CANADA'SREFUGE PERIODICAL ON REFUGEES Vol. 2, No. 4 April, 1983

Defining Refugees by Howard Adelman

The nomenclature applied to refugees is Bengal within India they are referred to modem concept of refugee emerges in an very confusing. Lists of refugees include as refugees. If a million Ghanians are ex- international context in which the world Canadian citizens who have been pelled from Nigeria and return to their is divided up into nation-states such that established for 35 years with a proper home country, they are referred to as everyone is deemed to belong to one legal status in their adopted country. But refugees. In ordinary language, anyone nationality or another (though not in world refugee surveys they are still uprooted because of civil disorder or, necessarily only to one), and members of counted as refugees. It is poor taxonomy sometimes, even natural disaster is refer- that nationality enjoy the protection of a that does not provide a criterion for ter- red to as a refugee. But in international specific political state. minating refugee status. law none of these cases qualify the The narrowest legal definition of refugee Refugees are uprooted people whose uprooted people for refugee status. The is contained in the United Nations Con- status as refugees ends when they Muslims were given citizenship by India vention Relating to the Status of and India sent in the army to provide become re-rooted; that is, when the state Refugees (July 28, 1951) and the subse- protection. The returnees to Ghana have in which they live guarantees their legal quent Protocol Uanuary 31, 1967). Such rights, and when they regard the nation- their own country to protect them from refugees must have a nationality and ality of that state as their own even persecution and to provide material sup- lack the protection of their country of though they may have another nationali- port. habitual residence (there is no necessary ty. For example, Estonians who are 'The main feature of refugee status is requirement that that country be the refugees from the Russian takeover of that refugees do not enjoy the protection individual's country of nationality), but their homeland who have become Cana- of any government, either because they they must be unwilling or unable to avail dian citizens and nationals do not are, as stateless persons, unable or, hav- themselves of the protection of that state thereby surrender their Estonian na- ing a nationality, unwilling for political by returning to it. The definiton is rather tionality, but they do surrender any reasons to avail themselves of the protec- status as refugees. tion of their country of origin."l The (Continued on p. 3) In addition to time boundaries for the beginning and termination of refugee status, there must also be spatial dif- ALSO FEATURED IN THIS ISSUE ...... ferentiations among the various types of refugees. This is another type of confu- sion. The difference between Convention QUEBEC'S UNACCOMPANIED MINORS PROGRAMS refugees and non-Convention refugees, between refugees within a country and by John Forrester ...... 4 refugees outside, are muddled because they are all simply called refugees. I THE INDOCHINESE REFUGEES IN SWEDEN ...... 10 If Muslims flee the state of Assam to REFUGE Canadian News c/o Refugee Documentation Project, York University, 4700 Keele Street, The Canadian Jesuit Missions have an- Project (UBC), the World Federation for Downsview, Ontario M3/ 2R6 nounced the donation of Rs. 10,000 for Mental Health and the Canadian Mental relief work among Bengali refugees in Health Association. For further informa- Assam, India. tion please contact Morton Beiser, M.D., Editor: *** Howard Adelman Room 2C7, 2255 Wesbrook Mall, New special measures will allow Iranian University of British Columbia, Van- Managing Editor: couver, B.C ., V6T 2A1 Caroline Stephens visitors and Minister's Permit Holders in Canada to apply for permanent * * * Editorial Board: residence without leaving the country. Employment and Immigration Minister Douglas Cohen, Montreal Lloyd Axworthy announced on Claudio Duran, Toronto About half of the 2,000 Iranians expected to benefit from these measures are February 2, 1983 that persons receiving Arie van Eek, Burlington Unemployment Insurance Benefits will Donald Ferguson, Toronto students whose funding has been cancell- ed by the Iranian government. 'Many of be allowed to take full-time language James Hathaway, Moncton training if the training is required to ob- Michael Pitman, Toronto these students have had their passport renewals denied, and fear reprisals or tain employment. The new policy ap- Linda Weigl, Regina even death if they return to their plies equally to all unemployed Cana- Typesetting and Layout: homeland," Canada's Employment and dians who need language training to find Publications Department, Immigration minister said. work. Benefits will be provided durinrr York University training and for up to six weeks follow: Iranian visitors, students and Minister's ing the courses while employment is Permit Holders, will be allowed to apply Refuge is dedicated to encouraging assistance to sought. refugees, by providing a forum for sharing for landing if they have relatives here information and opinion on Canadian and who will assist them or if they have been It is expected that about 15.000 Cana- international issues pertaining to refugees. It is dians could qualify under the.new policy published five times a year, in October, December, here twelve months and can demonstrate February, April and June. It is a non-profit, their ability to settle in Canada suc- and that about 5,000 persons a year will independent periodical supported by grants cessfully. take advantage of the change, which will from the Canadian Foundation for Refugees, cost about $2 million annually. Operation Lifeline, and the Canada Employ- Landing would be granted by Order in ment and Immigration Commission; by private Council from within Canada. As perma- Language training under the National donations; and by subscription payments of $10 Training Act is provided to immigrants, a year. It is a forum for discussion, and the views nent residents, these Iranians could apply expressed do not necessarily reflect those of its to sponsor their dependants in Iran, and refugees and Native persons who are not funders, staff or Editorial Board. thus meet the goal of reunifying families. fluent in either official language. Cana- All material in RcYu,yc may be rcproduccd dians moving from one province to without permission unless copyrighted or another are also eligible when lack of otherwise indicated. Crrd~tshould hc givrn to the author or source if namcd. fluency in one of the official languages Resettlement: prevents them from finding employ- Indochinese in Transition Logo design: ment. Prior to this announcement, Dreadnaught Cooperative Inc., A symposium on aspects of refugee however. Canadians who did not move resettlement will be held at the Universi- Toronto from one province to another were not ty of British Columbia, July 15 - 18, entitled to collect unemployment in- Second Class Mail Rcgislration No. 5512 1983. The symposium is being co- surance while attending full-time lSSN0229-5113 sponsored by the Refugee Resettlement language training classes.

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mitment entailing no change in present contribute financially to the United Na- Letters Canadian law or practice. tions Voluntary Fund for Victims of Tor- The United Nations has also created the ture. canadafs-contribution to the Fund To the Editor: Voluntary Fund for Victims of Torture. might encourage other members of the United Nations to contribute. This I was pleased that The Honourable A General Assembly resolution was passed urging members of the United would be consistent with the policy Charles Lapointe, Minister of State (Ex- against torture of the Government of ternal Relations) announced that Canada Nations to contribute generously to the Fund. Canada has voted in favour of this Canada and with the resolution in the believes that it is important that the in- General Assembly calling for financial ternational community provide itself resolution but has not yet contributed any money to the Fund. Denmark, Nor- contributions which the Canadian with the legal instruments necessary for government supported. The effective the effective suppression of the practice way, The Netherlands, Sweden, Finland and Cyprus have contributed to date. suppression of the practice of torture in of torture in the world. ("Canada Makes the world needs more than a moral com- Unilateral Declaration Against Torture" A moral commitment by the Canadian mitment from the Canadian govern- Refuge, Volume 2, No. 3. February, government against torture is important ment. 1983) The Minister further announced but a financial commitment is even more Michael S. Schelm that Canada has made a unilateral important. I would ask the Honourable Vice-president declaration against torture in the United Minister to use his good offices to en- Canadian Section (Anglophone) Nations which constitutes a moral com- courage the Canadian govemment to Amnesty International Defining Refugees (cont'd from p. 1) narrow because the individuals have to Types of Refugees establish that they are potential inten- tional victims and that the unwillingness to return is motivated by a well-founded fear of persecution for reasons of race, Refugees religion, nationality, membership of a particular social group or political opi- Uprooted Lack State Protection nion. In other words, they not only have a nationality and lack a state to provide In-homeland protection for them, but have reason to believe that the state currently in charge I (1)UN Convention (2) OAU Convention of their homeland will not provide pro- - potential intended victims - unintended victims of war tection if they return to its jurisdictional or civil disorder boundaries. The Organization of African Unity on September 10, 1969, adopted a wider I definition, but restricted its application I I 1 to Africa. Refugees did not have to (1)Uprooted persons within (2) Uprooted persons with (3) Uprooted persons who establish that they had reason to believe boundaries of homeland landed status within a state have legal status in a state they were intended victims of persecu- who remain stateless which is unable to provide which does not govern the tion. They could be passive victims and protection territory in which they simply be outside the country of origin live or nationality, "owing to external aggres- sion, occupation, foreign domination or events seriously disturbing public order in either part of the whole of his country There may be inhomeland refugees. state which does not or cannot govern of origin or nationality." The OAU Con- These are individuals who have been the homeland in which they live. vention, however, makes one very im- uprooted but still live within their The taxonomy illustrated in the above portant requirement. The individual national homeland, but that national chart reveals that all refugees have two must not only be outside hidher na- homeland is governed by a state which is elements in common - they have been tional homeland or state of origin, but unwilling to guarantee the individual the uprooted and they lack the full legal must be seeking a refuge to establish a full protection accorded by the law to its protection a state would owe its peaceful and civil life. Individuals out- citizens. In the case of the Palestinians citizens. They differ in their current side their national homeland or state of uprooted in the 1947-48 war now living location (ex-homeland or in-homeland) origin "for the purpose of fomenting in Gaza, though in their homeland, they and the reasons for lacking protection: subversion from outside" are not are stateless persons who cannot count refugees. on or are unwilling to count on the full Ex-homeland: protection of the State currently controll- (1)well-founded fear of persecution by In sum, legal refugees are those who lack ing that part of their homeland. the state which is supposed to provide both a national homeland and a legal protection; state to provide protection. There are But the state may be willing but unable two types: intentional victims and to apply such protection. In the case of (2) civil disorder or war; unintentional victims. Convention the Bengalis in Assarn, it is the inability refugees who have a well-founded fear of of the state to provide protection which In-homeland: persecution are intentional victims of a makes them refugees. (3) stateless; lack of protection. Humanitarian There is a third type of in-homeland (4) state lacks the adequate ability to refugees are unintended victims of civil refugee. They were uprooted from part provide protection; disorder cr war, but lose that status if of their homeland, live in another part, (5) state to which they are members does they seek to foment conflict rather than but the state governing that part of their not govern their homeland. seek a new homeland. homeland is not the state whose citizen- ship they enjoy. In other words, these in- But there are other refugees who do not Hopefully, this taxonomy can be tested fit into either of these legal conventions. dividuals are not stateless nor do they live outside their homeland, but the state to see if it clarifies the conception of Convention refugees, whether potential refugees. Certainly those who have been intended victims or passive victims of of which they are members (e.g.Jordan) and the homeland in which they live (the re-rooted and acquired legal status in conflict, share two characteristic another state which accepts responsibi- features: they are outside their homeland West Bank) do not coincide. The state to which they belong cannot exercise its lity for their protection should not be and they do not enjoy membership in a called refugees. state which takes responsibility for their protective functions over that part of protection. The term refugee, however, their homeland. may be applied to individuals who are In sum, the in-homeland refugees either not outside their homeland. are stateless or they are members of a - Refugee Students in the Third World by Paul McCarthy It has been said that if a Third World murder are not uncommon. quarters in Geneva, took on the task of government wishes to maintain its grip trying to mobilize the resources of the on power, it must ensure the happiness For those student activists who are lucky Canadian academic communitv in an ef- of two sectors of the population: the enough to avoid imprisonment during fective response to the problem of stu- soldiers and the students. Military coups government crackdowns, the only path dent refugees. WUSC is actively attempt- are, of course, dismayingly com- open to them is self-imposed exile in a ing to open up educational opportunities monplace. Student-instigated rebellions neutral country. Since they are fleeing for student refugees at universities and have also led to the overthrow of various from a well-founded fear of persecution, community colleges throughout the Third World regimes, as happened in these students, once outside their country. Once such opportunties do Thailand in the early 1970's. Indeed, homeland, are bona fide refugees. become available, WUSC facilitates the university campuses in most developing private sponsorship of qualified student nations have traditionally served as It is impossible to estimate how many refugees thereby allowing them to come hotbeds of social unrest. The com- student refugees there are in the world to Canada as landed immigrants and paratively complacent Canadian student today. Indeed, no statistics are kept. The resume their studies. Working in close populace would no doubt be amazed at sad fact of the matter is: once a refugee, cooperation with the Ministry of Im- the level of political activity which exists no longer a student. Most educational in- migration, the UNHCR and Canadian among the student bodies of most of the stitutions in the usual countries of first postsecondary institutions, WUSC has universities in the Third World. But the asylum, however generous in their ef- been able to sponsor and place twenty- price which the academic communities of forts to accomodate refugee students, are five student refugees, the majority of the Third World have paid for this hopelessly overcrowded. Moreover, whom are African, at universities and political and social awareness has been a there is often a resentment of refugee colleges from Halifax to Victoria; and high one. As a precautionary first step, students on the part of local students WUSC hopes to make the Canadian many Third World governments shut when they are given places at institutions response to the pllght of student refugees down all postsecondary institutions at in their country of first asylum. increasingly effective. the first indication of any impending civil strife. In some countries, such as El The international response to the plight In the long run, it is important to bear in Salvador, universities and technical in- of student refugees has been largely inef- mind that this kind of refugee support stitutes have been closed for years. The fective. While the UNHCR, principally work is not merely a humanitarian effort consequences are much more serious through its Education and Counselling - it is also a potentially important fac- when a student body shakes but cannot Section, has made laudable attempts at tor in the long-term development pro- topple a regime, as happened in Zaire in helping student refugees continue their spects of the developing countries. the late 1970's and Uganda last year. studies, it cannot possibly hope to assist Government retribution against student all of those in need. For further information on the WUSC activists who do not toe the government Until recently, all such efforts in Canada Student Refugee Programme, you are line is typically swift and merciless. have taken place on a strictly ad hoc invited to contact: Amnesty International reports that basis. In 1979 the World University Ser- thousands of students and faculty have vice of Canada (WUSC), the Canadian World University Senrice of Canada been illegally detained or imprisoned in affiliate of an international non- P.O. Box 3000, Station ''C" Third World countries. Torture and government organization with head- Ottawa, Ontario KIY 4M8

Vancouver Coalition with World Refugees

The Vancouver Coalition with World 3. To help send aid to refugee camps in B.C. For more information, feel free to Refugees is a group of citizens who are foreign countries; phone: volunteering their time and efforts to 4. To collect and spread information help refugees. about refugees and urge our government Annie Krasker 734-2149 Founded in 1982, the Coalition seeks to to do what it can to help. Orval Chapman 2782543 bring together churches, agencies, ser- Dr. John Conway 224-3471 vice clubs and individuals to undertake There are no fees or dues required to be a (Chairman) the following tasks: member of the Coalition. A person can Vancouver Coalition with World be as active a member as he/she desires. 1. To help organize sponsorship groups Refugees to bring refugees to Canada; Meetings take place on the fourth 1410 West 12th Ave. Vancouver, B.C. 2. To assist newly-arrived refugees Wednesday of every month at 7:30 p.m. V6R 1M8 already living in the Vancouver area; at 1410 West 12th Avenue, Vancouver, (604)736-1613 - - ' Quebec's Unaccompanied Minors Programs by John Forrester

One of the lesser known aspects of the resettlement program for Southeast Asian refugees has been the reception and fostering of almost 500 young people by Canadian families. Quebec in particular saw a considerable influx of these special cases through 1980 and 1981, and even though the flow has dwindled to a barely perceptible trickle in recent months (for a variety of causes), some youngsters do continue to be received and placed with families or individuals.

Children's Centres Established in tribute to solving some of the problems cultural background, it appeared that all Southeast Asia arising from such heavy concentrations minors so received had to be enrolled in of refugees in small areas of the countries French schools. This question was When the flood of refugees from Viet- of first asylum. On his return to Quebec, resolved by placing unaccompanied nam was at its height, it was soon realiz- it was announced that Quebec would minors under the guardianship of the ed that, among the family groups leaving bring forward all unaccompanied minors sponsoring agencies initially, so that they that country, a fair number of teenagers for whom suitable foster families could could be enrolled in schools of the had succeeded in getting aboard ships be found. Arrangements were made with appropriate language sector. and had made the crossing to Malaysia, four voluntary agencies (two French and Thailand, and Indonesia. Some cases two English) for the implementation of Problems of Financial Support were discovered where parents or other the new ~olicy.At the outset, there was From a financial viewpoint, families older family members had been lost at considerable misunderstanding as to accepting a refugee foster child found sea, and their children reached countries whether the children arriving in Quebec that the only support they could expect of first asylum already orphaned. under the new program were to be from Government was the basic family Once they were in the camps set up on adopted by ~anadianfamilies or simply allowance, and a dependent's tax deduc- usual Pulau Bidong, on Galang (Indonesia), fostered until such time as their own tion at the end of the year; the and at various locations in Thailand, the families were traced; there was a great allowances paid for children in foster youngsters had to be given special care in deal of misunderstanding with respect to care were not available. Although many an effort to ensure they were not the ages of many of the children and the of the youngsters were in urgent need of exploited or abused. Various methods availability of female refugees. Many dental treatment, no provision was made were used, ranging from the ad-hoc Quebec families requested very young for this by either the federal or the arrangements to be found on Pulau girls and were disappointed when they provincial government. learned that there were few unaccom- Bidong, where large groups of Arrival in Quebec youngsters were more or less supervised panied girls and that even fewer were by volunteer Vietnamese adults, to the infants. Once the program for unaccompanied minors had been decided, the trickle very more specifically designed children's cen- Due to the confusion of the early stages tres set up in camps in Thailand, initially quickly swelled to a flood, and the four of the Quebec unaccompanied minors voluntary agencies found they were in by Catholic Relief Services, but also by program, it was, perhaps, inevitable that danger of being swamped with young- other agencies. Children in these centres some initial placements had to be review- sters about whom very little information were under the care of house parents ed later on. Many foster families did not drawn from the refugee population, who was made available. Urgent requests realize that a Vietnamese boy of 15 had were made to the provincial and the were responsible for additional food all too often survived years of privation federal governments for funding for a being distributed to their group, and for during the period of hostilities in his group home where arriving children their general welfare. By and large, the country, as well as the voyage to a coun- could be housed for up to a month, so system of children's centres was found to try of first asylum and a period of intern- that files could be put together and be the best solution in a constantly ment in a refugee camp. In consequence, efforts made to match each youngster changing situation, and it did mean that they were unprepared for the maturity with an approved foster family; the unaccompanied youngsters were settled shown by some of the boys received in group home would serve also as a place in one for some time; efforts to Quebec. In addition, a number of "false of shelter for any youngster whose initial trace parents and sibliicould be made minors" (young adults who had succeed- placing proved to be unsatisfactory. in other camps, with the aim of effecting ed in passing as teenagers) were Both governments turned a deaf ear to reunification of families prior to resettle- encountered; it was very difficult for such requests, even though it was all too ment in third countries. some foster parents to adjust to the idea apparent that groups of volunteers, of their foster son of 15 turning out to be however willing, could not keep up the The Quebec Program a young adult of 19 or 20. pace of screening foster families: arrang- In the fall of 1979, the then Minister of A complication peculiar to Quebec arose ing for formal home studies for submis- Immigration in the Quebec government, from the language legislation enacted by sion to the Quebec Ministry of Social Jacques Couture, visited a number of the Levesque government; although Affairs; explaining to families that in- camps in Southeast Asia to determine many refugee youngsters were offered fants were not available for fostering, how Quebec could more effectively con- fostering by families of other than French (Continued on p. 8) Organization of the United Natior

United

for F I Mr. POI

Deputy w I Mr. Wiia

International Protection Assistance Office of the Director Office of the Director Mr. P.M. Moussali Mr. M.L. Zollner I J 1 I General Legal Conference & Treaties Legal Research Unit Mr. F.E. Krenz, Chief Mr. G. Coles, Chief Mr. Y. Makonnen, Chief

I Bureau for Africa Mr. A. Nod, Head and South-West Asia I I 1 Mr. G. Arnaout, Head Northern Central and Horn of East and Africa and West Africa Africa Southern Middle East Section Sudan Section Section Section Africa Section Mr. K. Morjane, Section Mr. G. Rim, Mr. A. Samb, Mr. D. Lambo, Chief Mr. T. Barnes, Chief Chief Chief Chief

1 Programme Managemei Mr. A Simmance,

I Bureau for East and South Asia Bureau for Americas and Europe i- and Oceania Mr. 0.Haselman, Head Mr. J. Anvar, Head Co-ordination

South Asia Section East Asia and Europe Section Americas Section Oceania Section Mr. D. McNamara, Mrs. C. Toscani, Mr. L. Franco, Section Chief Mr. A. Casella, Chief Chief Chief Chief

ReM: SO Field Officers & 7 Correspondents FMr. H. 01 covering more than 130 countries IS High Commissioner for Refugees

Nations missioner ?fug= 1 Hartling

:Commissioner n R. Smyser

Office of the Director Office of the Director Mr. 0. Volfing Mr. F. J. Homann-Herimberg

Liaison with European Organizations Personnel Services Financial Services Mr. D. Chefeke, Chief Mr. K. Annan, Head Mr. S. Pinning, Head

Personnel Reauitment Training Budget and Finance and Administration and Career Managemat Control unit Development Section Section Unit nt Bureau Social Services Section Mr. L. Kamara, de Wouytch, 'jMr. N.S. Mayadas, Chief Head Mr. G. Mr. M. Mr. T. pya, Kawahara, I 'z? I (3uef Chief

specialist Resettlement Section ;upport Unit Mr. K. Feldmann, Chief

I -- - - Ir. 0. Bakhet, Communications, Archives and Electronic Data Acting Chief Reproduction Services Processing Unit Mr. M.E. Pinto de Magalhaes, Mr. S. Molander, Chief Acting Chief nit Ihief 1 Quebec's Unaccompanied trends become apparent as we survey the The other side of the coin shows that in Minors Programs (cont'd from p. 5) progress made by most of the unaccom- some cases a young Indochinese male panied minors brought forward so far. and endeavouring to get older children may experience real difficultyin accept- The strong family structures of Indo- ing that a woman may be the head of a accepted; attending endless meetings chinese people were noticeable as many household. This role is unfamiliar to him called by Canada Immigraiton, Quebec youngsters made conscious efforts to Immigration, Quebec Social Affairs, or and all too often friction results if he is adapt to Canadian ways and tried hard, required to carry out instructions given all three; and trying to maintain a sometimes a bit too hard, to integrate in- semblance of normal, orderly domestic by a woman. Yet he accepts women to another type of family environment. teachers and, later on, women in posi- and professional activities. We soon observed that in families where tions of responsibility in the workplace, In the case of Terre des Hommes the role of each person was clearly defin- but his initial contact with a woman in a CANADA, a parish in the West Island ed, a young refugee would adapt to his position of authority in the family has area of Montreal stepped into the breach particular place in the family structure. sometimes given rise to problems in the and provided funding for an ad-hoc However, if the roles of the foster short term. However, a woman who has group home (staffed by a young married parents were in any way ambiguous, already brought up her own children and couple) for a limited period of time. difficulties were likely to arise. has reached the status of being old Through. most of 1980, all unaccom- Most youngsters were eager to try and enough to be a grandmother, whether or panied minors received by this agency not she is a grandmother, commands a were channelled through the group home pick up the threads of their schooling, and here too, we observed that a care- special degree of respect from unaccom- - a three-bedroom apartment which panied minors. Invariably, we are asked very quickly began to resemble one of fully structured program which kept the student going from class to class about relations between the sexes when a the children's centres in Southeast Asia youngster is fostered by a family where as bunks were installed and clothing had throughout the day was more in keeping with what they had been accustomed to there are teenage girls. The only answer to be strung across rooms to be dried. we can give is that it depends on each Younger children were placed fairly until 1975. Minors who were enrolled in English schools were required to follow person's values, as circumstances vary rapidly - between 8 and 12 days after from one youngster to another. their arrival - but boys in their mid or the same courses as their Canadian late teens sometimes had to stay in the peers, though it was found that in many "False Minorsl1 cases, language teachers, both English group home for as long as six weeks Our experience with "false minors" is before a suitable family could be found. and French, gave them additional atten- worth mentioning. In the early months tion after classes. The procedure follow- of the program we heard all sorts of Doors Close on Unaccompanied ed in French schools, designed to give the stories about men of 25 to 28 passing for Minors newcomer a sound basis in the language teenagers, but as we began to look first of all, gave rise to a number of pro- By October 1980, all four agencies in carefullv at the few authentic cases Quebec were showing signs of fatigue, blems; teenagers spent up to a year in a which came to our attention we found and at a meeting called by the two levels "classe d'accueil" before they were that, once again, wild rumours had been of government, the two French agencies assigned to a regular grade, with the accepted at face value. The widest age and one English agency announced that result that there was sometimes an age spread we could prove, because the they were not in a position to continue differential of as much as three or four youngster eventually furnished receiving unaccompanied minors. It years between an Indochinese student documentary evidence to back up his began to look as if the door to resettle- and his Canadian fellow students. claim, was of a young adult almost 21 ment in Canada, which had been opened Many of the unaccompanied minors years of age who had declared his age as ever so slightly for less than a year, was received in Quebec in 1980 and 1981 15; he could have passed quite easily for about to be closed to unaccompanied have turned 18, and are entitled to 16 or 17. minors. In spite of having serious misgiv- become independent if they so desire; it After some months, Canada Immigra- ings about the magnitude of the task is encourageing to record that so far only tion set up a procedure by which con- ahead, Terre des Hommes CANADA'S about 18% of them have left their foster sideration could be given to amending (TDH) Secretary-General and Director families to go and live alone or with the declared age of a "false minor", and of Special Programs decided that their other Indochinese teenagers. A cynic agency would still accept unaccom- might argue that those remaining with panied minors, though on a somewhat their foster families once they have Announcement reduced scale, and only as foster families reached the age of majority know when Symposium on the Problems and Con- became available. In 1981, the Quebec they are on to a good thing - shelter, sequences of Refugee Migrations in the government decided that only children meals at regular hours, all the material Developing World. specifically requested by name would be advantages to be gained from family life. The symposium will be held between considered for resettlement in foster This might hold true for a few minors, August 29 and September 1, 1983 at families, thus placing one more obstacle but by far the majority of them show the Gull Harbour Resort Hotel, Hecla in the way of getting youngsters out ~f that they appreciate the security and Island Provincial Park, Manitoba. For the camps. more information contact: Dr. J.R. well-being, and they are prepared to do Rogge, Department of Geography, everything possible to integrate as fully Year Survey The University of Manitoba, Win- Three as they can into their new families and nipeg, Manitoba, R3T 2N2. Phone: After three years of operation, certain communities. (204)474-8391. this decision was communicated to all are looking at teenagers, such a period of Thailand estimated that there were about TDH CANADA youngsters in both offi- time can make a considerable difference 350 unaccompanied minors in the main cial languages, and in Chinese and Viet- to the eventual resettlement! Vietnamese camp in Si Khiu, and 500 namese. Of the estimated 12 "false Numbers of Unaccompanied more in the Laotian camp at Napho. In- minors", only three requested an amend- Minors formants in Malaysia tell us that a core ment. Most of the others preferred to of about 200 minors await resettlement. retain the lower age, as this gave them How many unaccompanied minors are the advantage of two or three years more we talking about? In June 1982, some Overcrowded Camps in the regular school system. 600 Kampuchean youngsters who had Many of the problems encountered in been in refugee camps and on the Thai Some older teenagers who had been in Thailand stem from overcrowding in the border for as long as six years in some camps. Si Khiu was built to hold about camps for as long as four years had con- cases, were made available for resettle- 5,000 refugees, and now 10,000 are siderable trouble in adapting to family ment in third countries when the interned there. Scabies and skin infec- life; each time a youngster had to be UNHCR ended its tracing program. tions are common, but the signs of moved it meant that one more prospec- Many of these youngsters were presented physical and psychological deterioration tive foster family was no longer available as difficult cases; they had survived the are much more worrying. As in all such for a new arrival. Approaches were horrors of the Khmer Rouge period, only made to the Director of the federal situations, gangs form within the refugee to be left, apparently forgotten, in such Katimavik program, and in 1981 our population and use their strength to places as Kamput and Sakeo. first applicants were accepted for a full deprive the weaker, more vulnerable 9-month program; inevitably, there were A special meeting was convened in majority of any additional supplies of one or two disappointments, but 2/3 of Bangkok early in August by a few food, medical supplies, or other basic the minors accepted completed the voluntary agencies from the United items which might be procured form the Katimavik program and found, to their States, Australia, France and Canada, to local population. surprise and pleasure, that they were examine the plight of this special group Canadian Resettlement Policy offered jobs in their final locations. As of of unaccompanied minors. Through the Recent statements by federal officials this date (January 1983), all our former respective embassies in Thailand, the that refugee intake must be reduced Katimavik participants are still in full- governments concerned were asked to while the unemployment situation in time employment. Two l&year olds are give urgent consideration to Kampu- Canada remains serious do not appear to currently preparing their applications for chean resettlement, particularly as the recognize that unaccompanied minors the federal Coast Guard College in Nova government of Thailand showed signs of are not going to make immediate inroads Scotia. growing weary of the interminable on the working force. Teenage boys delays. require time to become resettled in their Present State of Government The United States responded with a com- new families, to try and complete their Programs mitment to admit up to 200 additional interrupted schooling, and to get some So much for the past. What of the pre- unaccompanied minors, and small vocational or professional training sent state of the government programs groups began arriving in New England as before they can start to look for full-time for unaccompanied minors? Officially, early as the end of September; Australia jobs. As their foster families must of course, Canada continues to receive accepted up to 45 initially, with the assume responsibility for their support, it young Indochinese refugees as foster possibiity of more being taken for reset- cannot even be said that they are going families become available. It is tlement by the end of 1982; France to cost government more than a com- sometimes stated that few families are received the request and promised urgent parable Canadian teenager would cost willing to assume this task; that prospec- action. for educational and social services. tive foster parents hear of difficult cases; No commitment was received from So much remains to be done, both in that "false minors" are still found among Canada or Quebec about these Canada and in the remaining camps in the small numbers of arrivals, etc. On youngsters who had been waiting for so Southeast Asia. So much initiative the other hand, officials do not mention long for a solution to their tragic situa- appears to have been lost between 1980 that the only financial aid available is the tion. Indeed, three boys of 14 who were and 1983. basic family allowance and a tax deduc- accepted for resettlement in the ordinary tion for a dependent child at the end of process in July 1982 are still in Phanat John Forrester is foster father of two the year. In a time of financial strin- Nikhom holding centre. Prospective boys from Southeast Asia. He is also gency, it is obvious that many families families had been screened and a formal director of Special Aid Programs, must think very carefully about taking request submitted to Quebec by early Southeast Asia for TDH CANADA. on additional obligations, but this does October. Requests for other children TDH (Terre des Hommes) is an not mean that they are unwilling to do appear to be stalled in the files of the organization concerned with children in SO. Quebec Department of Immigration. distress. This summer, TDH CANADA The long waiting period is yet another How many unaccompanied minors will be trying to do something for factor. Although the youngsters are remain interned in camps in Thailand children in the closed camps of Si Khiu already in children's centres, it seems to and Malaysia? Precise figures are dif- and Napho. Suggestions and donations take anywhere from five to as long as ficult to compile since the policy of would be most welcome. Mr. Forrester eleven months for all the bureaucratic "humane deterrence" came into force, can be contacted at TDH CANADA, procedures to be completed. When we but in July 1982 reliable sources in Box 34, Westmount, Quebec, H3Z 2T1. The Indochinese It is hard to compare the Indochinese These self-interest and pragmatic criteria refugee settlement in Sweden to the Refugees were balanced with the humanitarian Canadian experience. The discrepancies concern for the needy, sick, and dis- are legion. In numbers alone the Swedes abled. host only 2,300 boat people, though family reunification programs have in- For 4-6 months, the selected refugees in- creased that number to about 3,000. Sweden itially went to accommodation centres There are 30 times that many in Canada. operated by county employment boards The Swedish effort was largely a govern- by Howard Adelman where they were provided with clothing, ment affair; the largest component in medical care, language instruction and Canada was undertaken through private orientation programs. As in Canada, the sponsorship. Though the Swedish group health problem that caused the most differed in language, religion, ethnic relocation efforts) on the overseas worry to the Swedish public, for whom identity and their rural or urban origins, Chinese to leave Vietnam. the concern was just as greatly exag- the group was relatively homogeneous. gerated, was hepatitis. There too, den- Nevertheless, in spite of and perhaps Sweden's refugees almost all stem from tists refused to treat Indochinese refugees because of these and numerous other dif- this group - those who fled the North in who did not have a bill of health declar- ferences, the study, entitled A New 1979 following the Chinese attack on ing them hepatitis-free. Similarly, the Wave on a Northern Shore and publish- Vietnam, those who fled the South Swedes found that mental and emotional ed by the Swedish government, is very following the economic reforms and the problems afflicted the refugees increas- instructive. It was undertaken by Hugh Vietnamese expulsion moves, and those ingly the longer they were there - Beach, a cultural anthropologist at Upp- who fled Pol Pot's murderous regime in primarily because of the trauma of fami- sala University, and Lars Ragvald, a Cambodia only to flee from their first ly separation. Another parallel was the sinologist at Stockholm University (who refuge in Vietnam. virtual uselessness of the initial informa- was also a member of the Swedish selec- tion booklets provided to the refugees. tion delegation during all four trips to the When Canada had pledged to take 5,000 The material was so dense, decontex- refugee camps.) Indochinese refugees in 1979, Sweden's tualized and irrelevant to immediate quota was 250. In June, Canada increas- needs, that the booklets were frequently ed its intake from 5,000 to 8,000 with an discarded. Finally, the Swedes also After providing a fairly extensive additional 4,000 targeted for the private found out that six months was insuffi- historical background in a study focus- sector. Sweden added 1,250 to its quota, cient for the refugees to learn Swedish, sed on resettlement, the authors review one-half of its total new refugee quota. given the totally different native the selection process, the stages of reset- Following the July meeting in Geneva language structure. tlement, family reunification and the when Canada made its famous pledge to employment and job training provided accept 50,000 Indochinese refugees, One unique factor of the Swedish pro- for the refugees. The historical survey is Sweden pledged to take an additional gram was the family reunification pro- primarily relevant for its discussion of 750 (bringing its total to 2,250). With the gram. While Sweden attempted the overseas Chinese in Vietnam and the 1980 quota of another 750, the total wherever possible to bring out all general thesis that there is an inverse cor- refugee intake into Sweden was targeted relatives from a particular family (even relation between the improvement in for 3,000, a figure which includes those when the family was distributed among relations of overseas Chinese and China brought in under the family reunification a number of refugee camps), many itself and a deterioration in relations of program. refugees chose to go to Sweden because the overseas Chinese to the host country. of Sweden's embassy in Hanoi and the Foreign Asians had always been iden- The Swedish selection criteria were perception that Sweden could be more tified with the weaknesses of Vietnam directed to those who spoke Cantonese effective in arranging the emigration of wherever it was colonized. Correspon- (Sweden was the only resettlement coun- relatives still in Vietnam. Of the 1.100 dingly, the Chinese were commonly try to have a language criterion), to entrance permits granted to people in persecuted or expelled under strong those who comprised whole families, to Vietnam, 500 people had reached nationalistic governments, just as the those who were not acceptable to other Sweden by the end of 1981. All of these Chinese bourgeoisie were manipulated countries and to those who were disabl- were recent arrivals and almost no and used within the few economic niches ed, sick or in need of immediate help. reunification occurred earlier. This to which they were restricted by suc- The decision to select Cantonese parallels the Canadian experience and cessive colonial powers. The economic speakers was based on two arguments: seems to belie the belief (which we conditions (the cessation of American the lack of personnel in Sweden who shared) that the obstruction to reunifica- aid, the cut-off of capital inflows, the spoke Vietnamese and the fact that a ma- tion of Vietnamese to Canada was a isolation of Vietnam from international jority of "Boat People" were of Chinese reprisal for the Tory government's markets) of 1977-78 decimated the extraction. (In fact, the Cantonese of characterization of Hanoi's behaviour as financial base of the Cholon bourgeoisie many of the refugees was poor, and akin to that of the Nazis. who also resisted relocation to new rural many spoke other dialects.) The decision economic zones. The tensions between to take whole families was intended to Not all of the problems resulted from dif- Hanoi and China added to the ease the adjustment problems as well as ficulties in obtaining exit permits. En- discrimination pressures (loss of jobs, limit the numbers who would be taken in trance permits first had to be obtained reduced food rations, unequal pay and under family reunification programs. from the Swedish National Immigration Global Refugee Policy: Boyd. Since Swedish family reunifica- tion is based on the core nuclear family The Case for a -~evelo~rnent - parents and children - this factor alone cut down the number of eligible applicants. When nephews (and nieces) Oriented who had migrated as part of an extended family attempted to sponsor their own parents, they were not permitted to if they were 20 years of age or over. When "Global Refugee Policy: the Case for a under various humanitarian guises the word "family" means one thing to the Development Oriented Strategy", a without qualifying under the U.N. Swedish authorities and another to the public issues paper of The Population definition. Boat People, it is not surprising that a Council (a John D. Rockefeller 111, in- great deal of confusion, misunderstand- dependent non-profit organization in- However, seeking the basis of refugee ing and bitterness would arise over the stituted in 1952) prepared by Charles policy on a clear definition of "Who is a family reunification program, especially Keely with Patricia Elwell, proposes a refugee?" may be itself a source of the given the expectations of the refugees shift in focus from relief and resettlement problem. Instead, the starting point who opted to go to Sweden. Never- to development. The study is divided to should be the realities of displacement, theless, Sweden has, proportionately, four parts: (1)a discussion of the inter- for the definition itself is rooted in the been considerably more successful in its national definition of a refugee; (2) an particularity of the post-World War 11 reunification program than other coun- overview of their numbers, location and experience in Europe. That perspective tries of resettlement. origin; (3) a sketch of the international stressed resettlement in thiid countries response to refugees; and (4) conclu- when the emphasis now should perhaps One similarity between the Canadian sions arising from these discussions. The be given to in-place activity and a and Swedish experiences should be noted central issue is dealt with in the first sec- development context. - the extremely rapid and successful tion, and the historical background is This is Keely's central thesis. Aid should adaptation of the refugees to a new work relegated to the third section. milieu in which they frequently establish be shifted from maintaining camps and themselves as the most expert and pro- The two issues raised about the 1967 seeking resettlement to channelling ductive workers. They are lauded for not Protocol definition are familiar - the resources to asylum countries for "taking advantage" of the Swedish meaning of persecution and the require- development aid and assistance to the welfare system. Similarly in the schools, ment that a refugee be outside the coun- indigenous population. Included in such 'The Indochinese are described by their try of nationality; i.e., individuals fleeing a shift in emphasis would be our at- Swedish teachers as the most ambitious, areas of armed conflict are not refugees. titudes to humanitarian traditions. We hard-working and respectful students (By contrast, the Organization of would have to attend to the slow pace of they have ever encountered." African Unity Convention on Refugees indigenous economic and political solu- extended its definition to include victims tions as well as the bureaucratic shifts that would be required from domestic One unique experiment proved to be an of war or civil conflict who need only human service agencies to foreign enormous success - the employment of leave their place and not their country of ministries and agencies. a home-language teacher from the Indo- habitual residence.) In addition to the chinese group in Gnosjo. On the other problems of the narrowness of the defini- When we shift from the strategy issues hand, the Swedish Red Cross "contact tion, there were also problems of inter- for dealing with refugees to the actual family" program (which parallelled the pretation. What is persecution? Given a data on the refugees themselves we see Canadians "friendship family" program) government's role in economic policy, how conceptual issues intersect with in which a local Swedish family hosted whatever the ideology of that govern- facts. Are displaced persons from civil an Indochinese family, proved to be a ment may be, bourgeoisie (mainly war to be included in the numbers? failure. With very few exceptions the Chinese) may suffer in Vietnam or small When are former refugees considered to contacts rarely lasted past several visits. landowners (mainly Indians) may suffer be firmly resettled and excluded from the One also sees other advantages in in Central America from government calculations? Whose counts are to be Canada for the Indochinese refugees policies which deprive these groups of an relied upon - agencies', those of first compared to the situation in Sweden. ability to make a reasonable or even asylum countries, etc.? Our multilingual programming in radio minimal living. Are they persecuted? and television is envied, for example, in The distinction between political and But, whatever the basis, it is clear that contrast to the Indochiiese in Sweden economic refugees becomes muddied. almost all refugees are in developing who live in a cultural vacuum. On the areas with half of them in Africa. This other hand, we have to envy their family Thus, people fleeing civil strife, people fact, along with the analysis of the pedagogue program, individuals assign- fleeing from a country with an ideology historical background of solutions to the ed by the Swedish National Board of antithetical to the host country (self- refugee problem rooted in Europe, is Health and Welfare to serve as links bet- exiled Europeans), people who, after used to reinforce the thesis of shim ween the Indochinese refugees and having fled, might very well be from a resettlement strategy as the back- Swedish society with an ideal ratio of persecuted upon return (Haitians), peo- up to repatriation to a development one pedagogue to 50 refugees for 2-3 ple fleeing oppressive economic policies strategy of aid to countries of first years after arrival. - all have been granted refugee status asylum in the developing world. C/O Refugee DocumentationProject, York University 4700 KeeleStreet, Downsview Ontario M3J 2R6

Postage p.ld at Sc8rbomugh. Ontarlo under Second Claw Mall Reglmtmtlon No. 5512 The Trauma of the "Boat People"

-- Sixty-four Vietnamese Chinese refugees Events During Flight Number of Refugees % of Survey Group were asked to report 'What happened Ejrperiendng "Events" during the flight?" as part of a survey conducted by Lawrence Lam of York University. The chart lists the events Lack of Drinking Water 55 85.9 most frequently experienced by these Suicide Attempts 49 76.6 'boat people." Refused Landing 39 60.9 We now have hard data to tell us what Towed Away to Sea Again 35 54.7 the Indochinese refugees have gone Piracy 35 54.7 through - and continue to go through! Lack of Food 34 53.1 These figures should awaken us to the Deaths 1 48.4 fact that these refugees are still in need Quarrels and Fightings 30 46.9 of assistance. Given that such a high Passing Vessels Without Giving Help 28 43.8 proportion of the refugees witnessed or Bad Weather or Storms 27 42.2 experienced traumatic events such as Boat's Engine Broke Down 27 42.2 suicide, death, loss of family members, Lack of Fuel 25 39.1 rape and lack of drinking water and Loss of Other Passengers 22 34.4 food, we should also become more sen- Loss of Direction 19 29.7 sitive to the adaptation problems of Loss of Family Members 14 21.9 Indochinese refugees. Witnessing Rapes and Abductions 11 17.2 Uurt reprinted from Lwrrna Lm'a Ph.D. the& entitled "The Experienced Rapes .8 12.5 Sdement of the Vkuame Chinne Rehgers in Montrul," 1983.

Books Received Refugee Documentation Project

The Hai Hong: Profit, Tears and Joy by The Refugee Documentation Project at Another mandate of the Project is to Rene Pappone. Published by Employ- York University is concerned with ac- cany out crisis field research. ment and Immigration Canada. 1982. quiring and preserving archival Further information may be obtained This book tells the story of the Cana- materials pertaining to refugees in and by writing to C. Stephens, Refugee dian government's involvement in the from all parts of the world. (The Pro- Documentation Project, York Universi- 1978 Indochinese refugee crisis. The ject's library is open between 10 a.m. ty, 4700 Keele Street, Downsview, On- author, Rene Pappone, was at that time and 5 p.m. on weekdays.) Donations of tario M3J 2R6. Telephone (416) employed by Employment and documents, papers, reports or other 667-3639. Immigration Canada as a media rela- library materials are encouraged. tions officer. If you have worked with refugees or A Query have conducted research on refugees or Is it an appropriate time to propose refugee-related issues, please write and Les R+gib Originaires de 1'Asie du an international conference to tell us about your work. A function of Sud-Est: arridre plan historique et compare the studies of the various the Project is to create an index of Cana- culturel; les motivations de dbart. forms of Indochinese refugee reset- dian individuals and organizations con- Rapport au Prkident de la Rdpublique tlement utilized in different coun- cerned with refugees in order to by Georges Condominas and Richard tries? For there will inevitably be establish a referral network among peo- a Potter. La Documentation Franwise. "next time." The lessons of the past ple needing information on refugees. Paris. 1982. may be very appropriate.