STATEMENT
OF
AMBASSADOR
JAMES B. FOLEY
THE
SECRETARY’S SENIOR COORDINATOR
FOR IRAQI REFUGEE ISSUES
U.S. DEPARTMENT
OF STATE
BEFORE
THE
HOUSE FOREIGN AFFAIRS COMMITTEE
SUBCOMMITTEES ON THE MIDDLE EAST AND SOUTH ASIA
AND INTERNATIONAL ORGANIZATIONS, HUMAN RIGHTS,
AND OVERSIGHT
MARCH 11, 2008
Chairman
Ackerman, Chairman Delahunt, and distinguished members of the Committees, it is
an honor to appear before you today to discuss the plight of Iraqi refugees and
what the United States
is doing to meet their humanitarian needs.
I welcome the opportunity to describe the efforts the Administration is
taking to provide humanitarian assistance to displaced Iraqis, both in neighboring
countries of first asylum and for populations inside Iraq. The Administration shares your concern about
the current situation facing Iraqi refugees and internally displaced persons
(IDPs), and is committed to helping improve conditions for them in countries of
first asylum, providing assistance to the neediest individuals, and seeking durable
solutions for all of them. We continue to work closely with host governments in
the region, the United Nations High Commissioner for Refugees (UNHCR), the
International Committee of the Red Cross (ICRC), and non-governmental
organizations (NGOs). In keeping with
both international norms and past experience, it is the primary responsibility
of the international community to provide assistance and protection to refugees
in the region until such time as it is safe for them to return home. At the same time, we are also actively
pursuing resettlement to the United States
for the most vulnerable, including Iraqis who are in danger because of their
close association with U.S.
efforts in Iraq,
who should have this important form of international protection.
I
would first like to touch on our efforts to assist displaced Iraqis, both
inside Iraq
and in other countries in the region.
UNHCR estimates that 4.5 million Iraqis are currently displaced: 2.5
million internally and 2 million in Iraq’s neighboring countries, severely
straining host governments’ ability to provide basic social services. For now, these numbers have leveled off. Jordan began gradually to limit
access to Iraqis at the land border and the international airport in early
2007, and by summer, it had effectively closed its border to Iraqi
asylum-seekers. Syria did much the same in September when it
announced a visa requirement for Iraqis entering Syria. Jordan’s borders remain closed to
Iraqis, with the exception of government officials, business travelers and
others with specific needs or objectives.
The Syrian border is somewhat less strictly regulated; UNHCR estimated
that in December, some 1,500 Iraqis per day were crossing from Iraq to Syria,
with 500 per day moving in the other direction, from Syria
to Iraq, yielding a net
inflow into Syria
of about 1,000 per day. These numbers
represent all categories, including commercial traffic and temporary visitors;
many are probably asylum-seekers, but not all.
There
are no reliable independent estimates of the number of Iraqis in Syria and Jordan. The humanitarian community has not been given
permission by either the Jordanian or Syrian governments to conduct a precise
survey or census of Iraqi refugees and both governments have, at different times,
offered different estimates of Iraqis in their territory. A Norwegian NGO, FAFO,
conducted a survey in Jordan
last year and, after negotiations with the government of Jordan, estimated that 450,000 Iraqis were
present in the country (a decline from the previous estimate of 750,000 Iraqis
in Jordan). Some in the humanitarian community believe
that host governments are using inflated estimates of Iraqis to leverage
increased humanitarian assistance. UN
High Commissioner for Refugees Antonio Guterres recently explained that UNHCR,
having registered 214,000 refugees in Jordan
and Syria
and having developed other sources of information, has sufficient data to
target the neediest refugees for appropriate assistance and protection
programs. As a result, UNHCR is not
focusing on the overall numbers but, correctly, in our view, on how many Iraqis
are in need of assistance and delivering that assistance to them.
Based
largely on estimates provided by the host countries and other general
estimates, UNHCR has estimated the number of Iraqis in countries in the region
as follows: Syria, 1.2 to 1.4 million; Jordan, 450-500,000; Lebanon, 50,000;
Egypt, 20-40,000; Turkey, 5-10,000; Iran, more than 57,000; Gulf States, more
than 200,000. As I will explain below,
we understand that these estimates include many Iraqis who left Saddam
Hussein’s Iraq
prior to 2003. Those living in both Iran and the Gulf States are not recognized as refugees
by host governments, receive no international assistance, and appear to be self-supporting. The majority of Iraqis recognized as refugees
cannot realistically expect a durable solution to their plight other than to
return to Iraq
when circumstances permit. Jordan and Syria, hosting the great majority
of refugees, have emphasized publicly that Iraqis will not be allowed to
resettle permanently in those countries.
Additionally, High Commissioner Guterres recently informed us that he
has received affirmation from both countries that they will not forcibly expel
Iraqis. UNHCR, whose mission includes resettlement of the most vulnerable
refugees to third countries, does not expect to refer to resettlement countries
more than 25,000 applicants in calendar year 2008. It is unclear how Iran
and the Gulf States
will treat the many Iraqi migrants in their countries over the longer
term.
Within
Iraq, the most recently
published survey by the International Organization for Migration (IOM) states
that there are 2.5 million displaced persons, of which 1.3 million were
displaced after the Samarra
al-Askari Mosque bombing of February 2006.
However, new displacements have fallen significantly, from over 14,000
individuals in September 2007 to just a few hundred in December, and that trend
seems to be continuing in the first two months of 2008.
Indeed,
many displacements of persons within Iraq are not the result of the events of
the last several years, but go back to Saddam Hussein’s Arabization and
anti-Kurd campaigns of the 1990’s and before.
It is fair to assume that many of those who have been in displacement
for ten years or more have created stable lives in their new homes, do not need
assistance, and may not want to uproot again and return to their former
homes. In contrast, IOM surveys show
that the majority of post-February 2006 IDPs are in
need of shelter, food, and employment.
Sixty percent say they want to return to their homes (with another 20%
wanting to move to another location), and 20% express a desire to remain in
their current location.
Iraqi
refugees outside of Iraq
and IDPs share many common features.
They left their homes in fear of their lives for largely the same
reasons: sectarian violence, lawlessness, terrorist activity and military
operations. In fleeing, both refugees
and IDPs generally took with them what wealth they could, but many were unable
to sell their homes or other property.
Most refugees and IDPs do not currently have regular work and are forced
to subsist on savings or remittances from family members in Iraq or elsewhere. Many refugees and IDPs find their resources
dwindling, affecting all aspects of their lives, from education and medical
care to the size of the apartment they can rent, to the amount of food that can
be put on the table.
International
organizations and NGOs report that among refugees and IDPs alike, the most
critical problem is increasing impoverishment.
I mention these similarities because at some point in the future,
conditions in Iraq
may become sufficiently safe and stable so that large numbers of refugees and
IDPs will decide to return to their homes.
We cannot predict when those conditions will prevail and are not urging
refugees or IDPs to return to their homes on any particular schedule. Indeed, the decision to return is that of the
refugee and IDP, and they should be able to make that choice voluntarily and
free of duress. In this respect, Iraqi
refugees and IDPs seem relatively well informed about conditions in Iraq
and will base their decisions on a wide range of information. For example, there was a brief upsurge in
returns to Baghdad in November and December
2007, which the Government of Iraq tried to encourage and extend by providing
cash assistance and bus transportation from Damascus.
However, when it became clear that as many as 70% of the approximately
46,000 returning refugees during that period were unable to return to their
homes, and that basic services (shelter, education, health) were still lacking,
the stream of returns soon dwindled.
We
are working closely with our partners to plan for this contingency; High
Commissioner Guterres, during a recent visit to Baghdad, stated that UNHCR would partner with
the Government of Iraq (GOI) to assess the potential for large-scale returns
and the policies and programs necessary to accommodate them. We will work closely with UNHCR, the GOI, and
other current and potential partners to ensure that policies, organizations,
and plans are in place if and when large-scale returns do commence.
In
the meantime, the Department of State and USAID will play a major role in providing
life-sustaining support to refugees and IDPs.
In 2007, State and USAID programmed more than $171 million to assist
displaced Iraqis. PRM’s overall
contribution of $123 million in 2007 funded UNHCR programs in Jordan, Syria,
Lebanon and Iraq; IOM and other IO
programs in Iraq; and NGO operations in Jordan, Syria and Lebanon. 2007 was a building year for refugee
assistance programs; in the previous year, we funded only one NGO to assist
Iraqi refugees, but in the course of 2007, we supported 10 new NGOs and
programmed $18.5 million for health, education, and other life-sustaining
projects. At our encouragement, UNHCR
teamed with UNICEF to issue a $130 million appeal for educational programs for
Iraqi refugees; we quickly contributed $39 million (30%) to the appeal to
ensure that Iraqi children would be able to enroll in school or benefit from
educational programs outside of school.
We also urged UNHCR, WHO and UNICEF to combine their health appeals for
Iraqi refugees into a single joint appeal of $85 million, toward which we
contributed $23 million. Within Iraq, our contributions to ICRC and UNHCR
enabled those organizations to stand up a network of international and local
NGOs in all 18 of Iraq’s
governorates. These interventions should
complement the ongoing efforts of USAID’s Office of U.S. Foreign Disaster
Assistance (OFDA), which has provided more than $250 million in humanitarian
assistance to IDPs and vulnerable host communities since 2003, with
life-sustaining support, including water, sanitation, hygiene, health care,
food and non-food commodities, and livelihood assistance.
Although
refugee and IDP populations have not grown significantly so far in 2008, we
expect the needs of these existing populations to intensify with the passage of
time. As noted earlier, many refugees
and IDPs, especially those displaced after the Samarra mosque bombing in February 2006, fled
without being able to fully liquidate their assets, especially their
homes. While many were able to sustain
themselves and their families for a time in Jordan,
in Syria, in other
neighboring countries, or in new neighborhoods in Iraq, they are inexorably depleting
their resources. Iraqis without
residence permits in Jordan,
Syria, Lebanon, Egypt
and Turkey
are prohibited from working. Most Iraqi
refugees do not have residency permits and while many do work surreptitiously,
their jobs tend to be marginal and poorly paid.
Within Iraq,
IOM estimates that 60% of IDPs are unemployed.
As the resources of Iraqi families shrink, they can no longer afford
vital services: school fees, prescription drugs, clothing, taxi or bus fare, a
varied diet, and even rent (often the biggest single expense). Impoverishment often brings social ills, from
family violence to child labor to prostitution.
As UNHCR and NGOs in the field report, the caseload of vulnerable and
needy Iraqi refugees and IDPs is expanding even as the rate of displacement
falls.
The Administration is thus
grateful that Congress recognized this continuing, growing need and provided
$200 million in emergency funding to the Migration and Refugee Assistance
Account, of which $149.4 million will support Iraq-related humanitarian
programs. In addition, $110 million was
provided in emergency funding to the International Disaster Assistance (IDA)
account, of which $80 million is planned for Iraq assistance. To date, the Department has made $125.9 million of MRA funding available to international
partners for Iraq
programs. We will use much of the remaining funds to support expanded NGO
programming and expect to issue a call for proposals this week. In addition, in January we programmed $20
million in reprogrammed ESF funding to the joint UN health appeal for Iraqi
refugees. Additionally, in January
USAID’s Bureau for Democracy, Conflict, and Humanitarian Assistance (DCHA)
programmed $26 million in IDA funding to five NGO’s delivering services to IDPs
in Iraq. DCHA also
programmed $36 million from P.L. 480 Title II (“Food for Peace”) to the World
Food Program for emergency food packages to refugees in Syria and IDPs in Iraq. Out of the Department's $145.9 million pledged
contributions, PRM will contribute
$95.4 million toward UNHCR’s $261 million 2008 appeal, including $12.4 million
earmarked for health programs; $5 million to World Food Program
operations in Syria; $13 million to the UNICEF and WHO portions of the UN health and
education appeals; and over $32 million to other international
organizations. In total, the USG will contribute
$208 million in humanitarian
assistance for displaced Iraqis in the first half of FY 2008, approximately $37
million more than our total assistance in FY 2007.
These early funding actions have allowed us to front-load support for
the programs of our implementing partners that assist refugees and IDPs, who
usually do not get contributions from other donors until later in the
year. This ensures that life-sustaining
programs can be continued and expanded as necessary without interruption. These efforts, while critical, will not alone
suffice to meet the increasing needs of Iraqi refugees, conflict victims, and
IDPs for the entirety of 2008.
Humanitarian partners have estimated overall 2008 needs of over $900
million. We would be grateful for early
Congressional consideration of the FY 2008 supplemental funding request in
order to support these requirements.
We have also
conducted a very energetic diplomatic program in parallel with and in support
of our monetary contributions to humanitarian assistance and protection. In 2007, the Department of State vigorously
sought to persuade Jordan
and Syria
to create more humanitarian space for Iraqi refugees themselves and for the UN
and NGO agencies trying to deliver assistance.
Former PRM Assistant Secretary Ellen Sauerbrey visited Jordan and Syria
in April, and I followed suit with a visit to Jordan
and Syria
in October. PRM Acting Assistant Secretary Samuel Witten just returned from
consultations with senior leaders in Jordan
and Lebanon
in which he expressed the U.S. Government’s appreciation for the positive
actions by those governments in connection with the displaced Iraqis currently
living in those countries. In February,
Under-Secretary Paula Dobriansky traveled to Baghdad where she met with OFDA field
officers, implementing partners, representatives from the Ministry of
Migration, and a select group of Baghdad IDPs.
We have
augmented our staff and deployed them in the region frequently to support our
embassies. Our efforts have born fruit,
with, for example, Jordan
lifting restrictions that had prevented Iraqi children lacking residency
documentation from attending public school.
Both Jordan and Syria have made firm commitments to High
Commissioner Guterres that they would not arbitrarily expel or refoule Iraqi
refugees, and Lebanon
has permitted all Iraqis registered with UNHCR to remain in the country on
renewable visas. In addition, in October
I visited Baghdad to assist Ambassador Crocker’s
efforts to persuade the Iraqi Government to support its citizens abroad and
take concrete steps to prepare for refugee and IDP returns within Iraq. One of the results of our diplomatic
engagement with Iraq was the
GOI’s commitment to transfer $25 million to Jordan,
Syria and Lebanon to assist Iraqi
refugees. We are urging the GOI to
provide substantially more. The
Department has also actively encouraged other donors to support the
humanitarian needs of displaced Iraqis.
Later this month, I will depart on a trip that will include stops in the
Gulf and in Europe to continue our engagement
with donors (and potential donors).
The
U.S. Refugee Admissions Program (USRAP) is another important aspect of our
response to Iraqi refugee needs in the region.
In February 2007, UNHCR announced its intention to refer 20,000 Iraqis
to resettlement countries during the calendar year, with over half of that
number to the U.S. Refugee Admissions Program (USRAP). At the time UNHCR decided to start referring
Iraqis for resettlement, the U.S. Government had virtually no refugee processing
infrastructure in the two major asylum countries, Syria
and Jordan. Neither country had been a
location where UNHCR and the United States
had collaborated on resettlement operations, and neither UNHCR, the host
countries, the United States
nor any other resettlement country, had in-country staff or facilities in place
to process resettlement requests.
Immediately after UNHCR’s decision to refer cases to the United States,
however, we took the steps needed to establish processing operations in both
countries, hired and trained local and international staff, and prepared
thousands of cases for presentation to adjudicators from the Department of
Homeland Security. Since the expansion
of our program began less than a year ago, the USRAP has received close to 20,000
referrals of Iraqis. The DOS OPE’s have
prepared for interview and DHS/USCIS officers have interviewed over 11,000
individuals.
While
the USRAP receives the majority of its refugee resettlement referrals from
UNHCR, our program has sufficient flexibility to provide access to vulnerable
Iraqis through other mechanisms as well.
The U.S. Embassy in Baghdad began
referring Iraqis associated with the U.S.
efforts in Iraq
to the refugee resettlement program early last year and continues to do
so. We also established a program whereby
Iraqis who worked as direct-hire employees of the U.S. Mission in Iraq or on a full-time basis as interpreters
with the USG or MNF-I have direct access to the USRAP in Egypt and Jordan. Last year, Department of State and DHS staff
conducted a training workshop for NGOs in the region to instruct and empower
them to refer particularly vulnerable cases to the USRAP for
consideration. Last December, PRM and
DHS also established direct access for Iraqi beneficiaries of approved I-130
immigrant visa petitions, both current and non-current. I-130 petitions may be filed by U.S.
citizens or lawful permanent residents on behalf of eligible family
members.
“The Refugee Crisis in Iraq Act,” included in
the FY 2008 Defense Authorization Act and enacted January 28 of this year,
creates new categories of Iraqis who are eligible for direct access to the
USRAP. These include direct-hire
employees of the U.S.,
employees of certain entities receiving U.S.
funds, and employees of a U.S.-based media organization or NGO, as well as
certain family members of those employees and certain individuals with family
members in the U.S. Iraqis who were engaged as Locally Employed
Staff (LES) or who worked on a full-time basis as interpreters with the USG or
MNF-I continue to be eligible for direct access, as they were under the
previous guidelines. Individuals who
believe they meet these criteria may contact our Overseas Processing Entity
(OPE) in Amman and Cairo, operated by the IOM, in order to
initiate the process. The Act also
extends refugee resettlement benefits to special immigrants from Iraq.
In
addition to the new groups being processed pursuant to the recent legislation,
our OPEs are already processing certain individuals who had access to the USRAP
through the previously existing P-2 designation for Iraqi beneficiaries of
approved I-130 petitions. This
encompasses all Iraqis, including members of a religious or minority community
who have close U.S. citizen or lawful permanent resident family members in the
United States who have successfully petitioned for the Iraqi refugee
applicants’ eligibility to immigrate to the United States, and is thus broader
than the group granted direct access to refugee processing based on having
close family members in the U.S. under the Act.
At
present, we are only able to offer direct access to our program in Jordan and Egypt, but we intend to expand this
to other countries in the future. Due to
host government policy or regulations in Syria
and Turkey,
however, we are only able to process individuals referred by UNHCR and
anticipate that we will be unable to offer direct access to the USRAP in those
countries.
This
new legislation also mandates in-country refugee processing for certain
categories of Iraqis associated with the United States. PRM and DHS have already begun processing a
small group of direct-hire Embassy employees and members of their families in Baghdad, and approved refugees should begin to travel to
the United States
in April. PRM, IOM and Embassy Baghdad
staff are also moving forward on establishing a permanent OPE facility in
Baghdad, which will be necessary to provide in-country processing for an
expanded P-2 program for Iraqis. We have
the full support of our Embassy, as well as DHS, to implement this aspect of
the legislation. Indeed, the authority
provided under the law along with the improved security situation give us a
unique opportunity to resettle hitherto unreachable Iraqis in country facing
grave danger because of their employment by or association with the United States.
The
Department of State is committed to reaching the Administration’s goal of
admitting 12,000 Iraqi refugees during the current fiscal year. Monthly arrivals so far this fiscal year are
low, and we have a challenging road ahead of us, but we are doing everything
possible to ensure success. Our fiscal
year arrivals through March 6 are 2,023.
Monthly arrivals will fluctuate and we never anticipated that we would
admit 1,000 Iraqis per month; the goal is for the fiscal year as a whole. Expanding processing for Iraqis involved many
actors beefing up their capacity throughout the region: UNHCR, our OPEs, and the State Department. We are now able to prepare large numbers of
referrals and support the large DHS/USCIS circuit rides that will produce
substantially higher numbers of monthly arrivals later in the fiscal year. One reason our arrivals to date have remained
low was that DHS was not permitted to adjudicate cases in Damascus for five months last year. The Syrian Government allowed DHS to resume
interviews in November 2007 after an agreement was reached following my trip to
Damascus. We
appreciated this decision, and accepted a framework that places significantly
higher burdens on UNHCR. We indeed
commend UNHCR for stepping forward to help us resume refugee processing in Syria. Nonetheless the preceding hiatus reduced the
pool of approved Iraqis who would now be moving to the U.S. had they been interviewed
according to schedule.
In
order to reach our goal by September 30, we have a robust OPE and DHS/USCIS
interview schedule for the second and third quarters. USCIS officers currently in the region will
conclude interviews of over 8,400 Iraqis by the end of March, and we expect
USCIS to interview another 8,000 Iraqis by the end of June. However, success will depend on continued and
even improved cooperation among many actors.
It is important for agencies to complete the necessary security checks on
Iraqi refugees in a thorough but expeditious manner and to approve Iraqis who
are eligible for exemption from the material support bar expeditiously. Of particular concern are the challenges we
face in expanding the capacity of our Overseas Processing Entity, the
International Organization for Migration, in Damascus.
The framework agreed upon to restore processing in Syria has allowed DHS to resume
interviews, but the limits that the Syrian Government continues to place on OPE
staffing constrict both the size of the caseload and the speed with which it
can be processed.
I
have often been asked why we do not simply shift our efforts to other countries
since we face so many challenges in Syria. We have indeed expanded refugee processing in
Jordan, Turkey, Egypt,
and Lebanon
and will continue maximum processing of individuals referred to us by UNHCR, as
well as those who are eligible for direct access consideration. However, registrations, while continuing in Jordan,
have slowed considerably. Only about
52,000 Iraqis have currently registered for UNHCR protection in Jordan, and many of them are not pursuing
resettlement in the United
States or any other country. As a result, while we are still processing
for resettlement thousands of Iraqis in Jordan,
the future potential is much greater in Syria, where the logistical
challenges are also greater. In summary,
greater cooperation by the Syrian government is essential for the effective
processing of the greatest number of the most vulnerable Iraqis in need of
durable solutions.
Another
challenge we face is that applicants often apply when they are still undecided
about the decision to resettle permanently.
Iraqis drop out at various stages in the process, including individuals
who simply do not appear for their pre-screening appointment, their USCIS
interview or their medical appointment.
In addition, there are a certain number of individuals who have been
referred to us by UNHCR whom we cannot locate, either because they have moved
or even returned to Iraq. And finally, there are a number of approved
Iraqi refugees who do not appear for their flights to the United States, either because they have not
completed the exit clearance process in their country of first asylum or
because they have changed their minds about permanent resettlement to the United States. In sum, despite our outreach and robust
cooperation with UNHCR and host government authorities, many displaced Iraqis
who could pursue some or all of the steps toward resettlement either do not
make themselves available for the crucial steps in our process or ultimately choose
not to be resettled.
Given
the large numbers of Iraqi refugees, the U.S. and other third country
resettlement programs will play an important role in the international
community’s overall effort to meet Iraqi refugee needs. However, only a small percentage of refugees
worldwide are referred for third country resettlement by UNHCR. This statistic is true with respect to
displaced Iraqis in the same way it is the case in displacement situations
around the world. As a result, while
offering resettlement as robustly as we can in often difficult operating
environments, our preponderant responsibility is to provide protection and
assistance to refugees in their countries of first asylum.
Chairman
Ackerman and Chairman Delahunt, we appreciate your interest in Iraqi refugee
issues and look forward to working closely with you as we continue to expand
protection for Iraqi refugees, conflict victims, and IDPs, and ensure that the
vulnerable among them receive assistance, access to social services, and, for
the most vulnerable of all, the opportunity to resettle to a third
country. Thank you for the opportunity
to address the Committee. This concludes
my testimony. I would be happy to answer
any questions you may have.