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### Viewing cable 05PANAMA2038, PANAMA: UNHCR - AID EFFORTS UPSTAGING GOVERNMENT

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05PANAMA2038 | 2005-10-11 20:02 | 2011-05-29 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Panama

`

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

` `

    UNCLAS SECTION 01 OF 03 PANAMA 002038

    SIPDIS

    SENSITIVE

    DEPARTMENT FOR WHA/CEN
    SOUTHCOM ALSO FOR POLAD

    E.O. 12958: N/A
    TAGS: PREF PREL PM
    SUBJECT: PANAMA:  UNHCR - AID EFFORTS UPSTAGING GOVERNMENT
    ON PANAMA'S FAR FRONTIER?

    REF: PANAMA 001711

    Summary
     -------
    ¶1.  (SBU)  UNHCR's unwavering support of refugee rights and
    its aid to Colombian civil-war refugees has given it great
    status and respect in Puerto Obaldia, a Caribbean town 200
    miles from Panama's capital on the coastal border of
    Colombia.  However, the distance from Panama City seems much
    greater as a result of its small size and geographical and
    political isolation.  PolOff traveled to the town of 500
    persons (60% of whom are of Colombian origin) with UNHCR
    representative Gonzalo Vargas Llosa and representatives of
    "Fundacion Los Pueblos del Bosque", a Panamanian NGO that
    administers the UNHCR aid, to demonstrate U.S. concern about
    refugee issues in Panama and to observe UNHCR/NGO sustainable
    development projects. Although the flow of refugees into
    Panama from Colombia slowed during the last seven years,
    UNHCR aid continues in the form of small business loans to
    help fully integrate the Colombians into Panamanian society.
    Former Panamanian MFA Deputy Nivia Rossana Castrellon,
    accompanying the group, visited the region for the first
    time.  End summary.

    Panama or Colombia?
    -------------------

    ¶2.  (SBU)  Throughout his fast-paced tour, the local
    population warmly greeted Vargas as a returning hero and
    accorded him the respect usually reserved for a high ranking
    government official.  The Government of Panama (GOP) lacks
    presence in the remote area and the UNHCR has filled the
    vacuum, gaining credibility through its aid programs and
    unwavering defense of refugee rights.  Politically, Puerto
    Obaldia may be in Panama but geographically it might as well
    be in Colombia.  The majority of the inhabitants are
    Colombians and watch Colombian satellite TV.  Even much of
    the music played in the town's bar is Colombian.  The
    Panamanian National Police (PNP) has a barracks and maintains
    four check points with machine guns and sand bags around the
    edge of the town to protect it from FARC or UAC incursions.
    The picturesque Colombian village of Sapzurro is just a short
    boat ride away, however.  Former Deputy Foreign Minister
    Castrellon spoke about the difficulties the Government of
    Panama has in maintaining its influence in the region.

    .......where everyone knows your name
    -------------------------------------
    ¶3.  (SBU)  Describing Puerto Obaldia as geographically
    isolated is an understatement.  Part of the Kuna Yala Comarca
    on Panama's Caribbean coast, the area has no roads and can
    only be reached by airplane or boat.  Many small homes have
    dirt floors.  Electricity is available for several hours a
    day from portable gas powered generators.  Panamanian
    National Police (PNP) and Immigration officials quickly
    notice outsiders, ask them to explain their presence, and
    present their documents.  The town's several paved streets
    and sidewalks are clean and free of litter, cars and trucks.
    Dogs, chickens, and little children roam the streets.  The
    Caribbean Sea surrounds Puerto Obaldia on three sides and it
    is separated from Colombia by low lying rugged coastal
    mountains.  Although the town is located in the Kuna Yala
    Comarca (an indigenous reservation) most of the population is
    Afro-Panamanian.

    Identities and nationalities questionable
    -----------------------------------------
    ¶4.  (SBU)  Refugees fleeing Colombia's civil war began to
    arrive in Puerto Obaldia in 1997.  The exact number of
    Colombians who entered Panama's remote Darien border region
    is believed to be around 800. Some "internal" refugees came
    from La Bonga, a remote Panamanian village that historically
    had a mixed population of Colombians and Panamanians.  La
    Bonga was known as a village where the Revolutionary Armed
    Forces of Colombia (FARC) guerrillas rested and staged
    operations.  Because of its FARC connections, the
    paramilitary Autodefensas Unidas de Colombia (AUC) attacked
    La Bonga in 1997 killing five people.  The remaining
    villagers fled to Puerto Obaldia.

    ¶5.  (SBU)  Following the attacks at La Bonga, the Government
    of Panama (GOP) granted the Colombians temporary protection
    for three months.  Today, eight years later, 120 Colombians
    remain under protective status in Puerto Obaldia, unable to
    work legally or travel outside the village.  UNHCR and
    Embassy have been encouraging Panama to resolve the status of
    Colombian refugees (see REFTEL).  A large problem for
    Colombian and Panamanian authorities is identifying who is a
    Panamanian and who is a Colombian or possibly an Ecuadorian.
    Many people born in remote villages have no birth
    certificates or national identification cards from either
    Panama or Colombia.  A Colombian consular officer maintains
    an office in Puerto Obaldia and he assists Colombians in
    obtaining documents such as birth certificates and cedulas
    (national identification cards) to prove their identity.  As
    part of the UNHCR visit, the NGO representatives delivered
    Panamanian refugee identification cards to 24 Colombians who
    had been living in Puerto Obaldia since 1997.  This group had
    recently documented their identity as Colombians and their
    status as refugees with the help of the consular officer.  A
    group of 42 Panamanians who also had never been documented as
    citizens before received their cedulas from the NGO
    representatives.

    ¶6.  (SBU)  Many of the Colombians refugees now have wives and
    children in Panama.  Vargas went from house to house advising
    them to register their children with the Panamanian
    government.  The case of two six-year old twin brothers show
    the difficulties faced by many refugee families in this town.
     The boys were born in La Bonga to young parents who are
    alleged to be FARC members.  No one has seen or heard of
    their parents for several years.  Their Colombian grandmother
    is raising them but has no documents proving they are
    Panamanian.  The NGO is trying to get permission to enroll
    the boys in school even though they are not documented
    Panamanians.

    ¶7.  (SBU)  A variety of facilities in the village have
    received aid from the UNHCR, NGOs and other organizations.
    The main street houses a small library funded by the German
    embassy in Panama and contains several bookshelves with
    novels, history and geography books, and health information.
    A small theater (Cine de la Gente, approximately 10 x 20
    feet) filled with folding chairs is located in the same
    building as a two-table restaurant near the library.  The
    theater plays to full crowds and shows current DVDs three
    times a day on a 27" inch TV, charging twenty-five cents for
    children and fifty cents for adults.  Sodas and food can be
    ordered from the restaurant and eaten while you enjoy your
    movie.

    City Hall
    ---------
    ¶8.  (SBU)  The UNHCR contingent spent all day and part of the
    evening visiting various people in the village and receiving
    updates on the impact of their programs.  The corregidora
    (who functions as magistrate and mayor), Senora Luna,
    provided a long report on all recent events in the town from
    her office that displays both a Colombian and Panamanian
    flag.  The director of the local school sat in on the report
    since most of the conversation dealt with school issues.
    Both the corregidora and the school director were concerned
    about five children in the village that have been missing
    school to work on their family's plot of land located near
    their former village of La Bonga.  Other families in the
    village also return to plant beans, rice, and corn near La
    Bonga.  The corregidora and the school director both thanked
    the UNHCR for the support provided to the school and other
    projects throughout the town.  The UNHCR is not shy about
    advertising - all items purchased with the assistance of
    UNHCR are labeled with a sticker in both English and Spanish.

    ¶9.  (SBU)  The village school, built with UNHCR assistance,
    has a total of 179 students in grades one to seven and five
    teachers.  The students in grades one to five attend classes
    in the morning while the sixth and seventh graders attend
    school in the afternoon. Students attending both sessions
    begin their school day with a meal served in the small school
    cafeteria before beginning classes in one of the five
    classrooms.  Some of the students come from the islands
    located off the village's coast and will spend the school
    week with families in the village.  The school director
    believes a boarding facility would encourage more students
    from the coastal islands to attend the school.  The school is
    flanked by banana trees and a pen containing several pigs,
    some of which will be slaughtered to provide food for a
    festival later this year.

    Small Loans yield Big Results
    -----------------------------
    ¶10.  (SBU)  In 1998, the UNHCR began providing health care,
    food, clothing, and rent subsidies to the refugee in Puerto
    Obaldia.  In July 2005, UNHCR changed their strategy from
    providing basic subsistence to one of making small loans for
    the refugees to start small businesses.  In Puerto Obaldia,
    five small family run stores have received loans of $350 to
    purchase refrigerators or freezers.  The stores then begin to
    stock and sell small quantities of fresh meat, poultry, ice,
    soda, beer as well as non-perishable products to their
    neighbors and become economically self sufficient.  Two
    families have started small restaurants using the small loan
    program from UNHCR.  All borrowers are in the process of
    repaying the loans and some are requesting additional loans
    for other purchases.  Four other families are using the same
    loan program to raise chickens, turkeys, and pigs as a
    business that makes them self sufficient.

    Not quite Paradise
    ------------------
    ¶11.  (SBU)  While Puerto Obaldia may appear to be a tranquil
    Caribbean village, the problems are real and similar to the
    difficulties that exist throughout the country .  The town
    has a dedicated doctor but his clinic and equipment are
    clearly outdated and he cannot perform even minor surgeries.
    There is no dentist.  Any equipment or supplies needed in the
    town arrive by airplane or boat from Panama City or Colon
    which is becoming increasingly expensive as the cost of
    gasoline rises.  The young people leave the town for jobs in
    Panama City or Colombia.  The Colombian refugees who make up
    the majority of the population, however, will not return to
    their homeland despite the currently lower level of activity
    by Colombian guerrilla groups.  Although there have been no
    attacks in the area by Colombian guerrillas for three years,
    the fear remains.  The Colombian refugees would rather live
    under the harsh conditions in Puerto Obaldia than risk losing
    their lives if they return to Colombia.  Also, Vargas and
    Castrellon describe the living conditions in Puerto Obaldia
    as much better than those found in other Panamanian refugee
    communities in Jaque and Alto Tuira.

    Whose country is it anyway?
    ---------------------------
    ¶12.  (SBU)  Comment:  The work of the UNHCR in this far
    corner of Panama is certainly commendable.  The ubiquitous
    presence of UNHCR posters announcing World Refugee Day and
    other events creates a sense that the UNHCR is the shadow
    government in the town of Puerto Obaldia.  While sovereignty
    is a word that appears in many places in Panama, this border
    region is clearly at the edge of the influence of the GOP.
    The border regions of Panama are vulnerable to many problems
    - drug trafficking, human smuggling, guerrilla activity - and
    the absence of a strong government presence makes these more
    likely.  Maintaining control of borders and government
    presence is an important part of sovereignty. The Colombians
    have settled in Puerto Obaldia and other Colombian border
    towns are now part of Panama although the GOP has not yet
    decided to treat them as such.  If the GOP were to assume the
    role of the UNHCR in providing assistance in the border area,
    it would be a significant first step in improving ties with
    this isolated part of the country.  End comment.

    EATON

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