313. Instruction From the Department of State to the Mission in Geneva1
SUBJECT
- Possible Shift in Emphasis in Program of the United Nations High Commissioner for Refugees
The Department appreciates the Mission’s excellent despatch which discusses the role the United States may be expected to play in support of the continuing activities of the office of the United Nations High Commissioner for Refugees (UNHCR).2
The Department believes that the image of United States policy in this connection created by statements of various United States officials quoted in the reference despatch is essentially correct in that it is a reflection of United States awareness of the existence of refugee problems outside Europe, of its interest in seeking solution to those problems, and of United States support of the principle of international responsibility for refugee problems. However, the Mission should discourage any interpretation of these statements as indicating automatic increases in United States support for refugees outside of Europe. Pending review of these problems as called for in the report of the Department’s Task Force on Refugees the Department has desired in prepared public statements of policy only to give recognition to the fact that the problem of older refugees in Europe is nearing solution and, consistent with traditional United States refugee policy, to call attention to the fundamental responsibility of asylum countries for refugees in their territory.
The Department has recently prepared a statement of the Executive Branch position on the continuation of the UNHCR as follows:
“The United States recognizes the principle of asylum for those fleeing from persecution and supports this principle through its own and international programs to assist Free World countries in maintaining liberal policies of asylum and in developing facilities and procedures therefor. It is in the United States interest to continue to join with other countries in accepting international responsibility for refugee problems in the Free World.
[Page 688]“To achieve specific national political and other interests, the United States Escapee Program (USEP) assists new anti-Communist escapees from Soviet bloc countries and from Yugoslavia, and certain escapees from Communist China or the Asian satellites. United States assistance to other refugees, exclusive of Palestine Arab refugees, is generally provided through the programs of the United Nations High Commissioner for Refugees and through the Intergovernmental Committee for European Migration.
“The UNHCR material assistance program was begun in 1955 with the objective of providing permanent solutions for the older groups of Soviet bloc refugees. It has been United States policy progressively to reduce its contributions toward the solution of this problem and where feasible to leave the burden of the residual problem on the countries of asylum. Consistent with progress achieved in the solution of this problem in Europe the Department has regularly reduced its requests to Congress for funds for this purpose. The United States has announced that it is unlikely that it would contribute substantially after 1961 to the solution of the residual European problem in those countries now able to bear the burden themselves.
“The United States also contributes to support UNHCR action in connection with other refugee problems which have arisen since 1955. One such program initiated in 1957 for the re-establishment of Hungarian revolt refugees in the Free World is now virtually completed. Other programs of assistance to Jewish refugees in Europe from the United Arab Republic and to Algerian refugees in Morocco and Tunisia continue. The eventual solution of the Algerian refugee problem is dependent on a basic political solution to the over-all Algerian problem, and the reduction of the refugee problem meanwhile is beyond the control of the United States and the UNHCR. Therefore, United States contributions to the UNHCR for the purpose of providing care and maintenance pending a basic political solution will be required. The level of such assistance should remain relatively constant from year to year, but may possibly increase slightly as the refugee population is augmented by natural increase. Such United States assistance serves vital United States policy objectives by demonstrating United States sympathy and concern for the refugees and the people generally in North Africa.
“In addition to these current programs the UNHCR may become seized of other problems of new refugees falling within his mandate in consequence of the continuing interplay of dynamic political and social forces. Such situations may arise out of the unsettled conditions in Africa south of the Sahara, or in other areas of the world.
“In appraising new refugee emergencies or in reviewing current refugee programs, the United States will determine on the basis of its interests whether United States assistance should be provided or continued [Page 689] and, if so, will decide in the light of existing circumstances whether to arrange for the provision of such aid as may be required through the United States Escapee Program, through bilateral arrangements with the countries of asylum or through an international agency such as the UNHCR. In making this determination, the Department will take into account the advantages from the standpoint of achieving United States objectives which might accrue from providing assistance through USEP or through bilateral arrangements, and will also take into account political and cost advantages which may be gained from providing United States assistance through internationally supported organizations. The channeling of United States aid through the UNHCR, to which the normal contribution does not exceed 33–1/3 percent, offers patent cost advantages.”
Within the context of this policy the United States would not oppose increasing UNHCR attention to refugee problems outside of Europe particularly within the framework of the good offices resolutions. United States support of General Assembly resolutions 1166 (XII), 1167 (XII), 1388 (XIV), 1389 (XIV), 1499 (XV), 1500 (XV), 1501 (XV), 1502 (XV) which deal inter alia with new refugee situations and the good offices function of the UNHCR is consistent with this policy. In considering the extent of its support of any UNHCR new activities which might be proposed the United States will weigh carefully its national political and security interests against the availability of resources as is the case with regard to continuing escapee and refugee programs including those of the UNHCR.
During recent conversations in the Department the High Commissioner indicated that his basic approach to the activities of his Office will be to seek, where possible, to avoid the development or creation of problems. He feels that the identification or recognition of certain refugee situations needlessly creates problems which then must be solved. As an example he cited Algerian refugees in Europe. Certain agencies claim that these Algerians are in fact refugees, as the Algerians in Morocco and Tunisia and as those escapees from Communist-dominated countries, and that they are in need of the protection of the UNHCR. It is the High Commissioner’s view that these refugees are for the most part employed and in satisfactory condition, and that action on his part to recognize them as being within his mandate would merely create a problem and not help the refugees. He further indicated that the involvement of his Office in any refugee situations would follow, among other things, a cautious approach to the government of the country involved and recognition and agreement by that government that UNHCR action on behalf of refugees on its territory would be in the interest of that government. The High Commissioner is also cognizant of the necessity of consulting with members of the Executive Committee in connection with the provision of assistance to new groups of refugees. The UNHCR stated that he was not planning to [Page 690] bring additional groups of refugees within his mandate. If he felt that a given group of refugees should be helped through his Office he would plan to serve as a catalytic agent in obtaining the material support required. This he felt he could do under existing authority of the good offices resolutions.
The Department is in agreement with these views of the High Commissioner on the future work of his Office. It appears, however, that they differ somewhat in emphasis from the attitude reported in the reference despatch that “the new High Commissioner and his chief aides are almost inevitably turning their eyes and their interest beyond Europe to the numerous refugee problems of Asia and Africa, seeking a basis for offering the assistance of the UNHCR and his Office in helping alleviate these problems.” The Department would appreciate receiving comments from the Mission on the possible divergency of views as between the High Commissioner and his chief aides.
The Department’s views on the future of the UNHCR set forth above will be reflected in position papers to be prepared for the United States delegation to the 5th Session of the Executive Committee. The Department would welcome the Mission’s comments on these views and any suggestions the Mission may wish to make with regard to the position to be taken by the United States on the agenda items for the forthcoming session.
- Source: National Archives and Records Administration, RG 59, Central Files 1960–63, 324.8411/4–2461. Official Use Only. Drafted by Robert F. Lent (SCA/ORM) on April 24, cleared by Elmer M. Falk (OIA), and approved by Richard R. Brown (SCA/ORM).↩
- Document 311.↩