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### Viewing cable 03AMMAN4001, 2,200 REFUGEES LANGUISH ON IRAQI-JORDANIAN BORDER

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
03AMMAN4001 | 2003-07-02 12:05 | 2011-08-24 16:30 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Amman

`

    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 AMMAN 004001

    SIPDIS

    DEPT FOR NEA/NGA AND PRM, PLEASE PASS TO USAID/OFDA FOR DART
    CAIRO FOR REFCOORD
    CPA BAGHDAD FOR WYLLIE AND LAPENN

    SENSITIVE

    E.O. 12958: N/A
    TAGS: PREF PREL KPAL IZ JO
    SUBJECT:  2,200 REFUGEES LANGUISH ON IRAQI-JORDANIAN BORDER

    REF:  AMMAN 2427

    (U) Sensitive but unclassified; please handle accordingly.

    ¶1.  (SBU) Summary and Comment:  On June 24, Amman-based
    regional refcoord and PRM DART-Iraq team members visited
    UNHCR refugee camps on the Jordanian-Iraqi border and in
    Ruweished, Jordan.  Combined population for the two camps
    remains near 2,200:  1,200 Iranian Kurds from Al Tash
    refugee camp and other undocumented nationals in no-man's
    land (NML) between the Iraqi and Jordanian border posts, as
    well as 899 Palestinians and 163 Somalis and Sudanese in
    UNHCR's refugee camp at Ruweished.  The Somalis and
    Sudanese, previously held in the Jordan Red Crescent's TCN
    transit camp, were moved to the UNHCR camp on June 23 as
    part of the GOJ's decision to close the TCN transit camp.
    The NML population has begun to decrease, with 44 Iranian
    Kurds having left for northern Iraq and another 75
    considering a move in the near future.  The MEK population
    in NML has dwindled from its original 96 members to just
    five.  Although concerned by the poor living and security
    conditions in NML, both the GOJ and UNHCR have indicated
    they are willing to support the NML camp until a solution
    can be found for the Iranian Kurds from Al Tash refugee
    camp.  End summary and comment.

    ----------------------------------
    NML Population:  Al Tash Kurds ...
    ----------------------------------

    ¶2.  (U) UNHCR reports that the refugee population in no-
    man's land (NML) between the Iraqi and Jordanian border
    posts of Trebil and Karameh has remained stable at roughly
    1,200 since mid-May.  1,100 of the refugees are Iranian
    Kurds from UNHCR's Al Tash refugee camp near Ramadi, Iraq.
    The Al Tash Kurds began arriving at the border on April 14,
    citing a lack of UNHCR services, general insecurity and fear
    of political reprisals from neighboring Arab tribes as their
    reasons for fleeing Al Tash refugee camp (ref).  The Kurds
    have held daily protests since mid-May, demanding entry to
    Jordan and resettlement in third countries - but attracting
    no notice from the hundreds of journalists that pass through
    the Jordanian-Iraqi border en route to Baghdad.

    ¶3.  (U) Since May 29, when the GOJ told the Kurds they would
    not be allowed to enter Jordan, more than 40 Iranian Kurds
    have left NML for the northern Iraqi village of Kallar, just
    outside Suleimaniyah, where some of the Kurds have
    relatives.  Another 75 are considering leaving NML for
    Kallar but are unwilling to do so without guarantees from
    UNHCR and the coalition forces regarding safety, security,
    humanitarian assistance and resettlement possibilities in a
    third country - possibly the United States.  The 75 Kurds
    told UNHCR they could convince another 600 to leave NML for
    northern Iraq if UNHCR could provide written guarantees for
    resettlement.  The Kurds told PRM officers that they view a
    move to northern Iraq as temporary, a transit point as they
    seek asylum in a third country.  The NML Kurds also reported
    "several hundred" Kurds have left Al Tash refugee camp for
    Kallar, wooed by promises made by visiting PUK officials
    that they would have a better life in northern Iraq.
    UNHCR/Iraq has been unable to confirm how many Kurds have
    left Al Tash camp for northern Iraq.  UNHCR/Iraq also has
    advised UNHCR/Jordan that it would be unable to support an
    assisted movement of NML Kurds to northern Iraq before
    November, as it has neither sufficient staff nor services in
    place to accommodate a new refugee population.  Frustrated
    by UNHCR's slow response, some of the 75 Kurds are
    considering moving to Kallar without UNHCR assistance.

    ¶4.  (U) The core group of 1,000 Iranian Kurds in NML refuses
    to return to Iraq, claiming it is a "jail" in which they
    suffered for 23 years, restricted to Al Anbar governorate
    and deprived of social and economic opportunities.  The
    Kurds told PRM officers that they doubt that the change in
    Iraq's leadership will bring changes in their situation,
    claiming they suffer from poor UNHCR management as well as
    discrimination from local Arab tribes.  (Some of the Kurds
    claim, for example, that their applications for resettlement
    or voluntary repatriation to Iran languished for three or
    four years without a response from UNHCR.)  Some of the
    Kurds also claim they cannot return to their native Iran, as
    they are political opponents of the clerical regime and
    would face certain death or imprisonment if they returned
    home.  (Several hundred Iranian Kurds from Al Tash camp had
    in fact been rejected for voluntary repatriation by the
    Iranian government.)  The Al Tash Kurds in NML therefore see
    resettlement in a third country as their only option.
    Although the GOJ has indicated it would be willing to allow
    the Kurds to transit Jordan if they had onward documentation
    and tickets for resettlement in a third country, UNHCR
    (correctly, in our opinion) refuses to conduct resettlement
    screening from NML, fearing it would create a pull factor
    for disgruntled refugees and Iraqi nationals from throughout
    Iraq.

    -------------------------------------------
    ... and a Hodgepodge of Undocumented Others
    -------------------------------------------

    ¶5.  (U) NML also is home to another 100 or so people with
    document problems, a hodgepodge of nationalities and
    political problems.  The original group of NML residents -
    96 Mujahadeen-e-Khalq (MEK) members -- has dwindled to just
    five, three of whom have onward travel documentation for the
    UK and are waiting to sort out the details.  Six self-
    described Iranian Persians (former POWs and Iranian
    oppositionists) also fled Al Tash refugee camp and are
    seeking resettlement in a third country.  Two undocumented
    Jordanian Palestinians, who seem to have fled Jordan after
    Black September, also remain at the border hoping for
    resettlement.  A group of 41 undocumented Palestinians who
    arrived after the GOJ reverted to pre-war border practices
    for Palestinians on May 22 (see para 7 for details) also
    remains in NML, hoping to enter - and presumably resettle in
    - Jordan.  As with the Iranian Kurds, UNHCR has told this
    group it cannot be processed for a durable solution -
    including resettlement in a third country - as long as it
    remains in NML.  Like the Kurds, this group refuses to
    return to Iraq.

    --------------------------------------------- ----------
    Palestinians and TCNs in UNHCR's Ruweished Refugee Camp
    --------------------------------------------- ----------

    ¶6.  (U) UNHCR's refugee camp at Ruweished, Jordan is now
    home to 899 Palestinians from Baghdad and 163 Somalis and
    Sudanese, moved from the Jordan Red Crescent's TCN transit
    camp on June 23 after the GOJ decided to close the camp.
    This group of Somalis and Sudanese are long-term residents
    of Iraq who refuse to return to their country of origin but
    also are unwilling to return to Iraq.  UNHCR has interviewed
    this group and found that only four qualify for UNHCR
    refugee status.

    ¶7.  (SBU) The GOJ agreed to admit the Palestinians to the
    UNHCR refugee camp on April 21, seemingly in the hopes that
    its gesture would encourage UNHCR to move the Al Tash Kurds
    to a new refugee camp just inside the Iraqi border.  Once
    the GOJ opened the border to Palestinians, a small but
    steady steam began, resulting in more than 1,100
    Palestinians in the UNHCR refugee camp by mid-May.  On May
    22, the GOJ reverted to its pre-war immigration policy for
    Palestinians, allowing only those with proper documentation
    and prior permission from the General Intelligence
    Directorate to enter Jordan.  (This policy remained in place
    for all other Jordanian borders - including the Allenby
    bridge - throughout the war.)  This decision, coupled with
    terrible sandstorms in late May, has led to a gradual exodus
    from the camp.  As conditions worsen in the camp over the
    summer, UNHCR expects that still more Palestinians will give
    up and return to Baghdad.

    ¶8.  (SBU) Nearly one-third of the Palestinians in the
    Ruweished refugee camp are "mixed marriages," Palestinian-
    Jordanian women (carrying Jordanian passports) married to
    Palestinian-Iraqi men (with either Iraqi or no
    documentation).  UNHCR believes that the GOJ will eventually
    allow this group - roughly 300 individuals - to enter
    Jordan.  According to the camp committee, the remainder of
    the group seeks resettlement in a third country, preferably
    in northern Europe where some of the Palestinians have
    relatives.  The Palestinians represent a mix of 1948
    refugees (all of whom were originally from Haifa, and fled
    Palestine with the retreating Iraqi army), 1967 refugees and
    other Palestinians who were thrown out of the Gulf in the
    aftermath of the 1991 Gulf War.  (Although the camp
    committee members did not mention this to PRM officers, the
    Palestinian community in Iraq also includes various
    rejectionist factions.)

    ¶9.  (U) The Palestinians told PRM officers that Iraq is
    "finished" for them.   As a minority within Iraq's Sunni
    minority, they fear they will be the first to suffer
    political reprisals from the Shi'a majority.  The
    Palestinians also said Iraqis view the Palestinians as, at
    best, having been a privileged group under Saddam's regime
    and, at worst, supporters of the Saddam regime.  This is the
    reason, they said, that Palestinians have been kicked out of
    their homes in Baghdad.  (NOTE:  Other Palestinians have
    reported that economics, rather than politics, led to a rise
    in their bargain-basement rents, previously enforced by
    Saddam's regime.)

    ¶9.  (SBU) The Palestinians also rejected a theoretical
    return to an independent state of Palestine, emphatically
    telling PRM officers that they are from Haifa, inside Green-
    Line Israel and would not be welcome there.  A return to the
    West Bank or Gaza, they said, would not be a return to their
    country of origin.  Moreover, the GOJ's reluctance to accept
    more Palestinian refugees rules out local integration as an
    option.  For these Palestinians, resettlement is perceived
    as their only option.  (NOTE:  Palestinian refugees outside
    UNRWA's areas of operations - e.g., Iraq - fall under
    UNHCR's mandate and therefore could be considered for
    resettlement as a durable solution.  However, the fact that
    these Palestinian refugees are now under UNHCR protection in
    an area of UNRWA operation - Jordan - poses difficult legal
    questions for the two agencies.  Moreover, as UNHCR Jordan
    Representative Sten Bronee noted to PRM officers, UNHCR's
    predominantly Arab-origin expatriate staff in the Middle
    East express great resistance to the idea of resettling any
    Palestinian refugees, due to the implications of such
    resettlement for the larger Palestinian refugee question.)

    -------------------------------
    Camp Management and Cost Issues
    -------------------------------

    ¶10.  (U) UNHCR and its implementing partners - the Hashemite
    Charitable Organization, CARE, OXFAM and Japan Platform -
    continue to provide services in the Ruweished and NML camps.
    MSF, which had been providing additional medical assistance
    and some psycho-social counseling, ended its program on June
    ¶30.  WFP is ending its food assistance on June 30, citing
    its usual policy of providing assistance only to refugee
    populations of more than 5,000 people.  ICRC and UNHCR will
    continue to provide food assistance.  Medical and dental
    care is emerging as a key issue for the NML camp, as UNHCR
    is required to obtain special GOJ authorization to bring NML
    residents into Jordan for specialized treatments.  (The
    nearest hospital is in Ruweished, Jordan - 75 km from the
    NML camp.)  Several NML refugees complained to PRM officers
    that they had not received adequate medical treatment due to
    the difficulties in traveling outside NML.  Refugee morale
    seems to have improved in recent weeks, due largely to the
    efforts of a UNHCR community services officer, seconded by
    Save the Children.

    ¶11. (U) UNHCR and IOM currently are in negotiations over how
    to handle the costs of caring for the 163 TCNs moved to the
    UNHCR refugee camp on June 23.  UNHCR has recognized only
    four of these TCNs as refugees but has agreed to provide
    basic services on humanitarian grounds.  Water is likely to
    emerge as a key cost-sharing issue for UNHCR and IOM.  After
    three months of supplying water for the then-three refugee
    camps from the municipality of Ruweished, the GOJ has
    determined that it no longer can do so.  The GOJ turned on
    the partially USAID-funded reverse osmosis (RO) water
    treatment unit on June 23, enabling UNHCR to supply water
    for the two camps from the GOJ-dug well near the Ruweished
    refugee camp.  UNCHR officials note that the GOJ turned on
    the RO unit just a few days after the USAID-financed
    maintenance contract expired on June 11.  UNHCR is now in
    negotiations with the GOJ over the cost of maintaining this
    unit.  UNHCR estimates that it will require USD 2 million to
    run the two camps for another six months.

    -------
    Comment
    -------

    ¶12.  (SBU) The GOJ's initial decision not to admit the
    Iranian Kurds to Jordan has remained firm and we anticipate
    that it will not change.  Although UNHCR initially
    considered creating a new camp for the Kurds just inside the
    Iraqi border, it has now ruled out the possibility, arguing
    that a new camp would create a pull factor for disgruntled
    nationals and refugees from throughout Iraq and create false
    expectations for resettlement in a third country.  UNHCR
    also believes a new cross-border camp would allow the GOJ to
    formally close the door to asylum seekers.  We agree with
    UNHCR's assessment.  Both the GOJ and UNHCR have indicated
    they are willing to support the NML camp until a solution
    can be found for the Iranian Kurds from Al Tash refugee
    camp.  In the meantime, we are working with UNHCR to
    identify solutions, including a return to Iraq and possibly
    resettlement for some Iranian Kurds in the United States.

    ¶13.  (SBU) The Palestinians' situation is both more
    complicated and potentially more manageable.  The division
    of responsibility between UNHCR and UNRWA is a legal and
    political morass, from which a durable solution for this
    group of Palestinians is unlikely to emerge.  Yet given the
    Palestinians' strong ties to Jordan, UNHCR believes (and we
    agree) that the GOJ eventually will admit some - if not all
    - of the Palestinians to Jordan.  However, it is unlikely
    that the GOJ will take any action regarding the Palestinians
    until the situation at NML has been resolved.

    ¶14.  (U) CPA Baghdad minimize considered.
    GNEHM

`