US embassy cable - 04ACCRA1271

C O N F I D E N T I A L SECTION 01 OF 03 ACCRA 001271 
 
SIPDIS 
 
STATE FOR PRM/A, GENEVA FOR RMA 
 
E.O. 12958: DECL: 06/15/2014 
TAGS: GH, PREF, refugees 
SUBJECT: PRM A/S DEWEY'S DISCUSSIONS WITH UNHCR AND 
AMBASSADOR ON REGIONAL AND LOCAL RESETTLEMENT ISSUES 
 
 
Classified By: Refugee Coordinator Carla T. Nadeau for Reasons 1.5 b 
 
1. Summary:  PRM A/S Gene Dewey met with UNHCR branch office 
and regional resettlement personnel while in Ghana on a 
mission to review resettlement operations.  Duly impressed by 
the efforts of the Accra branch office as illustrated through 
two camp visits, Dewey came away with a sound appreciation 
for the commitment and successes of staff to address both the 
assistance and resettlement needs of the thousands of 
refugees in Ghana.  On regional resettlement issues, Dewey 
learned of the slippage in policy agreement between the UNHCR 
Africa Bureau and Resettlement Bureau.  The removal of Thomas 
Albrecht from the helm of the regional resettlement hub has 
resulted in lost momentum with region-wide efforts as the 
knowledge and charisma necessary to keep BOs invested in 
resettlement as a tool of protection.  Noting that the USRP 
could ill afford letting slippage by UNHCR stand in the way 
of a successful resettlement program, Dewey came away 
energized that an intervention by PRM might prove helpful in 
setting UNHCR back on track.  In an out-brief discussion with 
Ambassador Yates, the Assistant Secretary and PRM were hailed 
for the good choice of setting up the Refcoord position at 
post and mutual appreciation for support of refcoord regional 
responsibilities were provided.  End summary. 
 
KRISAN REFUGEE SETTLEMENT -- A MIXED GROUP OF ENTHUSIASTIC 
REFUGEES 
 
2.  Bureau of Populations, Refugees, and Migration (PRM) 
Assistant Secretary Gene Dewey completed a mission to Ghana 
to review resettlement efforts as they related to specific 
resettlement from Ghana through the branch office (BO) and 
broader, regional efforts as spearheaded by the Accra 
regional resettlement hub.  Dewey began his review with a 
visit to Krisan Refugee Settlement in the East of Ghana some 
60 kilometers from the Ivoirian border. The settlement of 
some 2,000 refugees hosts a myriad of nationalities including 
Liberians, Togolese, Sierra Leoneans, and Congolese. The 
settlement, far more remote than Budumburam houses a 
population that is more reliant on formal assistance programs 
including food distribution. Met by BO Representative Thomas 
Albrecht and escorted by the refugee-based Neighborhood Watch 
Patrol, Dewey was provided a tour of the facilities including 
a wood working shop, the Right to Play compound, the medical 
unit, library, child care center and the women's organization 
tye and dye shop.  At each stop the Assistant Secretary 
greeted refugees and asked thoughtful questions about their 
efforts in each project. Dewey repeatedly commented at the 
level of enthusiasm and sense of ownership among the refugees 
participating in the numerous operations. The tour concluded 
with a brief question and answer session with a few hundred 
refugees.  A/S Dewey provided remarks outlining his interest 
and concern for the refugees of Krisan.  Noting that he was 
greatly impressed with the efforts of refugees in the various 
projects, Dewey went on to note that their plight received 
the highest attention in Washington as he debriefed the 
Secretary of State regularly on refugee issues in West 
 
SIPDIS 
Africa.  Emphasizing that Secretary Powell would hear about 
the positive aspects of the refugees at Krisan, Dewey's 
comments were greeted with rousing cheers and applause. Most 
questions posed by refugees were prefaced with broad thanks 
for the A/S's visit and then turned to concern over their 
situation, including their long presence in Krisan and their 
need to be resettled. 
 
BUDUMBURAM REFUGEE SETTLEMENT -- A MODEL OF SELF-SUFFICIENCY 
 
3.  The Assistant Secretary also reviewed operations at the 
Budumburam Refugee Settlement 50 kilometers outside of Accra. 
 The settlement of some 43,000 refugees is comprised 
primarily of Liberian refugees who began arriving in Ghana in 
1990.  The population was initially estimated to be about 
12,000 by the former UNHCR BO rep, however the registration 
exercise conducted last year by Albrecht illustrates that the 
number is nearly quadruple the estimated figure.  Unlike 
Krisan, the settlement does not receive significant 
assistance from UNHCR but does benefit from smaller, more 
targeted responses to vulnerable sectors.  Albrecht has 
routinely pointed out that the large discrepancy in census 
accounting has damaged efforts to provide appropriate levels 
of assistance to the population.  A/S Dewey toured Budumburam 
stopping at points of interest along the way including 
classrooms funded by a special appropriation through PRM, a 
day care center and the newly expanded health clinic.  Also 
escorted by Neighborhood Watch staff, Dewey witnessed 
first-hand the ingenuity of the population which has had to 
exploit its own resources in order to survive.  Completing 
the tour with a press meeting, A/S Dewey answered a few 
questions from refugees concerned about the USG's delay in 
responding to Liberia's needs and what plans were in place to 
avoid future conflict in the region.  A/S Dewey, focused on 
themes of good governance and anti-corruption efforts when 
responding to concerns.  Numerous local media provided 
detailed stories of the event the following day. 
 
UNHCR W. AFRICAN RESETTLEMENT POLICY -- A NEED TO COMMUNICATE 
 
4.  In separate conversations with Representative Albrecht, 
A/S Dewey explored the policy direction of UNHCR's 
Resettlement and Africa bureaus.  Drawing from past, 
extensive experience as the Deputy High Commissioner for 
UNHCR, Dewey had an interactive and fruitful discussion with 
Albrecht on how to ensure resettlement efforts move forward 
within the sometimes bureaucratic entanglement of UNHCR. 
Looking at the policy issues from three points, Albrecht and 
the Assistant Secretary discussed 1) the core policy issues, 
2) the timing and approach for addressing concerns, and 3) 
the linked issues inherent in the policy concerns. 
 
5.  The Core Policy Issues: Voluntary Repatriation vs. 
Resettlement. Albrecht noted that a policy shift was 
underfoot at UNHCR as the concept of a comprehensive approach 
to durable solutions had been replaced with a competition 
between repatriation and resettlement.  Quoting numerous 
papers previously outlining how voluntary repatriation, 
reintegration and resettlement could work simultaneously to 
address the complex needs of refugees, Albrecht was saddened 
that the approach by UNHCR has moved to an "either/or" 
situation.  As evidenced by the recent Targeted Response Team 
(TRT) mission to Nzerekore, Guinea, there appears to be a 
schism between the Africa Bureau's policy on repatriation and 
the Resettlement Bureau's policy on resettlement.  (Note. 
Under the gun to get the Guinea group referral approved by 
the Africa Bureau, the resettlement section pushed PRM to 
commit to begin processing the group of some 2,500 Liberians 
prior to the onset of repatriation exercises slated to begin 
in October. End Note.)  Despite the High Commissioner's 
commitment to redouble efforts on resettlement, the current 
UNHCR policy for West Africa is once voluntary repatriation 
begins for Liberians in October, only exceptional individual 
cases will be referred for resettlement.  (Note: UNHCR's 2005 
Resettlement Needs Paper indicates some groups of Liberian 
may be referred for resettlement after the October deadline 
for repatriation.  When refcoord brought this up to Albrecht, 
he noted that it was unclear whether the paper, generated by 
the Resettlement Section had received clearance/endorsement 
from the Africa Bureau.  End Note.) 
 
6.  Timing and Approach to Address Schism.  Albrecht and the 
Assistant Secretary discussed possible approaches to address 
the policy concern and contemplated using the Annual 
Tripartite Consultation on Resettlement (ATC) in Geneva as a 
venue for discussion.  Having reviewed the agenda, both felt 
it was an opportune time to insert a series of discussions to 
address the concerns with the Department of International 
Protection (DIP), the Africa Bureau and the High 
Commissioner.  Noting that October was not far away, it was 
explored as to whether a workshop and/or further discussions 
with resettlement countries and NGOs would be fruitful if 
done this summer. (Note. It was later decided after 
consultations with PRM/Admissions that the better venue for 
this discussion would be with Refcoord consulting directly 
with UNHCR staff in Geneva at the end of July. End Note.) 
 
7.  Linked Issues -- Perceived UNHCR Effectiveness and 
Funding.  The Assistant Secretary emphasized the difficulty 
in defending UNHCR efforts to Congress when resettlement 
numbers remain so low.  A/S Dewey specifically outlined PRM's 
concerns over six positions in the region that were funded 
since January but still not completely filled.  Cognizant of 
the impression the situation gives, Albrecht acknowledged 
that poor performance and/or ineffectiveness of UNHCR has 
been an ongoing problem.  Because of this, Albrecht pressed 
that getting policy back on track immediately was imperative 
for the bigger funding picture. 
 
8.  Turning to the role of the resettlement hub, Refcoord 
underscored the role Albrecht had played in energizing BOs in 
the region.  Seeing a marked change from just two years ago, 
Refcoord viewed first-hand, his efforts to get reluctant 
representatives on board to consider resettlement for needy 
populations.  As evidenced by successful resettlement 
training conferences and enhanced missions to offices by hub 
staff, the recalcitrance of some West African offices finally 
seemed to be abating.  Unfortunately, earlier this year, 
UNHCR reorganized the resettlement structure worldwide 
forcing Albrecht to relinquish his role.  While the remaining 
hub staff currently working resettlement issues are competent 
and knowledgeable, they lack the institutional memory and 
necessary charisma of Albrecht who, respected by many, 
managed to diplomatically move efforts in the region forward. 
 In a politically pressured environment to move numbers and 
meet ceilings, Albrecht's removal, was a strong blow to the 
efforts to keep the regional hub relevant and provide 
consistency to a complicated program. 
 
MEETING WITH AMBASSADOR YATES -- MUTUAL APPRECIATION 
 
9.  In a meeting/debrief with Ambassador Mary Yates, A/S 
Dewey outlined the findings of his visit, emphasizing his 
clear appreciation for the efforts of resettlement partners 
in Accra.  Focusing on UNHCR, Dewey informed Ambassador that 
an intervention by PRM on regional resettlement policy 
concerns was in order. The Assistant Secretary noted that the 
USG could not afford to allow internal bureaucracy to derail 
our resettlement efforts. Lamenting the setback of removing 
Albrecht from his regional responsibilities, A/S Dewey 
queried the Ambassador on her views of his performance. 
Ambassador Yates emphatically described the impressive 
strides made by Albrecht and his team, agreeing that keeping 
the momentum alive was of paramount importance to the 
continuity of the program.  Voicing appreciation for PRM's 
decision to establish the Refcoord Office in Accra, 
Ambassador Yates thanked the Assistant Secretary for his 
visit and all the support PRM had provided to refugee 
resettlement operations in the region.  A/S Dewey in turn, 
thanked the Ambassador for her unwavering support of the 
Refcoord and her efforts in West Africa. 
 
Yates