consensus on the repatriation of non-volunteers at a Steering
Committee of the International Conference on Indo-Chinese Refugees
(ICIR). The best hope then seemed to be the creation of a regional centre in which non-volunteers could be held pending their eventual repatriation. Otherwise there was a grave risk
that the Comprehensive Plan of Action (CPA), set up by the ICIR in
1989, might collapse.
45. In July 1990 the United States announced that they were
willing to contemplate the return to Vietnam of acquiescent non-refugees (the "grey area" cases). In September the United
Kingdom, Hong Kong and Vietnamese Governments reached agreement on
simplified arrangements for the return of volunteers and on new
procedures to cover "grey area" returns. In December 1990 23
non-volunteers were repatriated under those arrangements.
46. In recognition of the need for action to tackle the root
causes of the Vietnamese exodus, namely poverty and lack of
opportunity for personal advancement, the European Commission announced in December 1990 a 2-year 10 MECU programme of reintegration assistance for returnees. The United Kingdom
subsequently pledged £3 million to this programme, in addition to
our share of the EC contribution (approximately £5.6 million).
47. In September 1991, the Vietnamese unexpectedly indicated
their willingness to take back all non-refugees, whether they
volunteered or not, in an orderly fashion. The following month
agreement was reached on the arrangements for the return of those who, having already returned voluntarily to Vietnam, had gone back
to Hong Kong in the hope of receiving further UNHCR reintegration
assistance (the "double-backers"). Shortly afterwards the United
Kingdom, Hong Kong and Vietnam signed a Statement of Understanding
on an Orderly Repatriation Programme (ORP) covering all non-refugees. The Vietnamese reconfirmed their undertakings given in June 1989 that no returnees would be persecuted, and that UNHCR
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