation of that
    agreement.  Certain changes to the current adoptions process
    in Vietnam will offer a way to reduce the abuses of the
    past, and the USG should press the GVN, alone or in concert
    with other countries with the same concerns, to accede to
    the Hague Convention on Intercountry Adoptions as soon as
    possible, in lieu of negotiating bilateral agreements with
    every country individually.  It should be apparent to them
    at this point that their plans to implement each agreement
    with completely new and different provisions for every
    country are untenable.  We believe we can garner support
    from other foreign missions in Vietnam to approach the GVN
    with a joint demarche on this subject.

    --------------------------------------------- ------
    OTHER ACTIONS IN LIEU OF HAGUE
    --------------------------------------------- ------

    ¶9.  (U) If that approach is unsuccessful, we should strongly
    urge the GVN to take the following actions immediately:

    - Give the Office of International Adoptions the sole
    responsibility for matching children with prospective
    adoptive parents and responsibility for licensing and
    regulating of all adoption service providers operating
    within country.

    - Publish transparent, consistently applied processing
    regulations, directed by the Central Authority, which do not
    vary from region to region.  Clear processing instructions
    should be provided to all adoptive parents of all countries,
    who will know exactly what they need to do at every step;
    how much the various fees are for the adoption processing;
    which office is responsible for what authorizations;
    requirements for post-adoption monitoring, etc.

    - Provide a specific point of contact for the Central
    Authority for the U.S. government to call when concerns or
    problems arise under the agreement.  That point of contact
    should provide a timely, written response to those
    concerns.

    - The Central Authority should provide information on the
    circumstances under which the Central Authority is prepared
    to revoke an individual adoption and to provide in writing
    notice that the irregularity is in violation of Vietnamese
    adoption law.

    - The Central Authority should develop regulations
    governing licensing or accreditation of adoption agencies
    operating in Vietnam, a mechanism for revoking the license
    or accreditation of agencies that engage in illegal
    practices, and a list of agencies currently authorized to
    process adoptions in Vietnam.  Such regulations should
    apply throughout the country and should apply equally to
    all adoption agencies, regardless of country of origin.

    - The Authority should set and provide a list of fees that
    cover every step in the adoption process in Vietnam and to
    provide transparent, consistent fees that all adoptive
    parents must provide and for which they receive a receipt.
    Fees should not vary from province to province.

    - The Central Authority should provide a list of
    institutions that will be permitted to place children for
    international adoption.

    - There should be a regular forum for information exchange
    about bilateral adoption processing issues and both sides
    should commit to participation.

    ¶10.  (U) These changes are incumbent upon the Government of
    Vietnam to set up for themselves.  But as the second largest
    foreign country recipient of Vietnamese adopted children, it
    should be our obligation to push the GVN to adopt these
    measures to ensure the integrity of the process and protect
    the interests of children who are vulnerable to potential
    exploitation for profit.  This would also be in the best
    interests of the birth and adopting parents.  The process of
    obtaining some form of bilateral agreement on adoptions in
    Vietnam is close to entering its third year.  At this point,
    failure to put into place mechanisms that will provide any
    improvement on the worst abuses of the past could call into
    question our claims over the past two years to be working
    towards an agreement that will protect the interests of all
    the parties.

    --------------------------
    ACTION REQUEST
    --------------------------

    ¶11.  (U) Action Request:  Embassy seeks Department
    authorization to approach other embassies in Vietnam who
    share our concerns on adoptions processing to prepare a
    joint demarche to the Vietnamese Government, urging them to
    sign the Hague Agreement, with the understanding that some
    assistance may be available to help them accede fully to
    that Agreement.  Mission also seeks authorization to open a
    more formal discussion with the Ministry of Justice
    regarding implementation issues before we come to a final
    agreement on the text of a bilateral protocol.
    BURGHARDT

`