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Viewing cable 09KINSHASA618, POSITIVE TREND: CONGOLESE REFUGEES IN

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Reference ID Created Released Classification Origin
09KINSHASA618 2009-06-29 15:53 2011-08-26 00:00 UNCLASSIFIED Embassy Kinshasa
VZCZCXRO1621
PP RUEHBZ RUEHDU RUEHGI RUEHJO RUEHMR RUEHRN
DE RUEHKI #0618/01 1801553
ZNR UUUUU ZZH
P 291553Z JUN 09
FM AMEMBASSY KINSHASA
TO RUEHC/SECSTATE WASHDC PRIORITY 9810
INFO RUEHXR/RWANDA COLLECTIVE
RUCNSAD/SOUTHERN AF DEVELOPMENT COMMUNITY COLLECTIVE
RUEAIIA/CIA WASHDC
RHEFDIA/DIA WASHDC
RHMFISS/HQ USEUCOM VAIHINGEN GE
RUZEJAA/JAC MOLESWORTH RAF MOLESWORTH UK
UNCLAS SECTION 01 OF 04 KINSHASA 000618 
 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: PREF PREL PGOV KTIP ZA CG
SUBJECT:    POSITIVE TREND: CONGOLESE REFUGEES IN 
      ZAMBIA RETURNING TO SOUTHEASTERN KATANGA 
 
1.  (SBU) Summary:  PRM desk officer and poloff visited the 
Congolese refugee camps in northeast Zambia, escorted a return 
convoy of 511 refugees to Katanga, and visited refugee return and 
reintegration projects June 11-17.  The government of Zambia (GRZ) 
and the Office of the UN High Commissioner for Refugees (UNHCR) have 
increased their efforts to persuade Congolese refugees to return 
home.  Depending on actual repatriation figures this year and in 
response to GRZ demands, UNHCR plans to consolidate Mwange and Kala 
refugee camps in October 2010.  UNHCR and partners monitor the camps 
to ensure that basic standards of care and maintenance are met and 
have organized a system to move refugees from camp to home.  A key 
concern for returning Congolese refugees is access to education and 
health services.  The GRZ is increasing its efforts to persuade 
refugees to return to the DRC.  The significant challenge in the 
next year will be how the GDRC and GRZ cooperate to repatriate the 
remaining refugees in the Zambian camps.  End Summary. 
 
2.  (U) After June 10 Lusaka meetings with the World Food Program 
(WFP), International Organization for Migration (IOM), and the 
Government of Zambia refugee agency, PRM desk officer and Kinshasa 
poloff visited refugee camps in northeast Zambia which currently 
host 24,600 Congolese refugees.  Following the camp visits, PRM 
deskoff and poloff accompanied a convoy of 511 refugees June 12-13 
to the Zambian port of Mpulungu and boarded the "S.S. Liemba" for 
the June 13-14 voyage to the Congolese port of Moba.  PRM deskoff 
and poloff visited UNHCR and NGO refugee reintegration projects in 
Moba June 15-17 and monitored the situation of recent returnees and 
receiving communities. 
 
3.  (SBU) Most of the refugees fled armed conflict in the DRC in 
2000 and 2001.  Amid spontaneous returns, UNHCR began a facilitated 
repatriation program in May 2007 in partnership with IOM.  In the 
first year, UNHCR facilitated the return of 7,900 refugees to the 
DRC; in 2008, 9,700 refugees; for 2009, the UNHCR plans to 
repatriate 18,500 Congolese refugees to the DRC.  However, planning 
figures are based on refugee intention surveys and actual 
registrations for return consistently fall short.  The 2009 
repatriation began on May 9 and 3,359 people had returned in six 
convoys as of June.  It is unclear if actual returns will reach 
planning figures, but enhanced UNHCR, Government of Zambia and donor 
efforts to "persuade" refugees to return appear to be resulting in 
increased repatriation. 
 
Persuasion 
---------- 
 
4.  (SBU) In 2009 UNHCR and NGO partners have stepped up 
repatriation efforts.  According to UNHCR, there are periodic 
cross-border planning meetings during which all technical staff come 
together to negotiate details of the return operation.  They have 
facilitated both "go and see" and "come and tell" visits by which 
refugees and recent returnees exchange information about conditions 
in areas of return.  DRC officials have also participated in "come 
and tell" visits to encourage their compatriots to return.  As 
further enticement, UNHCR has added a bicycle and an allotment of 
corrugated sheet metal to the return package.  UNHCR and the 
Government of Zambia have also added messaging that the facilitated 
repatriation program will remain open for a limited time. 
 
5.  (SBU) The discussion has shifted recently from refugees 
protesting return to questions regarding specific details of the 
process and the availability of services.  The refugees are in 
regular communication with returnees and have concerns based on the 
stories they are hearing.  According to Kala camp refugees who met 
with PRM Desk Officer and poloff June 12, their main concerns are: 
 
-- security of belongings en route as they have had news of previous 
theft and breakage 
 
-- availability of anti-retroviral drugs (ARV's) and other essential 
medicines upon return 
 
-- repatriation package is not all available at one time 
 
-- food ration is only three months 
 
-- only families of three or more receive bicycles and roofing 
 
(Note:  UNHCR on both sides of the border is trying to address 
refugee concerns.   However, the level of social services in the 
camps far exceeds that in areas of return and refugees in the camps 
may enjoy a relatively higher quality of life.  End note.) 
 
Camp Consolidation 
------------------ 
 
KINSHASA 00000618  002 OF 004 
 
 
 
6.  (SBU) Depending on actual repatriation figures in 2009 and in 
accordance with GRZ demands, UNHCR plans to consolidate Mwange and 
Kala refugee camps in October 2010.  The GRZ is planning to turn 
Mwange into a youth programs facility.  The GRZ has shown little 
interest in supporting formal local integration of residual DRC 
refugees.  (Note:  Jacob Mphepo, the Zambian Commissioner for 
Refugees, explained GRZ's intentions during a June 10 meeting with 
PRM Desk Officer, poloff, and UNHCR.  The GRZ position on residual 
refugees in consistent with its resistance to integrating residual 
Angolan refugee populations in the west.  End note.) 
 
Camp Care and Maintenance 
------------------------- 
 
7.  (SBU) While repatriation is the priority, UNHCR and partners 
ensure that basic camp care and maintenance standards are met.  Kala 
is a model camp in its well-organized design and the ongoing 
provision of basic services.  (Note:  CDC recently gave the health 
services in Kala camp an A+ -- AHA is the implementing partner.  End 
note.)  The well-run health center displays organized record keeping 
and a demonstrated knowledge of public health, routine medical care, 
and emergency procedures.  The health center staff disseminates 
critical preventative care messages and ensures early reporting of 
medical conditions through a network of community health agents. 
 
8.  (U) In addition to health care, there is an adequate supply of 
clean water in the camp as well as primary education and community 
service activities.  Refugees have access to 18 liters of water per 
person per day.  Lines at tap stands are not long and usage 
monitoring systems are in place.  The water is tested regularly with 
most cases of water-borne disease traced to storage practices. 
Refugees are engaged in community service activities, organized by 
World Vision, as well as small entrepreneurial endeavors. 
 
9.  (SBU) The visit to Mwange camp revealed some problems with the 
health services, which received a C+ rating from CDC.  While the 
first line staff was at a training seminar with a UNHCR doctor, 
there was no functioning medical backup system in place.  A refugee 
health worker had just treated diarrhea in a small baby with malaria 
medicine without administering a rapid diagnostic test.  (Note: 
Poloff asked that the child be tested when the lab technician 
appeared; the test was negative for malaria.  End note.)  The staff 
was unable to explain the health care system and appeared much less 
engaged than counterparts in Kala.  UNHCR has reportedly switched 
health partners in recent months with the hope of improvement but it 
is not evident to date.  According to UNHCR, staff exchanges between 
the Kala and Mwange camps are planned. 
 
10.  (U) In both camps it was common to see one to three small solar 
panels in the yard or perched on thatched roofs.  Refugees reported 
buying the panels in Lusaka for $30 per panel.  The panels are used 
to charge cell phones, play radios, and light small households. 
Some users reportedly generate income by providing charging services 
for a fee and others run small "movie theatres."  The panels appear 
to be affordable, durable, and effective.  Also notable in the camps 
is the widespread use of fuel efficient adobe-like stove technology 
(a wood-saving alternative to the usual three-rock fire). 
 
11.  (SBU) The WFP has been operating at 75% of the full ration 
since January 2009 (about 1600 calories per day).  WFP and camp 
health providers are concerned that malnutrition rates will soon 
rise.  Without contributions WFP expects a further cut in July.  WFP 
also argued that funding in the next one-two months would enable it 
to take advantage of the currently low price of maize on the local 
market. 
 
Repatriation Process 
-------------------- 
 
12.  (SBU) The repatriation process appears to run efficiently. 
This is partly due to the UNHCR-led, weekly team meetings during, 
which all partners assess the most recent convoy and plan the next 
one.  When possible, refugees prefer to return via ship because it 
allegedly cuts down on transport time over difficult roads and the 
baggage allowance is slightly higher. 
 
13.  (U) UNHCR, IOM and partners have an organized system to bring 
refugees from camp to home.  Refugees first gathered at the 
departure center in the camp for out processing and baggage check. 
Each carried a small amount of fragile and essential items with them 
while stocks of grain, household items, bicycles, and doors and 
windows (limited to 70kg per person) were loaded onto large trucks. 
Refugees were provided a warm meal at night and high energy 
biscuits.  There were two rest stops en route from the camp to port. 
 The facilities were maintained by the local community.  Practices 
 
KINSHASA 00000618  003 OF 004 
 
 
to ensure safety and dignity were respected: for example, women are 
not allowed to travel past 32 weeks of pregnancy. 
 
14.  (U) On the vessel Liemba, there was enough room for 500 
passengers to sit comfortably. (Note:  PRM Desk Officer and poloff 
noted that increasing refugee numbers on the ship to 600 may create 
overcrowding.  End note.)  Ship staff prepared dinner and breakfast 
for all on board.  There were toilet and bathing facilities.  Also, 
there were a sufficient number of life vests, floatation boards and 
two emergency boats.  However, safety instructions were cursory and 
procedures complicated. 
 
15.  Following a welcome reception by local authorities upon arrival 
in Moba, the returnees disembarked quickly to board trucks from the 
port to the transit center.  At the transit center returnees went 
through an orderly in-screening process, received a meal, and were 
allocated a place in a large tent.  Those from the immediate area 
returned home that day.  However, most returnees in the convoy faced 
a one to two day follow-on road journey before reaching their final 
destination, ironically close to the Zambian border.  It appeared 
that the length of repatriation journeys to Moba could be reduced to 
two-three days if an overland route were taken.  UNHCR shared our 
concern and told us that it is planning to explore overland 
possibilities.   UNHCR informed us that a key bridge is out - a fix 
that could be a cost-saving alternative to the current routing, 
reducing the number of days in a return convoy. 
 
Return and Reintegration Activities 
----------------------------------- 
 
16.  (SBU) Access to adequate health services is a key concern for 
returning refugees.  In a June 16 visit to Moba Hospital, PRM desk 
officer and poloff noted that hospital services were poor despite 
recent Taft Fund rehabilitation.  Indicative of local 
government-provided social services, hospital employees do not 
receive salaries.  The head nurse explained that at the end of each 
month staff collected all "receipts" and divided up the profits as 
their salaries.  Considering the size of Moba territory, the 
hospital was quite empty.  UNHCR pays returnee health bills for six 
months.  In another example of the dysfunctional health care system, 
three new ambulances, granted by Katanga provincial authorities, 
were parked idle in front of the Moba hospital.  The territorial 
administration has not provided any fuel.  The hospital receives 
patients from hundreds of kilometers away, sometimes arriving on the 
back of a bicycle. 
 
17.  (SBU) HIV/AIDS patients have access to ARV's at six different 
health centers/hospitals in Tanganyika District.  However, the long 
distances patients must travel and poor health service provision 
leaves sustainable, long term ARV access in doubt. 
 
Education access 
---------------- 
 
18.  (U) Access to primary education is also an important concern 
for returnees.  UNHCR covers returnees' school fees for the first 
six months, after which the families become responsible.  UNHCR and 
partners are building decent school structures throughout the 
territory, but costs are prohibitively expensive and the quality 
questionable. 
 
19.  (SBU) A Moba teacher explained that about half of a starting 
class has usually dropped out by the end of the school year due to 
the inability to pay the $2 per month school fees.  School fees, 
however, are the only way teachers get paid as the provincial 
Ministry of Education is not paying salaries.  In addition, in some 
cases students are obliged to tend the principal's and teachers' 
fields. (Note: This may constitute forced child labor.  End note.) 
 
 
20.  (U) WFP appears locked into the three month food ration for 
returnees due to competing regional needs and global shortfalls. 
Nevertheless, the refugees fare quite well and the disparity with 
the receiving community is evident.  Community-based efforts to 
address return are a priority to mitigate potential conflict 
resident-returnee. 
 
21.  (SBU) UNHCR works with six NGO partners in the sectors of 
protection (ASADHO), health (AHA), logistics (GTZ), education 
(ADRA), livelihoods-creation (ACTED), and communication (Search for 
Common Ground).  PRM partner projects in Katanga include livelihoods 
promotion (Catholic Relief Services and Food for the Hungry), mental 
health (Center for Victims of Torture), and communication (Search 
for Common Ground).  PRM Desk Officer and poloff visited different 
project sites in Moba territory June 15-17.  Most activities are 
running on schedule, although there have been some delays.  It 
 
KINSHASA 00000618  004 OF 004 
 
 
appears critical that sufficient management training and 
distribution of program materials take place earlier in the project 
period than is the current practice.  As it is, actual income 
generating activities are starting late in the project cycle 
allowing little time to monitor impact and modify processes 
accordingly. 
 
22.  (U) Of special note, CRS's non-food item (NFI) fairs using 
vouchers appear to have the most concrete impact on the 
beneficiaries and receiving communities.  Beneficiaries get what 
they need and the local economy profits from the direct injection of 
cash.  CRS's seed and tool fairs have a similar economic impact on 
local growers who are able to sell surplus seeds for profit. 
 
22.  (SBU) Coordination meetings take place regularly among UNHCR 
and non-UNHCR partners.  Relations between NGO's and UNHCR are 
reportedly good with NGO's grateful for UNHCR support with logistics 
on occasion.  Relations with territorial authorities are also 
reportedly good though it appears NGO's mainly appreciate their lack 
of obstruction rather than any sort of productive cooperation. 
Although most of the programs UNHCR and PRM support are 
accomplishing their short-term objectives, in almost all cases the 
lasting impact is questionable as the GDRC and development partners 
are doing little to ensure the long-term provision of infrastructure 
and social services in the region. 
 
23.  (SBU) Comment:  The visit confirmed many of the Congolese 
refugees' reservations about repatriation as valid.  More needs to 
be done to assuage the refugees in the camps that UNHCR is indeed 
addressing their concerns.  It is evident that the refugees' welcome 
in Zambia is wearing out as the GRZ becomes more vocal in their 
persuasion for refugee return.  However, it is encouraging to see 
that the GDRC and GRZ are communicating well and have active 
participation in the repatriation process via their representatives 
in their respective national refugee agencies.  The significant 
challenge next year will be how the GDRC and GRZ cooperate to 
repatriate the remaining refugees in the Zambian camps.  End 
Comment. 
 
24.  (SBU) Embassy Lusaka has/has cleared this cable. 
 
BROCK