US embassy cable - 05GENEVA2493

UNCLAS SECTION 01 OF 02 GENEVA 002493 
 
SIPDIS 
 
USEU FOR MEZNAR, USUN FOR MALY 
 
E.O. 12958: N/A 
TAGS: PREF, UNHCR 
SUBJECT: UNHCR: EXCOM CABLE #2: PRM ACTING A/S GREENE,S 
MEETING WITH HIGH COMMISSIONER GUTERRES 
 
REF: GENEVA 2465 
 
1.  (U) Summary:  On the margins of the 56th Session of the 
UNHCR Executive Committee (EXCOM), PRM Acting A/S Greene 
previewed our priorities for the week-long session with UN 
High Commissioner for Refugees Guterres.  They included 
improving UNHCR's approach to durable solutions, management 
reform, emergency response and camp management, and 
clarifying UNHCR,s role with internally displaced persons. 
Greene pressed Guterres to "be out in front" on refugee 
issues and to drive home durable solutions.  By doing so, 
Guterres could have a positive impact on governments, 
willingness to provide diplomatic muscle and financial 
support to UNHCR,s efforts.  Greene also pressed for strong 
UNHCR cooperation to meet President Bush's commitment to 
resettle 70,000 refugees in 2006 -- a 30 percent increase 
over FY 2005 figures. End summary. 
 
2.  (U) PRM Acting A/S Rich Greene, joined by Ambassador 
Moley; USAID DCHA Deputy Assistant Administrator Bill 
Garvelink; DHS/CIS Director of Refugee, Asylum and 
International Operations Director Joe Cuddihy; PRM/MCE 
Director Margaret Pollack; and RMA Counselor Piper Campbell, 
met with UN High Commissioner Antonio Guterres, Deputy High 
Commissioner Wendy Chamberlin, and Americas Bureau Director 
Philippe Lavanchy October 3 to discuss a wide range of issues 
important to the USG-UNHCR working relationship.  Greene 
encouraged the High Commissioner (HC) to use EXCOM as a 
springboard to implementing his agenda for change. 
 
Internally Displaced Persons (IDPs) 
-----------  ---------- 
 
3.  (SBU) Greene told Guterres that while many questions 
remained about implementing the proposed "cluster lead" 
approach to IDPs, the U.S. welcomed UNHCR,s recognition that 
they have significant technical expertise to offer and 
appreciated the HC,s commitment to make UNHCR a more 
predictable partner.  Guterres responded that he was aware of 
and shared many of the USG concerns.  During the difficult 
negotiations leading up to the September 12 IASC Principals 
meeting, he made it clear that UNHCR would not take a cluster 
lead in natural disasters situations.  It also would not/not 
take the lead in protection, camp management or emergency 
shelter (a) in places where these activities could undermine 
the institution of asylum or UNHCR,s protection role, (b) if 
resources were not forthcoming, or (c) where the existing 
response was working or other actors had greater 
capabilities.  He emphasized that UNHCR,s leadership role 
should provide added value to an IDP response. 
 
Durable Solutions:  Bhutan/Nepal and Sudan 
--------------- --------- ------------- 
 
4.  (SBU) Commenting that some of the USDEL's best work would 
be done in the numerous bi-lateral meetings occurring on the 
margins of EXCOM, Greene said that the USG would push for 
progress on durable solutions, including in several meetings 
on Bhutan/Nepal and protracted refugee situations in Africa. 
Guterres recounted his recent conversations with the 
Ambassadors of India and Nepal, noting that India may grant 
UNHCR full status and discreetly put pressure on Nepal and 
Bhutan to reach a durable solution.  Guterres said Nepal 
understands that the international community wants Nepal to 
create the conditions for progress. He had pressed the 
Ambassador to allow UNHCR to conduct a registration among the 
Bhutanese refugee population.  If the Bhutan-Nepal recent 
commitment to address category one and four refugees started 
off well, Guterres said, interested countries may have a more 
open attitude for further cooperation.  Greene encouraged 
Guterres to drive forward the small opening that now exists. 
With regard to Sudan, Guterres expressed great worry, 
commenting that the window of opportunity for a political 
solution was closing.  Upcoming meetings were critical to 
bring the splintering factions together. 
 
Management Reform:  Looking for Progress 
----------- ------------- -------------- 
 
5.  (SBU) Greene emphasized that the U.S. was looking for 
progress on management reform issues, including emergency 
response, camp management, human resources policies, use of 
technology, and creating a culture of accountability. 
Guterres acknowledged all these priorities, but focused on 
human resource reform as key to success in the other areas. 
He cited UNHCR,s inability to manage its Burundi activities 
as an example of existing rigid personnel policies.  He said 
that UNHCR Director for Human Resources and Management 
Raymond Hall was preparing 2-3 reform documents that would 
soon be discussed by senior management.  Referring to the use 
of technology, Guterres said that UNHCR has the right people 
in place (e.g., the newly created results-based management 
unit), but that change will take time and that good 
technology use is dependent on good management.  Guterres has 
requested a report on global management initiatives that, by 
early 2006, should lay out minimum standards for managers and 
short-term, measurable objectives. 
 
Emergency Response and Camp Management/Coordination 
-------- ------------------- ----------------------- 
 
6.  (SBU) Guterres was quite optimistic that his human 
resources reform efforts would have a positive impact on 
UNHCR,s emergency response capacity.  Previewing what he 
later announced during EXCOM, Guterres praised the work of 
Emergency Services and Security (ESS) chief Arnaud Akodjenue. 
 He said his decision to make Akodjeneu the head of the 
Division of Operational Support (DOS) -- replacing Marjan 
Kamara, whom Guterres has asked to head the Africa Bureau -- 
is meant to integrate an emergency response mind-set into 
UNHCR,s operations.  On camp management and coordination, 
again referring to the new IDP cluster lead approach, 
Guterres said that the new approach compels UNCHR to define 
what camp management means.  UNHCR,s responsibilities as 
cluster lead would entail setting standards for camp 
management and "guaranteeing" that agencies managed camps to 
that standard, coming in as last resort only when necessary. 
Guterres said UN Emergency Relief Coordinator Jan Egeland was 
a committed advocate for resource mobilization among donors 
for these new activities.  UNHCR would draw from the CERF for 
early start-up costs and would appeal for funds in 
Consolidated Appeal (CAP) documents.  Guterres commented that 
if governments have certain expectations of UNHCR in 
responding to IDP needs (e.g., Liberia), they need to commit 
resources to allow UNHCR to meet those expectations. 
 
Comment 
-------- 
 
7.  (U) It remains evident from both the frankness and tone 
of the discussion that the new High Commissioner has the 
skills and intellectual energy to re-focus UNHCR,s work and 
push durable solutions.  UNHCR,s leadership in resolving the 
decades-old Nepal/Bhutan situation will be a test case for 
the kind of agency Guterres wants to create:  an agency that 
can mobilize routinely not only an effective and efficient 
staff response, but the necessary diplomatic and financial 
support from governments to cement real international 
solutions and resolve long-standing refugee situations.  End 
comment. 
 
8. (U)  Acting A/S Greene cleared this cable. 
Cassel