Conferences
Office
of the United Nations High Commissioner for Refugees:
Meeting on Refugees and Displaced Persons in South-East
Asia, convened by the Secretary-General of the United
Nations at Geneva, on 20 and 21 July 1979, and subsequent
developments: Report of the Secretary-General
|
General Assembly
A/34/627
7 November 1979
Thirty-fourth session
Agenda item 83
I.
INTRODUCTION
1.
Since 1975, there has been a steady movement of people out of
Indo-China. Nearly a million have left their countries, half of
whom were received by the neighbouring countries of South-East
Asia.
2.
By the end or 1978, the problem had begun to reach alarming
proportions. In the month of April 1979 alone, more than 25,000
“boat-people” had arrived in the various countries of the
region and tens of thousands had crossed the border into Thailand.
During his visit to the area in April and May 1979, the
Secretary-General was able to obtain first-hand information
concerning the situation and to discuss with the heads of
governments directly involved measures that could be undertaken to
alleviate a potentially explosive problem.
3.
In his discussion with the Heads of Government of Malaysia, Viet
Nam, China, Japan, the Philippines, Indonesia, Singapore and
Thailand, the Secretary-General expressed the great concern of the
United Nations about developments in the region and, in
particular, his concern over the humanitarian problem of refugees
in South-East Asia. He also expressed understanding of the problem
faced by the countries of the region in trying to cope with the
large increase in the number of refugees arriving as against the
much lesser number who were departing for countries of
resettlement. During his discussions with the authorities in Viet
Nam, the Secretary-General was informed of the decision to permit
orderly departures, which would take into account cases of family
reunion and other humanitarian considerations, provided entry
visas had been granted by countries of new residence.
4.
On his return from the region, the Secretary-General decided to
designate a senior official to follow developments closely from
the region and to report to him on a regular basis on the
humanitarian problem in all its aspects. On 11 June 1979, he
appointed Ambassador I. Turkman of Turkey as his Special
Representative for Humanitarian Affairs in South-East Asia to
perform this function.
5.
Considering the fact that the situation was rapidly assuming
crisis proportions, and in support of the best efforts of the
United Nations High Commissioner for Refugees, other agencies and
Governments to alleviate suffering and to find lasting solutions,
the Secretary-General decided to send an appeal to the heads of a
number of interested and concerned Governments requesting their
help and co-operation in urgently coping with this problem. In his
communication of 24 May 1979, he emphasized the need for strict
adherence to the internationally accepted humanitarian principle
of asylum. Without a generous policy of at least temporary asylum,
he pointed out, there can be no basis for humanitarian action.
While appreciating the heavy burden of the countries of South-East
Asia, he appealed to them to grant asylum while the United Nations
High Commissioner for Refugees pursued his efforts to find places
for their High Commissioner for Refugees pursued his efforts to
find places for their resettlement. He called on them to increase
their financial contributions to the Office of the High
Commissioner and to join in the search for lasting solutions by
making an increased number of resettlement places available to
enable those waiting in the camps to start a new and productive
life.
6.
Even as the Governments were responding to the
Secretary-General’s appeal by increasing their contributions to
UNHCR and by offering limited possibilities of resettlement for
the refugees, the situation continued to deteriorate. In a letter
dated 31 May 1979, the Prime Minister of the United Kingdom of
Great Britain and Northern Ireland proposed to the
Secretary-General that an international conference be convened to
deal with the problem. At the Tokyo Economic Summit Conference of
industrialized countries, a special statement on Indo-Chinese
refugees was issued on 28 June 1979. This statement confirmed the
intention of the Governments represented to increase significantly
their contributions to the relief and resettlement of Indo-Chinese
refugees by making more funds available and by admitting more
people, while taking into account existing social and economic
circumstances of each of their countries. At the same time, the
heads of State and Governments requested the Secretary-General to
convene a conference as soon as possible with a view to attaining
concrete and positive results.
7.
The twelfth Ministerial Meeting of the Association of South-East
Asian Nations held in Bali, Indonesia, on 30 June 1970, took note
of the statement issued at Tokyo and welcomed the decision of
those countries to increase significantly their intake of
Indo-Chinese refugees as well as their financial contribution.
They also stressed the important role of processing centres as a
step in the implementation of the resettlement programmes. In this
regard, they welcomed the offer of sites by the Governments of
Indonesia and the Philippines for the establishment of processing
centres. The Foreign Ministers supported the proposal for the
convening of an international conference on Indo-Chinese refugees
under the auspices of the United Nations Secretary-General. The
Secretary-General also received suggestions from a number of the
Governments supporting the proposal of the Prime Minister of the
United Kingdom of Great Britain and Northern Ireland and calling
upon the Secretary-General to take up this matter and to hold a
conference on Indo-Chinese refugees under the auspices of the
United Nations.
8.
Intensive consultations were conducted by the Secretary-General
and, at his request, by UNHCR with a large number of interested
Governments to determine the most effective framework within which
such a meeting could usefully be held with a view to achieving
concrete results. Following these consultations, the
Secretary-General informed Governments of his intention to convene
a meeting at Geneva, on 20 July 1979, of Governments in a position
to make a contribution to a solution of the problem. He emphasized
that the meeting should concentrate on the humanitarian aspects of
the problem and should produce additional support to enable UNHCR
to enlarge its efforts to meet the problem. The Secretary-General
proposed that Governments be represented at the ministerial level.
II.
MEETING ON REFUGEES AND DISPLACED PERSONS IN SOUTH-EAST ASIA
9.
The Meeting took place on 20 and 21 July 1979. Sixty-five
Governments attended, several other Governments attended as
observers and interested intergovernmental organizations and
groupings of non-governmental organizations were also represented.
10.
In his opening statement, the Secretary-General emphasized that
the purpose of the Meeting should be to seek concrete ways of
alleviating a crisis, the results of which would literally involve
the life or death of thousands upon thousands of human beings. He
said that the spectre of men, women and children cast on the
waters to drift and drown and of others on land abandoned to
famine and despair had been a deeply moving experience. He
recalled that, during the previous four years, over a million
persons had left their countries in Indo-China. Half of this total
sought asylum in the neighbouring countries and, despite the best
efforts of all concerned, only 200,000 had been processed for
resettlement outside the area. Over 350,000 refugees remained in
the ASEAN countries and Hong Kong and there had been a steady
increase in the number of new refugees arriving in those
countries. It was, therefore, essential that the rest of the world
should act in a decisive way to ease this tremendous burden
imposed upon those countries. Such action, he said, would enable
those States to adhere to the principle of first asylum and to
contribute within the limit of their possibilities to an over-all
action that would lead to desirable solutions for the refugees.
11.
The Secretary-General stressed that in dealing with this issue,
everyone should be aware of the fact that the refugee problem had
political roots. He felt, however, that finding adequate solutions
to the humanitarian aspects of the question would surely also help
contribute to the creation of an atmosphere in which other aspects
of the problem were more likely to be resolved. In the meanwhile,
the Secretary-General said that he hoped that, as a result of the
Meeting, there would not only be a significant increase in
commitments for resettlement opportunities and in contributions of
funds, but that specific suggestions would also be made as to how
the programme of action could most quickly and successfully be
translated into reality.
12.
The Secretary-General emphasized the need for everyone concerned
to realize the interrelationship of obligations and
responsibilities on the part of the countries of origin, those of
first asylum and those of final settlement. The countries of
origin had an obligation to respect the right of emigration and
family reunification, while avoiding any action leading to the
departure of their people under conditions which put their lives
in jeopardy. These countries also had the responsibility of
co-operating fully with the United Nations High Commissioner for
Refugees and the other countries concerned to ensure an orderly
outflow with the prospect of a safe journey. Since the countries
of first asylum were developing countries confronted with serious
economic and social constraints, it was essential that countries
outside the area assumed the principal responsibility for
resettlement. The Secretary-General emphasized that, while the
countries of initial arrival were expected to respect fully the
principle of first asylum for refugees coming there by land and
sea, they in turn expected an assurance that they would not be
burdened with the residual problems and that no refugees would
stay in their countries for more than a specified period. The
countries of final settlement needed to set up local facilities in
the region to expedite this process and were faced with
significant financial problems.
13.
The Meeting had before it a paper prepared by the United Nations
High Commissioner for Refugees which highlighted the various
aspects of the problem (see annex 1 below). The proceedings were
marked by an extraordinary spirit of co-operation, and a number of
countries put forward concrete and imaginative proposals. Generous
offers of places of resettlement, of processing centres and of
funds were made.
14.
The discussions at the Meeting clarified a number of issues. A
consensus also emerged on the framework of the plan of action.
15.
In the first place, it was agreed that urgent efforts should be
undertaken to reduce the backlog by resettlement on a larger and
faster scale than hitherto. It was clearly understood that this
movement should cover land cases as well as boat cases. Secondly,
the Memorandum of Understanding concluded between the Socialist
Republic of Viet Nam and the United Nations High Commissioner for
Refugees for the orderly departure from Viet New of individuals to
reunite with their families, as well as other cases involving
humanitarian considerations, should be carried out, but not at the
expense of those in the camps in South-East Asia. Thirdly, a major
breakthrough was achieved on the establishment of processing
centres. The availability of these facilities would make a direct
and important contribution to reducing the hardships pertaining to
the exodus of refugees and would provide a major reassurance to
countries of first asylum. Work has already started on Galang
Island, offered by Indonesia. The Governments of the Philippines
has also provided a new site for 50,000 refugees, the costs for
which will be met by the United Nations High Commissioner for
Refugees within the limits of available funds. Special attention
was paid to the question of rescue at sea for the so-called
“boat-people”. The High Commissioner for Refugees has already
taken steps towards mobilizing international co-operative efforts
to achieve this by ensuring that ships in the area are alerted to
the vital need to rescue refugees in distress. Finally, the
general principles of asylum and non-refoulement were endorsed.
16.
The Secretary-General had stressed that much of the success of any
plan of action would depend on a substantial reduction of the
disorderly exodus of thousands of persons from their homelands.
During the Meeting there was considerable discussion of the
possibility of a moratorium on “illegal departures”. Following
extensive consultations, the Government of Viet Nam gave
assurances that, for a reasonable period of time, it would make
every effort to stop illegal departures and to co-operate with
UNHCR in expanding the present seven-point programme designed to
bring departures within orderly and safe channels.
17.
The Secretary-General stated also that he would be following
developments in the area personally, and through his special
Representative for Humanitarian Affairs in South-East Asia. The
role of the Special Representative would be, in particular, to
maintain close contacts with the Governments concerned.
III. INITIATIVES TAKEN SINCE THE MEETING
18.
Following the Meeting at Geneva, UNHCR has undertaken and/or
promoted a series of initiatives aimed at implementing the plan of
action which was presented to the Meeting. [1] Basically, these
activities embraced the following tangible results of or
suggestions made during the meeting:
(a)
An increase in the number of
resettlement places available for refugees, which had risen from
125,000 at the end of May to 260,000 by the end of the meeting;
(b)
Announcements of pledges totaling some $US 160 million in cash and
in kind;
(c)
A proposal to establish a fund for achieving durable solutions,
for which a sum of $25 million was announced in principle;
(d)
An offer concerning a refugee processing centre to accommodate
50,000 persons in addition to two earlier offers;
(e)
Expansion of the programme of orderly departures from Viet Nam;
(f)
Practical proposals regarding the problem of rescue at sea.
19.
In addition, the High Commissioner announced at the end of the
Meeting that a “Standing Co-ordinating Mechanism” was to be
established, grouping together organizations in the United Nations
system, the Inter-Governmental Committee for European Migration
(ICEM), the International Committee of the Red Cross (ICRC), the
League of Red Cross Societies (LRCS) and other non-governmental
agencies.
20.
Against this background, working meetings were convened and
organized by the High Commissioner, and three teams of senior
UNHCR officials visited South-East Asia in July and August. A
meeting was held on 23 July 1979 at UNHCR headquarters at Geneva,
under the chairmanship of the Deputy High Commissioner, which was
attended by representatives of 23 countries, who had announced new
or continuing programmes, as well as by representatives from ICEM
and voluntary agencies. The purpose of the meeting was to take
full advantage of available resettlement offers, through concerted
action by ball concerned, in order to move a maximum number of
persons out of South-East Asia within the shortest possible time.
In its co-ordinating role, UNHCR would:
(a)
Seek to develop a well-balanced operation, taking into account
both land and boat cases;
(b)
Aim at a fair distribution of quotas between countries of first
asylum;
(c)
Establish a number of priorities (those whose lives
are endangered, family reunion cases and “sensitive groups”,
such as unaccompanied minors, the handicapped and those who have
been longest in the camps).
21.
Following this meeting, a UNHCR mission, composed of senior
officials, went to South-East Asia and, during the period from 29
July to 17 August, visited Hong Kong, Indonesia, Macau, Malaysia,
Singapore and Thailand. The main purpose of the mission was to
help field offices organize resettlement on an increased scale and
to discuss major aspects of the refugee problem in each country.
Talks were held, at the highest levels, with authorities and
problem in each country. Talks were held, of the United Nations
system, with voluntary agencies and with ICEM officials in an
endeavour to ensure the most efficient action and the best
possible co-ordination at the field level. Discussions focused on
the principle of asylum, resettlement and matters such as living
conditions in camps while awaiting resettlement, registration of
refugees, transit centres for refugees whose departure is imminent
and refugees processing centres for those accepted by resettlement
countries, but having a law priority for actual movement.
22.
Since that time, the High Commissioner has continued to monitor
the situation closely. The increased number of resettlement
opportunities available in July 1979 are being utilized through an
accelerated rate of resettlement (18,161 refugees from the area
were resettled in July, 20,536 in August and 25,495 in September).
To that effect, registration of refugees and preparation of
individual resettlement dossiers has been intensified. Active
co-operation with an increasing number of selection missions,
which have visited the regions from various countries, has been
taking place in each country of temporary asylum. While the
average monthly rate of departures during the first half of 1979
was 8,897, it increased to 21,400 during the third quarter of the
year. Efforts continue to obtain additional offers of resettlement
(the High Commissioner has been notified of some 13,500 since the
July Meeting), as well as to maintain the impetus in processing
and in the rate of departures. New arrivals in the area, both land
and boat cases, amounted to 25,750 in July, 9,846 in August and
14,282 by the end of September. A total of 206,678 had arrived
during the first half of 1979, that is, a monthly average of
34,446. As at 30 September, the total number of Indo-Chinese
refugees and displaced persons in South-East Asia was 342,998,
primarily in ASEAN countries and Hong Kong, and consisted of
181,184 “boat people” and 161,814 who arrived in Thailand by
land.
23.
New resettlement offers from the international community have
increased the total to 273,500 for the one-year period extending
from July 1979 to June 1980. UNHCR has endeavoured to reach a
target of approximately 25,000 departures per month (attained in
September 1979) in an effort to utilize over a 12-month period the
total reserve of 273,500 resettlement offers.
A. Refugee processing centres
24.
The idea of a refugee processing centre first came up during the
consultative Meeting with Interested Governments on Refugees and
Displaced Persons in South-East Asia, held at Geneva on 11 and 12
December 1978. Among the various closely related matters discussed
and considered urgent was a proposal whereby special centres would
be established where refugees and displaced persons could be
processed for resettlement in an orderly way within a specific
time scale, and against guarantees that there would be no residual
problem. It was felt that this proposal should be further
elaborated and studied by Governments. The ASEAN Foreign Minister,
in their statement at Bangkok on 21 February 1979, had declared
their readiness, subject to a number of principles and conditions,
to make a positive and concrete contribution by providing a place
or places in the ASEAN region to serve as sites for refugee
processing centre. At a conference held at Jakarta on 15 and 16
May 1979, the Government of Indonesia offered to accept up to
10,000 refugees at any one time. The Government of the Philippines
had also announced at the meeting held on 20 and 21 July that a
site offered by his Government with a capacity of 7,000 persons
would be increased to a capacity of 10,000 persons and that, under
United Nations funding and on the principle of on residuals”, an
additional processing centre would be offered which would hold a
maximum of 50,000 refugees.
B. UNHCR follow-up missions
25.
To follow up on the various offers, UNHCR missions took place at a
senior level, both before and immediately after the July Meeting.
During these missions, the modalities of the establishment of
refugee processing centres were discussed with the two Governments
concerned. In the feasibility studies, UNHCR has been assisted by
the Governments of Indonesia and the Philippines and by
international teams of experts and consultants, mainly from Japan
and Switzerland. Furthermore, UNHCR has signed an agreement with
the Government of Switzerland. Which provides for technical
co-operation in the establishment of the centre in Indonesia; a
similar agreement is expected to be signed shortly with respect to
the Philippines. The Government of Switzerland has provided UNHCR,
in Indonesia, with a team of experts, who serve as technical
advisers in the planning and construction of the centre for 10,000
persons on Galang Island near Singapore. Similar assistance will
be provided to the Government of the Philippines towards the
establishment of the centre for 50,000 persons in Bataan Province
on Luzon. Agreements with the Governments of Indonesia have been
signed to ensure the speedy establishment of the centre and
similar agreements are expected to be signed in the immediate
future with the Government of the Philippines. These involve the
establishment of new or the improvement of existing infrastructure
(for example, road network, water and electricity, drainage
system, port facilities, radio communications), construction works
(for example housing, health, education and recreational centres,
administrative quarters), land clearance and provision of
furniture and equipment. Agreements to govern the running of the
Centres, including the employment of necessary staff, and the care
and maintenance of refugees admitted, are in preparation.
26.
Apart from international experts already mentioned, ICRC, LRCS and
its member societies, organizations of the United Nations system
(notably the World Food Programme) and voluntary agencies will all
have their part to play. It is hoped that one or possibly two
centres will open before the end of the year to at least partial
capacity.
C.
Orderly departures from Viet Nam
27.
Following the announcement on 12 January by the Government of Viet
Nam that it was prepared to grant exit visas to all Vietnamese,
with the exception of those in certain categories who, by written
request, expressed their wish to leave, and after discussions held
at Hanoi between the Vietnamese Government and UNHCR, a Memorandum
of Understanding was concluded on 30 May 1979 between the
Government and that Office regarding a seven-point programme for
the orderly departure from Viet Nam of “family reunion and other
humanitarian cases”. This programme is being carried out on the
basis of a procedure involving the exchange of lists whereby
Governments of countries prepared to admit persons from Viet Nam
for resettlement (“receiving countries") compile lists of
persons for whom entry visas are available and the Vietnamese
Government prepares lists of persons duly registered as wishing to
leave under the programme. These lists are exchanged under the
auspices of UNHCR and those persons whose names appear on both
lists qualify for departure. Cases appearing on only one list
(that is only on a receiving country list or only on the list of
the Government of Viet Nam) will be subject to discussion between
UNHCR and the Vietnamese Government or the Government of the
receiving country, as appropriate.
28.
Practical measures within the framework of the programme commenced
both in Viet Nam and at UNHCR headquarters immediately following
the conclusion of the Memorandum of Understanding. In Viet Nam,
the Government and UNHCR have appointed personnel pursuant to the
Memorandum of Understanding who are co-operating closely in
implementing the programme, both in Hanoi and in Ho chi Minh City,
and at UNHCR headquarters a special unit has been set up to serve
as liaison, through the UNHCR field offices concerned, with the
competent authorities in the receiving countries, especially in
relation to the provision and transmission to Hanoi of lists of
persons for whom entry visas are available.
29.
Flights under the programme commenced at the end of June and, by
the end of September, there had been eight flights from Viet Nam
to Bangkok, involving the movement of 879 persons to various
receiving countries in the Americas, Europe and Oceania.
30.
Efforts directed towards establishing the regularity of movement
and accelerating its rte are being actively pursued with a number
of Governments of receiving countries as well as with the
Government of Viet Nam. Particular attention is being given to the
need for the careful preparation of lists and the streamlining of
processing procedures.
D.
Rescue at sea
31.
The question of the rescue of refugees and displaced persons in
distress in the South China Sea has been of concern to UNHCR since
1975. The Executive Committee of the High Commissioner’s
programme, at its twenty-eight and twenty-ninth sessions, made
several recommendations regarding this problem, which was further
considered during the Consultative Meeting with Interested
Governments on Refugees and Displaced Persons in South-East Asia,
held at Geneva on 11 and 12 December 1978.
32.
Due attention was given to the problem of rescue at sea during the
meeting at Geneva at which a number of representatives made
statements relating to search and rescue operations. In his
closing statement, the High Commissioner proposed that a meeting
of experts be called to discuss practical steps that could be
taken. The proposal was endorsed by the Secretary-General and
supported by a number of Governments involved in rescue operation
in the area.
33.
Thus, a Meeting of Experts on Rescue Operations for Refugees and
displaced Persons in Distress in the South China Sea took place at
Geneva on 14 August 1979, under the chairmanship of the Deputy
High Commissioner for Refugees. It was attended by representatives
of 10 Governments and by experts from the Inter-Governmental
Maritime Consultative Organizations (IMCO)[2] and the Word
Meteorological Organizations (WMO). During the meeting, there was
general recognition and reiteration of the fundamental importance
of the issue from the humanitarian standpoint, and of the fact
that rescue arrangements should be rendered more effective.
34.
It was agreed that consultations should take place between
Governments and the shipping community, that appropriate
instructions should be issued to ships operating in the South
China Sea that, when called upon to do so, they should assist in
search and rescue operations in the area. Attention was given to
the need for special resettlement arrangements in cases where the
flag State is not prepared to provide resettlement guarantees, and
consideration was given to avoiding a possible negative impact on
the over-all resettlement programme in the area which could result
from the inclusion of rescued refugees and displaced persons in
existing resettlement quotas. Finally, it was agreed that UNHCR
would continue consultations on the problem with Governments, IMCO
and other interested organizations.
35.
With regard to practical implementation, UNHCR has been following
closely, in liaison with Governments, embassies and agencies
concerned, the question of landing and resettlement arrangements
for those rescued. This includes such points as disembarkation in
the first port of call, resettlement guarantees by flag States,
resettlement arrangements as required and provision of care and
maintenance pending departure.
36.
From 1 January to 30 September 1979, UNHCR had been involved in
arrangements for 6,973 persons rescued by 96 ships belonging to 21
countries. Disembarkation took place mainly in Singapore and
Japan, with a smaller number in Hong Kong.
E.
Liaison group for Indo-Chinese refugees and displaced persons
37.
In his closing statement, the High Commissioner indicated that
“a standing co-ordinating mechanism” would group together
representatives of the United Nations system, ICEM, ICRC, LRCS and
others in the non-governmental sector. A first meeting of the
“liaison group” created to this effect took place on 29
August, under the chairmanship of the Deputy High Commissioner,
after the return of UNHCR missions sent to South-East Asia.
Representatives attended from UNICEF, United Nations Development
Programme (UNDP), United Nations Volunteers programme World Food
Programme (WFP), the International Labour Office (ILO), Food and
Agriculture Organization of the United Nations (FAO), UNESCO,
World Health Organization (WHO), Inter-Governmental Maritime
Consultative Organization (IMCO), Intergovernmental Committee for
European Migration (ICEM), International Committee of the Red
Cross (ICRC), the League of Red Cross Societies (LRCS), the
International Council of Voluntary Agencies and the American
Council of Voluntary Agencies.
38.
The principal tasks set for the liaison group were as follows:
(a)
To review the situation of Indo-Chinese refugees and displaced
persons and their specific material and resettlement needs;
(b)
To determine what steps are being taken and can be taken by each
organization represented in the group to meet these needs most
effectively, avoiding duplication of effort;
(c)
To review in the same light offers of assistance received by
members of the group from Governments or from organizations not
represented in the group.
39.
Discussions took place along the above-mentioned lines and the
liaison group meeting thus established a broad framework for
co-ordination of assistance and services, as well as for the
exchange of information. Further meetings of the group as a whole,
or smaller groups, according to the subject matter, are foreseen.
UNHCR offices in the field have been instructed to convene similar
meetings.
F.
Strengthening of staff
40.
To act on all the measures described in the present report, UNHCR
has had to send additional staff to the region. Thus, as at 30
September, 52 staff members had joined the UNHCR teams in Hong
Kong, Indonesia, Malaysia, the Philippines, Singapore, Thailand
and Viet Nam. These included Professional officers, mainly
concerned with the organization of refugee movements, and General
Service staff to assist in related tasks. Concurrently, the staff
at UNHCR headquarters is also being strengthened.
41.
Experts, technicians and Volunteers, working under the aegis of
UNHCR, have been sent to the ASEAN countries. The services of
these persons have been placed at the disposal of UNHCR by
Governments, the United Nations Volunteers programme and by
voluntary agencies. The role of such personnel is mainly connected
with the improvement of life in refugee settlements and assistance
in the establishment of the refugee processing centres mentioned
above. Services have thus been made available in a wide number of
fields, such as education, vocational training, medicine,
sanitation, nutrition, engineering and social welfare.
G.
Financial situation
42.
The situation at the end of September 1979 of amounts paid or
firmly pledged in cash and in kind towards the UNHCR in South-East
Asia for refugees and displaced persons from Indo-China is
included below (see annex II below). It shows a total of $US
124,856,737 for the general programmes and $US 30,578,757 for the
refugee processing centres, together $US 155,435,494.
H.
Concluding remarks
43.
Since the end of 1978, the problem of Indo-Chinese refugees has
reached staggering dimensions. In June, the exodus attained its
peak with 70,000 people arriving in countries of temporary asylum
in South-East Asia. The plight of the refugees was compounded by
the suffering and loss of life among the boat people in the South
China Sea. The influx created serious political, economic and
social problems in South-East Asian countries, which in turn
endangered the continued adherence to the principle of first
asylum. Offers of resettlement places remained inadequate,
resulting in a constant growth of the refugee population in
already crowded camps.
44.
The Meeting held at Geneva on 20 and 21 July, concentrating on the
humanitarian aspects of the problem, tried to devise a response
mainly on the basis of two complementary approaches: the
channelling of the outflow of refugees from Viet Nam through
agreed procedures of orderly departures at a level which could
stop or at least reduce to manageable proportions the influx into
first asylum countries, and a substantial increase in the
availability of resettlement places enabling a significant and
progressive reduction of the backlog in refugee camps in
South-East Asia.
45.
These two steps were rapidly put into
effect following the Meeting. As a result, during the months of
August and September, the departures from countries of temporary
asylum exceeded the arrivals by some 10,000, and a proportional
net decline was registered in the population of refugee camps. The
UNHCR is trying to maintain the level reached in September of
25,000 departures per month in an effort to utilize over a
12-month period the total reserve of 273,500 resettlement offers
for the one-year period extending from July 1979 to June 1980. It
is clear, however, that, even with such a rate of resettlement,
and assuming a stabilization and hopefully a decrease in the
number of arrivals, the elimination of the backlog wold take more
than two years. The continuation and further development of
present policies aiming at channelling all departures from Viet
Nam directly to receiving countries, the maintenance of a very
high level of resettlement offers and the availability of
processing centres, which would improve the living conditions of
the refugees and alleviate the burden of first asylum countries,
are therefore of vital importance.
46.
Recently, substantial progress was achieved regarding orderly
departures. The working procedures were refined and the necessary
administrative and organizational measures worked out. Lists are
now being exchanged of persons considered eligible to depart from
Viet Nam directly to resettlement places. Some countries have
agreed to broaden the scope of criteria for eligibility beyond
family reunion cases. It is hoped that other receiving countries
will act similarly. Both UNHCR and the Government of Viet Nam are
expecting 5,000 or 6,000 departures a month once the arrangements
have become fully operational. Such a rate of departure should
significantly reduce arrivals in first asylum countries.
47.
In recent weeks, a new and far-reaching development has taken
place. Some 200,000 Kampucheans sought asylum in Thailand by the
end of October and another 130,000 are in the border area, many of
whom are expected to cross into Thailand in the near future.
48.
On 19 October 1979, the Prime Minister of Thailand announced that
all the Kampuchean refugees wold be granted temporary asylum in
Thailand, that there would be no refoulement and that the refugees
would be housed initially at holding centres until the setting up
of a national refugee centre. The Secretary-General and the United
Nations High Commissioner for Refugees warmly welcomed this
constructive approach, and several Governments, the United Nations
system, ICRC and the voluntary agencies extended, on an urgent
basis, support to the action of the Thai Government in favour of
the refugees. In response to these developments, the High
Commissioner sent a special mission to Thailand on 27 October to
assess the situation and to discuss with the Thai Government plans
for immediate expanded assistance to meet the needs created by the
influx. In order to assist the Government of Thailand in the
establishment and operation of holding centres, UNHCR has made
available to the Government and voluntary organizations an initial
amount of over 2 million dollars.
49.
The additional requirements arising from the massive flow of
refugees from Kampuchea have been identified within the programme
of relief assistance to the Kampuchean people and supplementary
financial commitments have been obtained. The over-all programme
proposed by the Government for eight months to be funded by UNHCR,
totals $59,714,000. Meanwhile UNHCR is sending additional staff to
Thailand, including a medical co-ordinator.
50.
The new influx from Kampuchea has greatly increased the burden
carried by Thailand, which is now sheltering close to 350,000
refugees. This is equivalent to two thirds of all the Indo-Chinese
refugees in first asylum countries. Some of the refugees,
specially among Laotians, have been living in Thailand longer than
others. A new effort to increase resettlement places for refugees
in Thailand needs the urgent support of Governments.
51.
The Geneva Meeting, held on 20 and 21 July, has had a definite
impact on the course of events in South-East Asia. Its conclusions
reflected a consensus on the need to mobilize all efforts to
alleviate human suffering. A combination of policy adjustments and
intensified international action has created conditions under
which a certain degree of optimism might be permissible. However,
the new influx from Kampuchea has reminded all concerned of the
fragility of the situation, so long as the root causes have not
been resolved. The problem can be contained and gradually eased
only if countries of origin, of first asylum and of final
resettlement continue to adhere to the conclusions of the Geneva
Meeting.
Emergency humanitarian relief to the
people of Kampuchea and the Pledging conference of 5 November 1979
52.
Relief assistance to Kampuchea is, to an extent, interwoven with
the refugee problem. Indeed, the misery and deprivations
afflicting the people of Kampuchea is an important cause of the
recent massive influx of refugees into Thailand. Help is being
provided under the emergency relief programme to these refugees.
53.
The dimensions of the tragedy unfolding in Kampuchea are well
known. The population is in extreme need of relief assistance.
Most of the children are severely malnourished and are suffering
from various diseases, which take a heavy toll on those weakened
by hunger. The shortages of doctors, hospitals and drugs are
acute. It is estimated that only 10 to 20 per cent of land
normally under cultivation has been planted for the country's
major harvest period at the end of the year, and rice is in such
short supply that little, if any, will be available for the
forthcoming planting season.
54.
It is to prevent the danger of
extinction of a whole people that UNICEF, ICRC and WFP have
established a joint emergency relief operation. Meanwhile, FAO,
through a substantial programme, will be engaged in assisting
agriculture and fisheries in Kampuchea.
55.
Under the emergency relief programme, estimated food needs over
the next six months are some 165,000 tons (mainly rice and pulses,
but also oil, sugar, fish, dried skim milk and enriched blended
food). The programme will amount to approximately $250 million
over the next 12 months.
56.
Since the end of July, the UNICEF-ICRC airlift has delivered some
300 tons of food, medicines, various materials and vehicles. The
rate of delivery of these goods is now expanding rapidly. A first
shipment of 5,000 tons of rice has already reached Kompong Som
harbour and other shipments are following. In this connexion, the
Government of Viet Nam has indicated that the Mekong River could
be used for the transportation of food and supplies intended for
relief assistance.
57.
To obtain commitments for the emergency relief programme and to
underscore the international concern felt over the plight of the
people of Kampuchea, the Secretary-General convened a Pledging
Conference at United Nations Headquarters on 5 November 1979.
Seventy-six countries participated in the Conference and several
were represented at the ministerial level.
58.
A total of $210 million in cash and in kind was pledged at the
Conference both for the programme of emergency relief to the
people of Kampuchea and for the UNHCR requirements to cover the
needs of Kampuchean refugees in Thailand.
59.
Like the Geneva Meeting on Refugees and Displaced Persons in
South-East Asia, the Pledging Conference provided a highly
gratifying response to human suffering and distress. The financial
resources and the moral commitment for an urgent and adequate
relief assistance to Kampuchea have thus been secured. However,
the logistical problems continue to be extensive and their
solution require practical arrangements and effective
co-ordination between the representatives of the United Nations
system, ICRC and the competent national authorities. The
Secretary-General has received assurances which give reason to
expect that the necessary co-operation will be afforded,
permitting the expanded programme to be implemented successfully.
He will continue to follow the situation very closely and report
to responsible United Nations organs as necessary.
ANNEXES
ANNEX I Background note dated 9 July 1979
prepared by the United Nations High Commissioner for Refugees for
the Meeting on Refugees and Displaced Persons in South-East Asia
I.
INTRODUCTION
1.
A grave crisis exists in South-East Asia. This paper relates to
the hundreds of thousands of refugees and displaced persons whose
fundamental right to life and security is at risk. Expanded,
concerted and comprehensive action is urgently needed of the
international community.
2.
The human tragedy of the refugees and displaced persons is
inseparable from the political and economic developments relating
to Indo-China. The immediate crisis results from the dimensions of
the exodus, the present denials of asylum and the imbalance
between the large numbers arriving and the rate at which durable
solutions are being found for them.
3.
Since 1975, over a million persons are known to have left their
countries from the three States of the Indo-China peninsula. Over
550,000 [3] of them have sought asylum in South-East Asia, some
200,000 of whom have already been resettled away from the area.
Over 350,000 remain in countries of the Association of South-East
Asian Nations (ASEAN) group and in Hong Kong. Between 1 January
and 30 June 1979, there was a net increase of over 155,000 persons
in the camps in South-East Asia, despite the departure of some
54,000 over the same period.
4.
In December 1978, the High Commissioner convened a Consultative
Meeting with Interested Governments on Refugees and Displaced
Persons in South-East Asia. The summing up by the Chair of the
outcome of the meeting will be found in appendix I below
5.
Despite the most strenuous efforts over the past months that have
witnessed a doubling in resettlement opportunities between October
1978 and May 1979 (from 53,500 to 125,000 over a 12-month span),
the problem has clearly run ahead of the solutions.
6.
This note briefly describes the present situation in the region,
analyses some aspects of it and suggests a plan of action, for
consideration by Governments at the meeting convened by the
Secretary-General of the United Nations on 20 and 21 July 1979.
II.
PRESENT SITUATION
A.
Land cases
Thailand
7.
Since 1975, over 245,500 persons arriving by land from Kampuchea,
Laos and Viet Nam have been given temporary asylum in Thailand. At
30 June 1979, 81,500 of these had been resettled, and 16,500
Kampucheans, 146,000 Lao and 1,500 Vietnamese remained in
Thailand. These persons are supported by UNHCR, which has spent
$US 33 million for this purpose over the last four years. In
addition, the World Food Program (WFP) has provided food aid worth
over $US 3 million.
8.
A further 80,000 Kampucheans entered Thailand in the first months
of 1979. Some 40,000 of them were returned while the international
community was engaged in seeking solutions. Some of those returned
had already been accepted for resettlement. Offers of material
assistance pending solutions were to no avail. Land cases in
Thailand, and particularly some of the recently arrived
Kampucheans, may face the prospect of refoulement.
9.
Conditions in the centres supported by UNHCR vary according to
local circumstances. The continuing increase in numbers has been
detrimental to all aspects of the running of the centres,
including the promotion of self-sufficiency projects and education
programmes.
10.
Resettlement abroad has been the only durable solution to date.
Several initiatives have taken place to promote voluntary
repatriation to Laos. These continue, in consultation with the
Governments concerned, but have yet to yield significant results.
No local settlement has so far taken place.
Viet Nam
11.
By mid-1978, 150,000 refugees and displaced persons had arrived in
Viet Nam from Kampuchea. Steps were taken to provide emergency
relief, including WFP supplies, to these persons. As a result of
events in Kampuchea, the majority have been repatriated, while a
limited number of others continue to be resettled abroad. Some
30,000 remain in Viet Nam. Assistance towards local integration is
being given.
China
12.
By June 1979, some 235,000 refugees and displaced persons had
arrived from Viet Nam. China has indicated that UNHCR aid would be
welcome to supplement the considerable efforts already undertaken
and has also stated that UNHCR could make arrangements to help the
resettlement of those who so wished. Applications from some 19,000
persons had been received by the Chinese authorities.
B.
Boat cases
13.
At 30 June 1979, the principal locations of the some 195,000
pending boat cases were Hong Kong (59,000), Indonesia (43,000),
Japan (550), Macau (2,800), Malaysia (75,000), the Philippines
(5,000), Singapore (450) and Thailand (9,400).
14.
From the total of 277,000 arrivals by sea since 1975, by 30 June
1979, 82,000 persons had been resettled, including 7,550 from Hong
Kong, 3,650 from Indonesia, 350 from Macau, 45,400 from Malaysia,
4,600 from the Philippines, 2,500 from Singapore and 12,950 from
Thailand.
15.
Over the last months there has been a marked increase in the rate
of arrivals. This has particularly affected Malaysia, Hong Kong
and, recently, Indonesia. A total of 26,600 boat people arrived in
the area in April 1979, 51,150 in May 1979 and 56,950 in June
1979. These figures would, of course, be higher if asylum had been
granted to all who sought it. Faced with the increase, however,
certain of the countries most directly affected have refused
permission to land and have expelled many thousands of boat people
to the high seas.
16.
Given the apprehension concerning future arrivals and despite the
availability of funds from UNHCR, certain Governments have been
reluctant to allow the expansion of the centres for boat cases, a
measure which is necessary to ensure adequate conditions for those
allowed to land. For instance, one small island now holds some
40,000 boat people in grossly inhospitable conditions.
Over-crowded ships have been held off-shore for many months
despite pleas to permit disembarkation. Logistical problems have
become acute and the risk of epidemics grave. Notwithstanding
every effort, food distribution arrangements, water supply and
basic sanitation conditions have often been most unsatisfactory.
With considerable help from voluntary organizations, the
potentially critical consequences of inadequate facilities have
been avoided, but the risks remain acute.
17.
UNHCR assistance for the support of boat cases as at 30 June 1979,
totalled some $US 43 million of which $US 10.5 million has been
provided in Hong Kong, $US 1.1 million in Macau, $US 3.1 million
in Indonesia, $US 20.2 million in Malaysia, $US 2 million in the
Philippines, $US 1 million in Singapore and $US 1.5 million in
Thailand.
18.
Apart from very limited local settlement within the region, the
only solution possible to date for boat cases has been
resettlement outside the region.
Rescue at sea
19.
Many thousands of boat cases have been rescued on the high seas by
passing vessels. The craft used by the boat cases are often
overloaded and unseaworthy. Boat cases have also reported that
passing vessels have ignored distress signals. Regrettably,
therefore, persons have been lost at sea not only when rescue was
not at hand, but also as a result of disregard of distress
signals.
20.
The rendering of assistance to persons at sea whose lives are in
danger has long been recognized as a legal obligation. In December
1978, the High Commissioner and the Secretary-General of the
Inter-Governmental Maritime Consultative Organization (IMCO) made
renewed appeals to Governments and, through the International
Chamber of Shipping, to shipowners and masters for the observance
of the obligations incumbent upon all ships' masters towards
vessels in distress. The rescue at sea of boat cases has, however,
posed special difficulties.
21.
From the beginning, certain Governments of the region have been
unwilling to allow disembarkation of rescued boat cases without
guaranteed resettlement, even though UNHCR undertook to meet the
expenses incurred. While the majority of flag States or States of
ownership of rescuing vessels have been ready to provide
resettlement guarantees, this has not always been the case. There
are indications that some Governments, whose practice had
previously been liberal in this regard, may be reconsidering their
position. Heavy costs have also been incurred by owners as a
result of the proper and exemplary discharge of an internationally
recognized obligation by their masters.
22.
The situation has been exacerbated by the fact that some boats in
need of rescue on the high seas had already reached land only to
be turned away or towed back to sea.
23.
None of these factors condones
failure to meet the obligation regarding rescue at sea. However,
the dilemma faced by masters in the present situation is very
real.
24.
Whether because their distress signals were ignored or simply
never seen, boat people on the high seas are dying. Urgent
measures must be taken to remedy this situation.
C.
Orderly departure from Viet Nam
25.
In furtherance of a conclusion of the Consultative Meeting held in
December 1978, UNHCR signed a Memorandum of Understanding with the
Government of Viet Nam on 30 May 1979, concerning the orderly
departure of family reunion and other humanitarian cases from that
country. It is hoped that early implementation of this programme
will ease the situation in some measure.
D.
Refugee processing centres
26.
As a result of proposals made at the Consultative Meeting and at a
subsequent meeting called by the ASEAN Group in May 1979 in
Jakarta, a mission led by UNHCR has recently examined the
feasibility of establishing refugee processing centres on the
islands of Galang and Tara, in Indonesia and the Philippines,
respectively. These Governments have indicated that the sites
could accommodate some 10,000 and 7,000 persons, respectively, in
transit. They would be drawn from boat people in the ASEAN region
who had resettlement guarantees, but whose onward movement was not
imminent.
E.
Material assistance and financial implications
27.
UNHCR has supported in a major way the boat and land cases in the
countries of first asylum of South-East Asia, has provided
assistance to refugees and displaced persons in Viet Nam and is in
contact with the Chinese authorities with regard to assistance to
those in China.
28.
The support offered in the countries of South-East Asia has
covered basic food supplies, in some cases with WFP assistance and
shelter, including the construction of centres, medical care and
other essential facilities. The level of assistance takes account
of the special needs of the beneficiaries, as well as of the
conditions of the local populations. To date, some $US 95 million
has been provided by UNHCR for this purpose and for resettlement
costs, and monthly expenditures for its programmes are currently
some $US 10 million.
29.
The programme has either been implemented through governmental
bodies, such as the special organization set up within the Thai
Ministry of Interior, or non-governmental organizations, such as
the Malaysian Red Crescent Society. Governments have made
available land and varying facilities for the centres.
30.
Many non-governmental and voluntary organizations have provided
vital direct assistance to the refugees and displaced persons in
the region and have played an indispensable part in the
resettlement process in receiving countries. Some Governments have
funded travel costs for resettlement directly, but UNHCR has
provided over $US 20 million for internal and international
travel, the latter largely organized through the
Inter-Governmental Committee for European Migration (ICEM).
31.
Since the problem began four years ago, there has been a major
increase in the UNHCR staff in the region. In addition to the
material assistance programme, UNHCR is involved in the
registration of cases, organization of interviews, processing and
many other assets of the resettlement operation, for which each
family or individual has a separate file. Programme support costs
have been some 6 per cent of total expenditure.
32.
International financial assistance has generally not been lacking
and the circle of contributing countries has widened. [4] However,
the rapid influx and the unsatisfactory locations of several major
centres has sometimes made swift response difficult. Given the
increase in numbers, greatly increased financial support will be
required by UNHCR to meet the needs of the situation. On 30 June
1979, and on the basis of the present case-load and programme, the
projected shortfall for 1979 was some $US 50 million.
F.
Over-all assessment of the
situation
33.
Compared with the grave refugee problems of the past, the number
involved in South-East Asia are not unmanageable. The difficulties
arise not so much from the actual numbers facing the individual
countries of the region, but rather from the historical and
political complexities of the problem and the uncertainties as to
the future. It is these factors which have inhibited durable
solutions.
34.
The three possible durable solutions for the refugees and
displaced persons are voluntary repatriation, local settlement
and, in the absence of these alternatives, resettlement outside
the country of first asylum. In South-East Asia only the latter
has, to date, produced significant results, but the considerable
efforts made by various countries have not kept pace with the
ever-increasing needs. The pending case-load has thus continued to
increase dramatically. Precisely because the problem has not been
contained, local settlement on any significant scale has not been
possible in South-East Asia. Conditions in Indo-China have meant
that voluntary repatriation, except for the Kampucheans who were
in Viet Nam, has been extremely limited.
35.
Both for the land cases in Thailand and the boat cases throughout
the region, the solutions provided to date have been outrun by
events, despite great efforts. A backlog of pending cases has
built up. As a result, the countries of the region have lost
confidence in the ability of the international community to
control the problem. In turn, as the exodus has continued, the
internationally accepted principles of asylum and non-refoulement
have been breached. Moreover, lacking the reassurance that the
problem will be contained, the countries of the region have been
reluctant to provide local durable solutions where these might
otherwise have been possible.
36.
There is now no way in which the problem can be resolved by
piece-meal measures. No single action, however generous, will
suffice. More than ever, the crisis demands coherent and closely
co-ordinated action of the international community if further
lives are not to be lost. UNHCR and the United Nations system,
together with other intergovernmental or non-governmental
organizations, must and will continue to play their role, but the
solution to the problem lies, ultimately, in the hands of
Governments. A plan of action is suggested below.
III.
SUGGESTED PLAN OF ACTION
37.
To resolve the problems in the area, it is essential that any plan
of action address itself to the situation in its totality and be
comprehensive in its search for solutions. The objectives to be
achieved are the following:
(a)
First, that wise and humane measures are taken by those concerned
to remedy a situation in which thousands upon thousands of
Indochinese leave their homes in the present manner.
(b)
Second, the countries of the region where the refugees arrive need
to respond, and be enabled to respond, in a manner that prevents
appalling tragedy. Every humanitarian principle requires that
refugees not be turned away and forced into situations that
further endanger their lives.
(c)
Third, the international community, in its widest sense, must
unite in a truly co-operative and concerted endeavour so that
actions and commitments, of an on-going character, do indeed give
the refugees the chance for new lives and also provide the
reassurance that the countries of South-East Asia need as long as
the problem lasts.
38.
It is essential that the first of these objectives be met so that
the exodus does not continue in the present appalling manner. This
is a responsibility of the Governments concerned.
39.
Nothing, however, should obscure the immediate duty of the
international community towards those who seek asylum. Their
problems cannot wait.
40.
The observations and suggestions that follow call for closely
interlinked action. Without a recognition of this, there is danger
that the efforts of the international community will remain
insufficient.
(a)
There is at the moment a "back-log" in South-East Asian
camps of over 350,000 persons, who are awaiting durable solutions.
As a first, but considerable step, it is necessary to reduce this
"back-log", which must be achieved by a much higher
monthly rate of departures from the camps than at present. This
means exceeding the average rate of arrivals which, it is most
earnestly to be hoped, will decline.
(b)
In practical terms, the offers of resettlement made available over
a 12-month span need now to be fully used within a maximum of six
months.
(c)
Ideally, movement even at this rate should be directly to
countries of resettlement. Such an effort would immediately ease
the situation. If this should not be fully possible, however,
alternatives are essential. Clearly, the alternatives imply the
identification and establishment of refugee processing centres or
holding centres of a far greater capacity than presently made
known. Governments in a position to offer sites for such centres,
whether within or beyond the region, should advise UNHCR of the
possibility.
(d)
These urgent measures should be taken irrespective of the total
number to be resettled. The problem requires sufficient on-going
commitments, but swift action now to reduce the
"back-log" is essential to bring the problem under
control and will advance the achievement of an over-all solution.
(e)
The total number of resettlement places available to UNHCR are
inadequate even for the present case-load. They now need to be
more than doubled from the 125,000 places available at the end of
May 1979. The High Commissioner has already approached Governments
individually, suggesting indicative numbers to them.
(f)
To the extent that such
resettlement takes place in developing countries, financial
assistance should be forthcoming from the international community.
(g)
With regard to future arrivals, it is clear that on-going
commitments, at least initially, should be made at the increased
scale suggested in (e) above. The High Commissioner will monitor
the situation carefully and, at regular intervals, will advise
Governments of the needs, in light of the trend of arrivals.
(h)
Resettlement procedures and criteria must be still more flexible
and, in particular, must take account of family groupings. The
increased rate of departures will require early expansion of
facilities at sites where the refugees are assembled prior to
onward movement.
(i)
If the "back-log" is reduced, as suggested above, and
on-going commitments match needs as they arise, the problem can be
contained. Other complementary and essential steps will then
contribute more readily towards the over-all solution.
(j)
Within the framework of such an over-all plan, durable solutions
will also need to be pursued in the region.
(i) Clearly, the
prospects of repatriation - on a voluntary basis - must constantly
be explored. UNHCR would be fully prepared to assist the
Governments concerned in this regard. In other areas of the
world,, UNHCR has helped with the organization and financing of
large-scale repatriation and has provided assistance for the
reintegration of those who have returned. The critical factors
have been the clearly-expressed wish of the country of origin that
the refugees return and the voluntary decision of the refugees
themselves to take advantage of the opportunity.
(ii) As a contribution to an
over-all solution and with the containment of the problem, the
possibility would arise for a degree of settlement in the region
for those for whom this is the most appropriate solution. Projects
could be formulated and funded from international resources with a
view to ensuring that the local population benefited as well.
(k)
For those awaiting solutions, conditions must be improved.
Self-sufficiency, education and other appropriate projects must be
encouraged.
(l)
In addition to the role of the appropriate United Nations agencies
and programmes, intergovernmental and non-governmental
organizations have an important part to play in this plan of
action.
(m)
Persons should be enabled to depart from Viet Nam in an orderly
way for family reunion and other humanitarian reasons. The
Memorandum of Understanding between the Government of Viet Nam and
UNHCR to this end must be carefully implemented with the
co-operation of all concerned.
(n)
The places allocated for the movement of such cases should be over
and above the numbers required for movement from the camps of
South-East Asia.
(o)
If the success of the programme for orderly departure from Viet
Nam is to be ensured, it is axiomatic that the current massive
departures should not continue in the present tragic manner.
(p)
The consequences of conflict in the region should not be followed
by the ravages of hunger. The dangers of starvation, particularly
in Kampuchea, are evident and there is immediate need to meet this
critical situation.
(q)
Many thousands of boat cases have perished at sea. Those in
distress must be rescued before they die and masters of vessels in
the area must scrupulously observe the law of the sea in this
regard. UNHCR is additionally ready to meet the cost of care and
maintenance for those so rescued. Further arrangements should be
made, by those Governments in a position to do so, for search and
rescue in the South China Sea. UNHCR will follow up on these
cases.
(r)
Within the framework of the over-all solutions envisaged,
Governments of the first port of call must allow the
disembarkation of all those rescued. UNHCR will, of course,
continue to meet the cost of supporting such persons pending
durable solutions.
(s)
The necessary financial support, on the widest possible basis,
will be indispensable to the success of this plan of action.
(t)
Finally, it cannot adequately be stressed that a most essential
component of any plan must be the firm re-establishment of the
observance of the practice of asylum and non-refoulement, in
accordance with internationally accepted humanitarian principles.
IV.
CONCLUSION
41.
There can be no denying the gravity of the responsibilities facing
the international community in the present crisis. The States of
the Indo-China peninsula, those of South-East Asia and the world
at large all have obligations to help resolve the desperate
tragedy of the refugees and displaced persons. Much is at stake:
fundamental principles of law and of conduct, the future of
countless people and the sanctity of human life, the will and
capacity of the international community to respond in unison and
in full measure. It is imperative that Governments take firm
decisions to act in concert in order to contain, reduce and
resolve the problem. The forthcoming meeting must achieve this
end.
APPENDIX TO ANNEX I Consultative meetings
with interested Governments on refugees and displaced persons in
South-East Asia (Geneva, 11-12 December 1978)
Summing-up by the United Nations High
Commissioner for Refugees
1.
The consultations have underlined that the problem of refugees and
displaced persons must be treated in a strictly humanitarian and
non-political way, in keeping with the nature of UNHCR. The Office
must advocate and implement policies that reflect this fundamental
position.
2.
These policies must receive governmental understanding and greatly
increased support.
3.
UNHCR must be enabled to help refugees and displaced persons
wherever they are, in all parts of the region, not merely
selectively. The interrelationships in the region, as well as
their international dimensions, were fully elaborated.
4.
The consultations recognized that no comprehensive solutions can
be attained unless such is the will and determination of
Governments within and beyond the region. UNHCR cannot substitute
for this. Governments must, therefore, take the appropriate
decisions, for only through their actions can existing problems be
solved and new problems avoided.
5.
In resolving these problems, the following urgent measures are
closely related or are interdependent:
(a)
The consultations noted that there can be no humane or durable
solutions unless Governments grant at least temporary asylum, in
accordance with internationally accepted humanitarian principles.
The consultations also noted, as a corollary, that existing
facilities in countries of first asylum in South-East Asia were
already overloaded and that for such countries temporary asylum
depended on commitments for resettlement in third countries and
the avoidance of residual problems in the area.
(b)
The meeting considered a proposal whereby special centres would be
established where refugees and displaced persons would be
processed for resettlement in an orderly way, within a specific
time scale, and against guarantees that there would be no residual
problem. It was felt that this proposal should be further
elaborated and studied by Governments.
(c)
While greatly appreciating the offers of resettlement announced
during the consultations, it was evident that a far wider range of
countries must announce increased numbers of places for this
purpose. These further offers, which are most urgently required,
must be announced in advance, be available on a regular basis, and
above all, match the need. This would permit the pooling of
opportunities and the allocation of resettlement numbers to areas
of greatest need.
(d)
Procedures must be further reviewed in order greatly to reduce the
time between acceptance and departure; they must be humanitarian
and flexible. The speed of movement must be greatly accelerated.
(e)
In the particular case of rescue at sea, the decision adopted by
the Executive Committee of the High Commissioner's Programme at
its twenty-ninth session must be scrupulously implemented if lives
are not to be lost. The consultations took note of the appeals
made jointly by the Secretary-General of IMCO and the High
Commissioner to the States members of IMCO and to the
International Chamber of Shipping and welcomed the positive
actions already taken by certain countries.
(f)
Many statements during the consultations underlined the need to
promote other durable solutions in the region, including voluntary
repatriation.
(g)
It was stressed that efforts must be intensified to promote
self-sufficiency projects. Attention was drawn to the adverse
special consequences of idleness and dependence on international
relief.
(h)
It was also stressed that considerations relating to the stability
of the region as a whole indicated a need for a continuing
dialogue in the area on the humanitarian problems that were being
faced. Unilateral and bilateral efforts directed towards the
improvement of economic conditions in the Indo-China peninsula
could help redress the devastation caused by war and successive
natural calamities and influence the decisions both of those who
might wish to repatriate voluntarily and of those who might
otherwise consider leaving for economic reasons.
(i)
The consultations felt that where persons left their countries in
order to reunite with their families abroad, countries of origin
and those where such reunion would take place should establish
bilateral or multilateral procedures if this has not been done.
More regular and orderly procedures could advantageously be
considered in order to facilitate humanitarian solutions.
(j)
In the course of the deliberations, substantial new financial
contributions were announced. It was recognized, however, that
further generous contributions will be needed from the widest
possible range of countries, in order to reduce the material
burden on countries of first asylum to help, if necessary,
potential third countries of resettlement and to provide for other
durable solutions.
(k)
Warm appreciation was expressed for the contribution of
intergovernmental and non-governmental organizations and voluntary
agencies. Their capacity and skills should be fully utilized.
(l)
All Governments were urged to communicate to UNHCR, at the
earliest possible opportunity, the necessary steps that they
intended to take to further the measures outlined in the
summing-up. This was absolutely essential in order to maintain the
momentum of these consultations and to ensure that the
international community gave the fullest and widest attention to
the problems discussed. This would also enable the closest
follow-up of each of these matters.
ANNEX II UNHCR Programmes in South-East
Asia for refugees and displaced persons from Indo-China
Contributions pledged and/or paid for in 1979, including
contributions in kind (In United States dollars)
Situation as at 30
September 1979
DONOR
|
Total
|
General programmes a
|
RPCs and Other Trust Funds
|
Governments
|
|
|
|
Australia
|
3 393 741
|
3 116 415
|
277 326
|
Austria
|
75 188
|
75 188
|
|
Canada
|
1 028 956
|
1,028 956
|
|
Canada (Provincial Government of Alberta)
|
854 701
|
854 701
|
|
China
|
973 141
|
973 141
|
|
Denmark
|
1 889 466
|
1 889 466
|
|
Finland
|
1 000 000
|
1 000 000
|
|
Germany, Federal Republic of
|
6 116 037
|
4 272 559
|
1 843 478
|
Iran
|
90 000
|
90 000
|
|
Ireland
|
400 000
|
400 000
|
|
Israel
|
5 000
|
5 000
|
|
Italy
|
1 235 006
|
1 235 006
|
|
Japan
|
38 000 000
|
31 500 000
|
6 500 000
|
Netherlands
|
6 657 812
|
6 657 812
|
|
New Zealand
|
209 180
|
209 180
|
|
Norway
|
1 960 784
|
1 960 784
|
|
Papua New Guinea
|
300 000
|
|
300 000
|
Republic of Korea
|
5 000 000
|
4 800 000
|
200 000
|
South Africa
|
50 301
|
50 301
|
|
Spain
|
50 000
|
50 000
|
|
Sweden
|
2 544 496
|
2 544 496
|
|
Switzerland
|
3 102 354
|
2 499 944
|
602 410
|
Tunisia
|
5 000
|
5 000
|
|
United States of America
|
41 500 000
|
22 000 000
|
19 500 000
|
Total, Governments
|
149 056 271
|
119 580 057
|
29 476 214
|
Organizations
|
|
|
|
European Economic Community
|
31 236 678
|
30 983 678
|
253 000
|
European Parliament
|
1 368 430
|
1 368 430
|
|
The Sovereign Order of Malta
|
10 000
|
10 000
|
|
Total, non-governmental organizations and others
|
6 379 223
|
5 276 680
|
1 102 543
|
GRAND TOTAL
|
155 435 494
|
124 856 737
|
30 578 757
|
a Annual programme and special operation.
|