those who still remain in Hong Hong who have yet to receive housing,
who have yet to receive adequate schooling. If the flow levels off,I
think, Mr. Chairman, our support should not follow suit, but be just
the reverse of that.
Thank you.
Senator Hart. Better than most of us in this room , Mr. Brown,
I am sure you know that interest in refugees is and follows a pretty
predictable path - virtually no interest until something hits the front
page, and then, if there is enough emotional overtone to it, everybody
is anxious to help.
Once refugees disappear from the front page there are very few left
around to help.
Would you agree with that ?
Mr. Brown. Yes, Mr. Chairman , that is one of the tragedies of
trying to maintain a sustained program in behalf of allof therefugees
throughout the world. There is a constantswinging of the pendulum
from interest to lack of interest, and it is the dramatic that seems to .
restore the interest.
Senator Hart. We are not criticizing anybody. But just describing
an aspect of human nature.
Mr. Brown . That is right.
Senator Fong. Mr. Brown, wasn't it a sad commentary that last year
was theWorld Refugee Year and as I understand it
Mr. BROWN. Two years ago.
Senator Fong. Two years ago.
And the United States wasa sponsorof the resolution in the United
Nations for that World Refugee Year ? Wasn't it a sad commentary
that although we were the leaders in this movement of a world refugee
year we did not bring in a single refugee from the orient ?
16 REFUGEE PROBLEM IN HONG KONG AND MACAO
We had our attention focused in Europe, and we were remiss in
not adding one refugee from the orient, is that correct !
Mr. Brown. There were a few who came in from the orient, Sen
ator Fong, only under the residual provisions of Public Law 85–316
who had been processed and hadn't come in as yet.
Senator Fong. Now , since you are familiar with the Hong Kong
>
problem , the fact that we did not allow a singlerefugee under that
ſaw to come in when we said we would wipe out all the refugee camps
inEurope, how did it affect our image outthere ?
Mr. BROWN. Quite candidly and honestly , Senator Fong, I think
it had an adverse effect upon our image.
Senator Fong. Would you say it was very bad ?
Mr. BROWN. I don't know that I can go much beyond that because
the criticisms or the lack of appreciation that were expressed in various
places abroad were not too well defined.
I think all those who recognized that and were concerned about it
also recognized that the United States traditionally has done a great
deal in behalf of refugees.
It was more an expression of regret and an expression of hope that
the situation would be corrected rather than a severe criticism as far
as the matter has been discussed through the personal contacts and
those which have been called to my attention.
Senator Fong. You certainly were not greatly surprised in that ?
Mr. BROWN . That is true.
Senator Fong. Thank you.
( The prepared statement of Mr. Brown follows:)
STATEMENT OF RICHARD R. BROWN, DIRECTOR, OFFICE OF REFUGEE AND MIGRATION
AFFAIRS , DEPARTMENT OF STATE
Mr. Chairman and members of the subcommittee, I am pleased to appear be
fore this subcommittee to discuss certain aspects of the problem which have
arisen in Hong Kong as a result of a sudden recent increase in the number of
refugees arriving from Red China . The principal witness has drawn the atten
tion of the subcommittee to some facets of foreign policy considerations which
have confronted the United States as a result of this influx, and he alluded to
some of the program accomplishments. However, Mr. Chairman, I feel it is
necessary to preface any discussion of the problems related to Chinese refugees
in Hong Kong with a reminder that the extent to which external assistance can
be given to these refugees in whatever form has been, is now, and will remain
a determination of the British authorities in Hong Kong. It is also necessary
that any review of the present problems in Hong Kong be made with a full
awareness of the magnificent and costly job which has been performed by the
Hong Kong Government for more than a decade in attempting to cope with
the complex problem of assimilating more than one million refugees. This
number represents roughly one-third of the Hong Kong population . It is essen
tial, too, in considering the problems of how and what the United States can do
at this time to keep in mind what the United States already has done and is
doing to assist the Colonial authorities in alleviating the overall refugee prob
lems in the extremely small and congested area of the colony .
Finally, Mr. Chairman, unless the real and potential role of international
agencies responsible for varying types of refugee relief assistance is kept in
mind , any review of the current situation is apt to become more confusing than
even the present misunderstandings seem to indicate.
I should like therefore, to discuss with the subcommittee aspects of these im
portant factors to which I have just called attention.
REFUGEE PROBLEM IN HONG KONG AND MACAO 17
THE BACKGROUND OF THE REFUGEE PROBLEM AND THE RESPONSIBILITIES OF THE
HONG KONG GOVERNMENT FOR ITS SOLUTION
The refugee situation in Hong Kong developed subsequent to the occupation of
mainland China by the Communist forces in 1949. Since that time an estimated
1.2 million refugees have entered the colony and now make up approximately one
third of its present population. Each year until the present saw an estimated
40,000 to 50,000 new refugees enter the colony . About half of this number were
legal entrants ; the rest crossed without control either by land or by small boat
and faded into the crowded districts of the colony. Approximately 100 to 300
persons per month were intercepted at the border each month by the Hong
Kong police and returned to mainland China. Subsequent to May 1 this year
the numbers of persons trying to enter the colony and the numbers returned by
the police to mainland China have increased greatly. According to recent in
formation, by May 25 , 50,000 to 60,000 persons had crossed the border . It is
not known, of course , how many have been successful in this period in eluding the
police and making their way into the urban areas of the colony.
In the last 12 years nearly all of the very large number of refugees entering
Hong Kong have remained there. Resettlement out of the colony has taken
care of only a very small percentage of those arriving. Since 1953 approximately
30,000 refugees have moved to other countries. Of this number about 18,000
went to Taiwan and 10,000 to the United States.
REVIEW OF UNITED STATES SUPPLEMENTARY ASSISTANCE TO REFUGEES IN HONG KONG
In keeping with its traditional concern for the plight of refugees the U.S.
Government has viewed with sympathy the flight of thousands of refugees from
communism into the small colony of Hong Kong. In order to give expression
to this sympathy the United States inaugurated the Far East refugee program
in 1953. This program has cooperated with American voluntary agencies in the
colony and has provided funds for projects carried out by these agencies in the
fields of housing, medical care, resettlement abroad, vocational training and
similar projects. Including World Refugee Year contributions, $ 8,342,000 has
been spent by the program since its inception in 1953 through March 31, 1962.
The Far East refugee program has also supervised the distribution of surplus
agricultural commodities by American voluntary agencies under title III of
Public Law 480. Since 1953 when this distribution began , $ 30,180,000 worth of
commodities have been made available to refugees and others in Hong Kong.
In order to reach those refugees considered most in need , schoolchildren , the
old and the sick , and to make more acceptable to the recipients such products
-as cornmeal and dry milk which are relatively unknown to Chinese, the Far
East refugee program has cooperated with the agencies concerned to provide for
the conversion of title III commodities into finished or semifinished products, such
as noodles, biscuits and the like through the construction , installation and
operation of noodlemaking machines, bakeries and milk -mixing centers, In
addition, the agencies are expanding their capacity for providing hot meals
daily. At the present time agencies provide approximately 20,000 indigent
refugee children with one hot meal per day.
UNITED STATES WORLD REFUGEE YEAR PROGRAM
The United States made special efforts during the World Refugee Year to assist
the Hong Kong Government to meet some of the most pressing refugee problems.
Through its Far Eastern refugee program ( a part of the U.S. escape program )
the United States allotted $ 1,014,000 to be spent on new World Refugee Year
projects in the areas of Hong Kong and Macao. Of this amount, $ 617,000 was
given directly to the Hong Kong Government, to achieve its goal of establishing
a community center, a rehabilitation center and a Secondary Trades School.
( Some $ 43,000 of the total was spent in the area of Macao for the enlargement
of a Day Nursery and dispensary to increase medical seryices to refugee chil
dren , as well as to construct a community center .)
Recognizing the fact that the total allocation of $ 1,014,000 could not possibly
meet the total needs of the Chinese refugees, after thorough investigation and
consultation with the Hong Kong Government and the voluntary agencies in the
field it was decided that the funds available could best be utilized as follows:
Seventy -three thousand dollars for the processing and distribution of sur
plus agricultural commodities. (Accomplished through projects establishing
milk mixing, noodle making and biscuit making machines ).
18 REFUGEE PROBLEM IN HONG KONG AND MACAO
Two hundred and thirty -one thousand dollars on the extension or con
struction of medical service institutions. (Accomplished through the con
struction of a TB hospital, an out-patient clinic, the extension of hospital
facilities and a day -nursery clinic .)
Four hundred and fifty -two thousand dollars for education institutions.
(Accomplished through the establishment of a Trade Traning Center in
courses related to the needs of local industries, a Rehabilitation Center, and
the expansion of the facilities of a Secondary Trades School ). .
Two hundred and twenty - seven thousand dollars for Community Centers
with facilities for counseling, education, vocational training, libraries, and
recreation .
Thirty -one thousand dollars for 48 housing units and an undersea water
pipeline to meet the water needs of refugees on a previously uninhabited
island in the Hong Kong area.
Also during World Refugee Year, the U.S. Government allotted $ 70,000 to the
United Nations High Commissioner for Refugees for the care and maintenance
and resettlementprocessing costs of European refugees in Hong Kong and $ 730,000
to the Intergovernmental Committee for European Migration for their transporta
tion costs .
UNITED STATES ASSISTANCE TO HONG KONG REFUGEES THROUGH RESETTLEMENT
The United States, in addition to its direct aid, has included Chinese refugees
in Hong Kong among those benefiting from refugee immigration legislation.
Under the provisions of the Refugee Relief Act and the act of September 11,
1957, 9,118 Chinese were issued visas for entry into the United States. Although
this is a small figure compared to the size of the refugee problem in Hong Kong ,
nevertheless, with the exception of Taiwan , the United States has admitted more
Chinese refugees than any other country .
Admission of Chinese Orphans
In addition to visas issued to Chinese refugees as stated above, visas were and
are being issued to Chinese ans under special legislation passed by the Con
gress for the benefit of eligible orphans. More recently these visas have been
issued under the authority of section 101 ( b ) ( 1 ) ( F ) of the Immigration and Na
tionality Act, as amended .
Thus, Mr. Chairman, it can be seen that resettlement of Chinese refugees out
side Hong Kong to the United States and to other areas has been overshadowed
by the necessity of resettling locally or integrating the vast majority of these
refugees in Hong Kong. Consequently, the main burden for the satisfactory re
settlement of these refugees has fallen on the Government and people of Hong
Kong. Through a wise program of fostering a healthy climate for the expan
sion of private enterprise, industry and commerce in the colony has expanded
enormously in the past 10 years. This expansion has provided employment for
thousands of refugees and reduced unemployment in the colony to a very low
level. The Hong Kong Government itself has allotted approximately one- third
of its budget, approximately $ 55 million in 1961 alone, for direct and indirect
assistance to refugees. In a program to provide permanent low -cost housing
to the hundreds of thousands of squatters perched on the hillsides and rooftops
of the colony, the Hong Kong Government has constructed resettlement estates
for more than 440,000 people. It is expected that this program will be continued
and that housing for 120,000 people will be completed each year.
The role of international agencies in the Hong Kong refugee programs
Considerable comment has appeared in the press over the last 2 weeks with
reference to the part several of the international agencies should play in the
present refugee situation in Hong Kong. I shall confine my statement primarily
to two such agencies in an effort to clarify apparent misunderstanding as to their
respective roles.
The mandate of the United Nations High Commissioner for Refugees (UNHCR )
does not include Chinese refugees in Hong Kong. However, under U.N. General
Assembly resolutions the UNCHR is authorized to employ his "good offices " to
appeal to governments and the international community for contributions of
funds and services to meet the refugee needs in Hong Kong, provided that the
Hong Kong authorities request him or accept his offer to perform such function .
In the present situation the UNHCR has offered to the United Kingdom the
use of his good offices in any manner the United Kingdom and the Colonial
Government may desire. Thus far his offer has not been taken up .
REFUGEE PROBLEM IN HONG KONG AND MACAO 19
The Intergovernmental Committee for European Migration ( ICEM ) generally
speaking does not move refugees from areas outside Europe. However, under
a special provision of its constitution it participates jointly with the UNHCR in
expediting the movement of European refugees from Red China who transit
through Hong Kong .
Contingent upon totalreimbursement of the costs involved , ICEM could employ
its skilled staff and long experience in moving migrants to assist in any of the
resettlement plans presently being discussed with reference to Hong Kong
Chinese refugees.
In conclusion, Mr. Chairman , I would summarize by saying, first, the United
States continues to have the highest regard for the commendable record of the
Hong Kong Government in its efforts to aid the Chinese refugees who have
sought and received sanctuary in the colony. Second, in due recognition of the
political, economic, and humanitarian problems involved in the presence of well
over a million Chinese refugees in Hong Kong, and the rapid influx of many more,
the United States has indicated its willingness to share in the costs, materials,
and services attendant to their care and maintenance and to accept a portion of
them for admission to the United States, and lastly, it is gratifying to note the
extent to which the people of the United States, through their elected repre
sentatives and their privately supported voluntary agencies, have voiced such
earnest generous desires to help and to contribute to the solution of this grave
and complex problem .
If the chairman or members of the committee desire more detailed informa
tion , Mr. Sobotka and I will be glad to respond to questions or to furnish addi
tional information for the record .
Senator Hart. This completes the witnesses scheduled to be heard
today.
The committee, I feel, will have before it in a week or 10 days the
spokesmen for the several voluntary agencies who are on the ground
inHong Kong, some of whom now are over there.
It is our feeling that a direct report from them with respect to the
programs they are administering , their experiences with these pro
grams, their observation of general conditions, will be helpful in
presenting a balanced record on which we can measure our own re
sponsibilities.
If there is no objection, I suggest a brief recess, following which we
may continue in executive session.
(Whereupon at 11:05 a.m., the committee went into executive ses
sion. )
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( The following testimony in executive session is released for the
public record :)
REFUGEE PROBLEM IN HONG KONG AND MACAO
TUESDAY, MAY 29 , 1962
U.S. SENATE,
SUBCOMMITTEE ON REFUGEES AND ESCAPEES
OF THE COMMITTEE ON THE JUDICIARY ,
Washington, D.C.
The subcommittee met, pursuant to notice, at 11:15 a.m., in room
2228, New Senate Office Building, Senator Philip A. Hart (chairman
of the subcommittee )presiding:
Present: Senators Hart (chairman ), Dirksen, and Fong,
Also present: Curtis E. Johnson , staff director; Dale De Haan ,
research consultant ; Carl Ziemba, counsel; Earl Nishimura, minority
counsel; Fred M. Mesmer, staff member, Senate Judiciary Subcom
mittee on Immigration ; Walter M. Besterman and Garner J. Cline,
House Judiciary Committee.
Senator HART. The committee feels it desirable to have a record
made of these proceedings, but to assign to this record whatever
classification it is that will put it in reserve pending subsequent need
or reference requirements.
I think the record ought to show that we are being joined by the
counsel to the two immigration subcommittees of both bodies, Mr.
Mesmer for the Senate, and Mr. Besterman for the House.
Governor, I think if we just proceed on a completely informal basis
here, we will accomplish a lot more. What has been the Red Chinese
government's reaction in the last couple of weeks to this exodus ?
STATEMENTS OF HON. W. AVERELL HARRIMAN , ASSISTANT SECRE
TARY FOR FAR EASTERN AFFAIRS; AND RICHARD R. BROWN ,
DIRECTOR, OFFICE OF REFUGEE AND MIGRATION AFFAIRS, DE
PARTMENT OF STATE
Mr. HARRIMAN . Senator, that is very hard to say.
Such information as we have, as I said before for the record, the
information seems to be that the Canton authorities found that they
were going to have difficulty forcing 200,000 of their inhabitants to
go back to farms, and they thought perhaps it might be easier for
them , that is one theory, to leave the country, rather than to use
forcible means to compel them to go back to the country,
Then , of course, when those that were forced out of the city came
back tothe country, it has usually been the practice throughout the
years, of the agricultural community, if they felt they had a surplus,
21
22 REFUGEE PROBLEM IN HONG KONG AND MACAO
for some of the more venturesome to leave the country and migrate
elsewhere, so they left because of the influx of people from thecity,
more mouths to feed.
We have no indication as to what the reaction was in the reestablish
ment of these regulations. It is one of the indications, I think, of
some breakdown in confidence of the regime. They must be gravely
concerned as to how they are going to handle the food situation be
cause it looks as if thisproblem is so great that even if they have
reasonably good weather the problem is going to be with them for
a long time.
My associate says there is no public comment by any Chinese Com
munist source.
Senator Dirksen. Governor, all of these refugees were equipped
with an exit visa ?
Mr. HARRIMAN. Not all of them had exit permits, butall apparently
knew of reports that the border controls had been lifted.
I gather from what I have learned that when they permited exit
visas to be given freely, then others heard that the border was open.
Word spreads very fast in any Iron Curtain country from mouth to
mouth, and word spread that the border guards were not stopping
them .
So some had exit visas and some just came through.
Senator DIRKSEN . Well, one way or another then , this exodus had
official connivance either by lifting the border guardsor actually issu
ing a document in the nature of an exit permit or visa to go into Hong
Kong.
So the Government had to know about it one way or another, either
at the local or national level. But I can't imagine that even local
officials under the way the Communists operate
Mr. HARRIMAN . There must have been some permission .
Senator DIRKSEN . It came from the top !
Mr. HARRIMAN . It is a fair supposition that there was some agree
ment from Peiping or at least no opposition from Peiping. I don't
know how much breakdown there is in the authority of the Peiping
regime.
We hear reports of discussions that are going on, we see reports on
meetings that take place and some of the prominent personalities no
longer appear and there seems to be a shift or there seems to be some
purging outof some of the more prominent people involved in the
planning. Some scapegoats are being made.
But it hasn't received much publicity - more information comes out
of Moscow , there is much freer interchange, we have reporters there.
>
( Off the record .)
Senator DIRKSEN. Now, corollary to that, when this movement dried
up it's
fair to assume that the permits or exit visas were then shut off !
Mr. HARRIMAN . That must have been .
Senator DIRKSEN. Because it is hard to imagine that 56,000 people
would be on a trek unless they were equipped with a piece of paper
to get them into Hong Kong.
Mr. HARRIMAN . There is no doubt that this was an official act on
the part of the central authorities, and I understand that there were
people on the way that were turned back that weren't permitted to
cross the border,
REFUGEE PROBLEM IN HONG KONG AND MACAO 23
In other words, they slapped down, they have slapped on the old
regulations about the border guards first, as a first act, and many of
them who were on theirway were turned back .
Senator DIRKSEN . You see, taking those two jointly, it gives us a
rather suspicious aura, it seems to me, as to what the Government of
China was actually trying to accomplish here. Surely it must have
been in the deal, and it had some objective to be accomplished be
cause here was a complete reversal of what has been going on for
years — the dribbling in beyond the guards in Kowloon, suddenly
stimulated and running into thousands, and suddenly shut off.
There are all sorts of speculations, some of them I have given you, I
don't want to repeat them.
Senator HART. Is there any indication that the holders of the exit
visas were sick, old ?
Mr. HARRIMAN. No, I think they were rather vigorous, I have been
told. They were the more venturesome and vigorous people rather
than the sick and the old. We don't have aa breakdown.
( Off the record .)
Senator Fong. Was there a preponderance of the male over the
female ?
Mr. HARRIMAN . We have no statistics on that.
Senator FONG . How about children ?
Mr. HARRIMAN . Relatively few. Those who were with them . Not
for the most part whole families, very often relatives of people in
Hong Kong or men coming to Hong Kong apparently to make a liv
ing, leaving their families initially inthe villages.
Senator Fong. There were a number of troops that came in also,
and they were sent back.
Do you have any information on that ?
Mr. HARRIMAN. Number of what sort of people?
Senator Fong. Soldiers.
Mr. HARRIMAN . No, I haven't any information about soldiers. I
believe theHongKong government denied there were any soldiers that
came out, by their check, and they have no indication there were any
from outside of the one province.
(Off the record .)
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REFUGEE PROBLEMS IN HONG KONG AND MACAO
THURSDAY , JUNE 7, 1962
U.S. SENATE ,
SUBCOMMITTEE OF REFUGEES AND ESCAPEES,
COMMITTEE ON THE JUDICIARY ,
Washington, D.C.
The subcommittee met, pursuantto recess, at 10 a.m., in room 457
Old Senate Office Building, Senator Philip A. Hart (chairman of
the subcommittee ) presiding.
Present: Senator Hart and Senator Fong.
Also present : Curtis E. Johnson, staff director; Dale S. de Haan,
research consultant; Carl Ziemba, committee counsel; and Earl Nishi
mura , minority counsel.
Senator Hart. The committee will come to order.
Today we resume our hearings on the problems in Hong Kong of
refugees who have fled from Communist China.
Last week we heard testimony from the Assistant Secretary of
State for Far Eastern Affairs, the Honorable Averell Harriman , and
Mr. Richard Brown of the State Department's Office of Refugee and
Migration Affairs.
Today we welcome the opportunity to hear from spokesmen of a
number of the voluntary relief agencies to whom the problem of
refugees in Hong Kong is an old story. A number of these organ
izations have conducted relief and rehabilitation programs for Hong
Kong refugees for over a decade.
Some of our witnesses have recently returned from the Far East
and will be able to give the committee and, through the record, the
Senate,firsthand reports on conditions as they are today .
The Hong Kong refugee problem was dramatized a month ago
with a sudden mass exodus ofthousands of Chinese from Communist
China . The situation has now returned to normal - if such a term
can be applied to this tragic problem . Our concern is to determine
how we can deal with a problem which has long been with us and
which still continues — the fate of 1 million refugees now in Hong
Kong.
Since 1954 our Government has supplied substantial quantities of
surplus agricultural products which havebeen distributed through
the voluntary agencies to the refugees in Hong Kong. In addition,
supplementary community services and facilities have been supplied
bythe voluntary agencies with some assistance from Federal funds.
The testimony today should add substantially to the record regarding
the adequacy of these programs and the measures which should be
taken to improve them .
25
26 REFUGEE PROBLEM IN HONG KONG AND MACAO
A preliminary and tentative appraisal of the Hong Kong refugee
problem appears to present the following. Of the million refugees
now in this British crown colony, perhaps half have become inte
grated in the community with adequate housing and employment,
and can be regarded as permanent residents. As for the remainder,
the Hong Kong Government is building 125,000 modern housing units
each year andhas programed the same number for the next 5 years.
The industrial economy is growing and will provide increasedem
ployment if the world market remains open for the sale of Hong
Kong's products. Nevertheless, some opportunity for immigration
to the other countries must be afforded if the problem is to be kept
within control and dealt with effectively. "," ,
On May 23, 1962, President Kennedy announced that "several thou
sand " Chinese in Hong Kong already registered and screened for im
migration to the United States would be admitted as parolees. I have
been told by the Visa Office of the Department of State that about
19,000 refugees in Hong Kong are registered for immigration with our
consulate office there. Of these , however, only 2,056 has been pro
cessed and screened and will beeligible for early admissionunder the
President's parole program . I have not yet been informed as to the
planning for the program beyond this point.
In March of this year, 25 Senators, including Senator Fong, joined
me in the sponsorship of a bill, S. 3043, to revise our immigration
quota system so that it can be more responsive to our domestic require
ments and our foreign policy objectives. Under this bill, the quota
for Chinese would be 5,335 instead of the present 105. In addition,
there is provision for the admission of a number of persons who would
qualify as refugees. The bill, while eliminating the present law's dis
crimination against Chinese and nationalities of other Far Eastern
countries would not, as many persons have written me and charged,
open the floodgates of immigration. Those of us who have sponsored
the bill believe that it offers a most realistic and effective approach to
the present situation.
It is my hope that the testimony today will be addressed not only
to the relief and rehabilitation programs supported by our Govern
ment and thevoluntary agencies, but also to a very candid and real
istic appraisal of the U.S. and free world responsibilities and capa
bilities in the resettlement of Hong Kong refugees.
This subcommittee is fortunate to have as a member one whom the
Senate of the United States and all of us acknowledge can speak most
eloquently and understandingly ofthe feelings and attitudes and aspi
rations of the people of the Pacific. We are fortunate, indeed, as a
subcommittee, to have Senator Fong. I fear I have never put that
onthe record, but I am delighted to have a chance to now, sir.
Senator FONG. Thank you, Mr. Chairman. Tap
Senator HART. Would you care to make any comment ?
Senator FONG . I have no comment to make.
Senator Hart. Perhaps I should indicate, because people who are
here to testify may welcome some indication of the order which has
been established, many have additional obligations in terms of time
which they must keep today. The best adjustment that we have been
able to develop is to have the batting order this way :
REFUGEE PROBLEM IN HONG KONG AND MACAO 27
First, testifying, will be James MacCracken ; then Bishop Swan
strom ; then Mr. Reuter; Mr. vanden Heuvel ; Miss Pettiss ; Mr. Chan
nel and Mr. Snyder ; and Mr. Bagration .
Our first witness, then, will be James MacCracken, director of immi
gration services of Church World Service, National Council of
Churches
STATEMENT OF JAMES MacCRACKEN , DIRECTOR OF IMMIGRATION
SERVICES OF CHURCH WORLD SERVICE , NATIONAL COUNCIL OF
CHURCHES
Mr. MacCRACKEN . Thank you, Mr. Chairman .
My name is James MacCracken and I am director of immigration
services of Church World Service.
Church World Service is the international relief and rehabilitation
arm of the National Council of Churches of Christ in the United
States of America , with headquarters at 475 Riverside Drive, New
York City.
Representing the humanitarian and social concernsour agency con
ducted programsin the past year in 50 countries of Asia, the Middle
East, Latin America, Africa, and Europe. During 1961, Church
World Service distributed 345,427,096 pounds of food, clothing, and
medicines abroad , valued at $25,373,891. We have recently been active
in Cuban refugee resettlement from Dade County in Florida . We
work internationally in close cooperation with theDivision of Inter
church Aid, Refugee and World Service of the World Council of
Churches with headquarters in Geneva, Switzerland.
During the past year 8 million people around the world have been
assisted throughChurch World Service programs divided into three
primary areas of ( 1) direct relief, ( 2) technical assistance, and (3)
immigration services.
Mr. Chairman, you have already received an impressive array of
statistics aboutthethousands of Chinese refugees who during the past
month sought shelter and sanctuary in Hong Kong. This was, as most
refugee developments, sudden and inexplicable asregards timing and
number. Our representative in Hong Kong early informed us that
the private voluntary agencies in Hong Kong were distressedtosee no
practical alternative to the crown colonyinitiation of repatriation, so
vast were the numbers and so limited the facilities of space in the
British colony.
With 100,000 births over deaths annually and a constant stream
of refugees, Hong Kong despite every human effort to the contrary
within its limited boundaries has 500,000 human beings in shocking
housing conditions.
Hong Kong Church World Service has tackled a variety ofpro
grams to endeavor to assist however modestly. Every day 50,000
children receive, through 8 milk stations, reconstituted milk and
fortified biscuits made of U.S. surplus food and purchased vitamin
additives. Mobile squads go to 33 food stations and church distribu
tion centers to issue rations of rice, meat, corn, oil , bulgur wheat or
flour. Substantial food allotments are provided 35 welfare institu
tions regularly. The child feeding program gives a daily hot meal to
10,000 certified needy school children - their sole hot food . Factories
28 REFUGEE PROBLEM IN HONG KONG AND MACAO
and apparatus peculiar to Hong Kong transfer unfamiliar commodi
ties such as flour and corn meal into miles upon miles of noodles, a
staple in the Chinese diet.
Last January, wind fanned aa fireholocaust which wiped out aa thou
sand refugee shacks in the Hung Hom section , leaving 11,000 home
less and destitute. Rice, canned pork, blankets, and clothing were
provided to many of thesevictims.
Another 140,000 people were fed through milk bars, institutions,
orphanages and church centers with clothing and blankets issued to
the neediest. Cotton donated by the Christian rural oversea program
was processed into quilts for new refugees and fire victims.
A TB clinic at the Chuk Yuen Center provided treatment to ambu
latory patients referred by the Government Chest Clinic. A mobile
dental clinic operated in 6 communities in the New Territories where
dental care was totally absent; service was provided to 900 patients
per month. A doctor's salary was madeavailable to the Family Plan
ning Association. Our service program included ablind persons voca
tional project, a working girls' hotel and the Faith -Hope Day Nursery.
Solid trainingand gainful employment were provided 100 Chinese
refugees, some blind ,through a knitting project. The project turns
out commercial quality sweaters, dresses and coats. The college stu
dent work project assists 400 needy students in return for their work
teaching in rooftop schools, helping in food distribution, or super
vising playgrounds. Newer projects turned out 728 neckties and 144
smock dresses.
In cooperation with the U.S. Refugee and Migration Unit of the
Consulate General, a number of buildings are being erected, including
a nurses' home, a noodle factory, 27 refugee cottages and an addition
to the St. Christopher's Orphanage. Some 900 stone cottages have
been built with churches and individuals' contributions, thus housing
5,000 refugees.
About 8,147,230 pounds of clothing and foodstuffs were shipped
during 1961 to Hong Kong, with an estimated value of $ 756,498.
When the recent refugee influx commenced, Church World Serv
ice joined fellow agencies on the spot in Hong Kong to make im
mediately available to the crown colony officials our stockpiles of food
and clothing. At the request of the crown colony authorities, special
food packages or clothing packages were not given out at the border
less additional thousandsof refugees be attracted to the influx or lest
those so gifted would remain for some days in the hills, only to return
and try again.
Rev. Elbert E. Gates, Jr., Director of Hong Kong Church World
Service was elected chairman of a special committee of the Hong Kong
Christian Welfare and Relief Council to prepare special recom
mendations in face of the refugee flood. In general the recom
mendations were as follows :
( a ) To urge the relaxation of immigration quotas in countries
where there is space and resources ;
( 6 ) To urge preferential treatment of Hong Kong products on the
world market ;
( c) To explore the possibility of massive aid to the mainland of
China :
( d ) To urge the Hong Kong Government to continue its humane
and understanding treatment of the refugees; and
REFUGEE PROBLEM IN HONG KONG AND MACAO 29
( e ) To ask that the private voluntary agencies be permitted to min
ister to the recent arrivals even though it was illegal to do so.
In his latest communication, Pastor Gates reports that the border
is now closed and that the situation of Hong Kong has returned to
normal — which is say that the drama and vast need I have earlier
described continues but without the benefit of glaring worldwide head
lines .
Mr. Chairman , President Kennedy has authorized the admission
of a token number of Chinese refugees who have been patiently waiting
for U.S. immigration visas for 5 or more years. The waiting list
is lengthy when only 105 annually are permitted entry into our coun
try from the thousands of Chinese applicants around the world . This
will be a welcome and helpful action. Still, I recall upon the eve of
our Independence Day during World Refugee Year that the U.S.
Senate passed a bill which would have granted such permission with
out having to wait upon such dramatic headlines. The bill failed to
gain approval of the House of Representatives. However, a special
subcommittee of the House did make a special study of the Hong
Kong Chinese refugee problem , particularly as it related to the United
States immigration. With your permission, Mr. Chairman , I quote
from page 20, of the House of Representatives Report No. 1284, filed
by Congressman Francis Walter, chairman of the House Judiciary
Subcommittee concerned :
While the number of refugees admitted to the United States from Hong Kong
has been small in relation to the vast numbers fleeing from Red China , the de
parture of the United States from the quotas established by previous legislation
has produced considerable goodwill on behalf of the United States in the Orient.
It has served as a valuable countermeasure to the Communist propaganda that the
United States is only interested in refugees of European origin.
Church World Service in cooperation with the World Council of
Churches Office in Hong Kong has assisted 1,444 such Chinese refugees
to enter the United States. Except for one man who starved himself
to send generous food packagesto wife and daughter in southeast Asia ,
not a single one of these people failed to become self-supporting. I
was most impressed by the subcommittee report as quoted above. Yet,
as I read further I was surprised to note thatthe authorsof the report,
the Honorable Arch A. Moore, Jr., ܕand the Honorable Basil L. Whit
ener, Members of Congress, arrived at a totally different conclusion
on page 23 of the same report :
The question of whether U.S. assistance should extend to increasing the
present immigration quotas for Far Eastern refugees must be answered in terms
of whether any reasonable increase will alleviate the refugee problem in
Hong Kong. The only realistic answer, since the refugee problem in Hong
Kong is not of a temporary nature, is that increased resettlement in the United
States will be of very limited benefit to an overall solution of the refugee prob
lem . From a practical standpoint, any reasonable increase that the Congress
might authorize, unless the Congress would be willing to accept numbers exceed
ing the normal yearly influx of refugees into Hong Kong ( 45,000 per year ) ,
will be of nominal consequence .
No program can be devised for effective increased immigration which will
not substantially depart from present U.S. immigration policy . For this reason ,
the subcommittee is unable to recommend, independent of an overall consid
eration which would basically alter present U.S. immigration policy, any pro
posals to solve the Far East refugee problem by changing the present quota
restrictions.
87544462 -3
30 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mr. Chairman, there is much validity in the conclusion of the sub
committee . Yet it is tragic that it does not allow for the value cited
.
earlier in the report of a token quota._It was in this spirit of recogni
tion and dignity that Senator Hiram Fong spoke so eloquently during
World Refugee Year. It is to this point also, Mr. Chairman, that
your own proposed legislation - S. 3043 - calls for a revision of the en
tire U.S. immigration approach.
We in Church World Service do not believe in irresponsible immi
gration into our country. We do believe that greater attention can
meritoriously be paid to refugees, family reunion, and special skill
categories. *President Kennedy and Congressman Francis Walter
have both recognized the validity of this view in their separate and
important Chinese refugee immigration proposals. We would wish
to see these provisions as permanent segments of our immigration
statutes provisions to meet standard recurring refugee need in our
world .
This past month our world's headlined refugee problem happened
in Asia. A few months back, our attention was drawn to the plight
of Cuban refugees, most still awaiting firm employment and perma
nent housing in our country. A few years before, we encountered
Hungarian freedom fighters. And tomorrow , Mr. Chairman , I ven
ture no geographic prophecy. Drastic refugee problems are a charac
teristic of our time. Temporary expedient legislation is not worthy
of the world leadership stature of our Nation. I join with knowl
edgeablecolleagues in the field in Hong Kong and call upon our coun
try to set a permanent pattern of immigration leadership which will
encourage other nations of good will to do likewise.
During this past week Church World Service was further called
upon twice for affirmative response with regard to the recent Hong
Kong influx. In reply to an inquiry from the U.S. Immigration and
Naturalization Service as to our ability to assistin a projected Chinese
refugee orphan parolee program , we replied that we would support
actively the International Social Service program by providing sup
port from the Protestant community both in seeking at least 100 places
in orphanages and institutions and in referring interested Protestant
families wishing to adopt the orphans who may be thus available.
The Taiwan Christian Service cabled 1 week ago that they had been
requested to supply bedding for a Chineserefugee transit centerfor
10,000 refugees from mainland China to Hong Kong . We replied
affirmatively that we would support their request with bedding, sup
plemental food,clothing, and medicinal supplies.
Thank you , Mr. Chairman, for the privilege of appearing before
your distinguished subcommittee.
Senator Hart. Thank you, Mr. MacCracken. The recital of the
earlier activities, earlier in the sense of predating the dramatic May
flow of refugees into Hong Kong, is just one more example, which I
hope the country will note, of the role that is played by voluntary
agencies.
More than once, some of us on the committee have commented on
the unfortunate lack of awareness in this country of the role played
by voluntary agencies. But I got some mail in reply to that, which
pointed out that there could not be such a lack of awareness, because
the means would not then have been provided the agencies to under
REFUGEE PROBLEM IN HONG KONG AND MACAO 31
take their missions. My reply was that that was true, but it would
be nice if there were still greater awareness. I think I will have to
put it in that frame.
You note on page 4 of your prepared statement that the Senate did
pass a bill that would have permitted admission to people from the
Pacific area , but that it was not accepted by the House.
Mr. MacČRACKEN. That is correct, sir.
Senator HART. This bill happens, of course, to have been funda
mental to the Senate immigration action of that session. Here again,
it highlights the role that Senator Fong has played in this .
I think I have no specific questions, but I am sure Senator Fong
may have. And I suspect that Mr. Johnson and Mr. de Haan of the
committee will .
Senator Fong . Mr. MacCracken , I am quite amazed at the tremen
dous amount of aid that the Church World Service has contributed to
the needy in the year 1961, the figure of $ 25,373,891. I am sure the
majority of cur people in the United States do not realize how much
humanitarian work is being done by the Church World Service.
For that, I would like to commend the Church World Service for this
great humanitarian task .
Mr. MacCRACKEN . Thank you, Senator Fong.
Senator Fong. I share with you the dismay and the disappointment
that the subcommittee of the House did not render a report which
would allow some refugees to come into the United States. My
amendment called for the bringing of 4,500 refugees, not only from
the Far East, but also from the Middle East, and this would be left
to the discretion of the Attorney General . It passed the Senate and
did not pass the conference. We were advised that the subcommittee
would go out to Hong Kong to review the situation. We had ex
pected a report which would be favorable at least to allow a token
number of refugees to come, because we hadsponsored the resolution
in the United Nations Assembly for World Refugee Year. The reso
lution was an empty gesture as far as the people of the Middle East
and Far East were concerned, and I think it was a mockery and a
delusion. I am very happy to see that the President's action has now
allowed some to come in.
I commend you for this very fine testimony you have given the
subcommittee.It will
help us in our deliberations.
Mr. MacCRACKEN. Thank you, Senator Fong.
Senator HART. Mr. Johnson ?
Mr. JOHNSON . Mr. MacCracken, on page 5 of your statement, you
make reference to President Kennedy's proposal and also to Con
gressman Walter's bill. I presume that in the latter instance you are
referring to H.R.11911, which provides for the admission of refugees.
Mr. MacCRACKEN . That is correct.
Mr. JOHNSON. As I understand it, this bill was not specifically
drafted for the Hong Kong situation , but do you have any idea how
many persons would be admitted under this proposal? In a sense, I
think it appears to overlap the President's proposal for admission on
parole, ofall persons presently classified.
Mr. MacCRACKEN. I am not completely clear as to the extent of the
nonoverlap, Mr. Johnson. It is my understanding also that the
President's Executive order and Congressman Walter's proposed leg
32 REFUGEE PROBLEM IN HONG KONG AND MACAO
islation do indeed overlap. There may be an error in which dossiers
may not be complete in the consulate general of the United States in
Hong Kong. Such dossiersmay be eligible under Congressman Wal
ter's proposed legislation. This is the only extent to which I could
see that the two do not overlap completely.
Senator HART. Mr. de Haan ?
Mr. DE HAAN . Referring to your testimony, page 3, part ( c) , which
concerns massive aid to mainland China - do you have any specific
proposals in that regard ?
Mr. MacCRACKEN. I quote further, sir, from a report received from
Pastor Gates to this specific. The agency representatives in the Hong
Kong Christian Welfare and Relief Council felt that part of this
refugee influx of the past month came because of famine or near
famine conditions within mainland China. There have been news
paper reports of literally hundreds of thousands of potential refu
gees who might have joined the exodus. It was the judgment of the
representatives, speaking through Pastor Gates as spokesman, that a
very concrete suggestion that they would pose to the International
Community would be the possibility of sending food into mainland
China. They were aware that this was a controversial recommenda
tion. They were equally aware that there was a good possibility such
an offer would be refused. But they did not feel, in the agony of the
moment, that they could make serious recommendations without mak
ing a recommendation which referred to one of the primary causes
which seemed to be behind the refugee exodus.
Mr. DE HAAN. In many quarters there appears to be some confu
sion -- jumping, now, to the situation on Taiwan - about phasing out
the feeding program of Church World Service. Would you describe
the situation to help alleviate the confusion ?
Mr. MacCRACKEN. If I may very briefly comment, this is a pro
gram which has received quite widespread publicity. It was the
intention of the Church World Service upon reviewing the family
feeding program to channel its energies into what it felt would be
programs that could be constructive, that would also be structured to
meet the need of the people to be served in the various groups on
Taiwan . The proposal to reduce the program over a period of
time met with a difference of opinion as to phaseout, and the re
alinement of program objectives. It was the latter point that we in
Church World Service were concerned with . We were interested in
moving away from a large, massive family feeding relief program
and trying to couple some of this energy with programs that might
have more positive end goals.
Now, I would be prepared and very pleased to provide the sub
committee with any additional information to this point that might
be helpful, but this is all I came prepared for this morning.
Senator HART. I think the committee would welcome, for its files
atleast, any additional comment you might make with respect to
this aspect .
Mr. MacCRACKEN. Fine, Mr. Chairman .
Mr. DE HAAN. Yes . I have just one more question.
In a general way, what is your reaction to the present governmental
system of control and audit in the food distribution program ? Do
you have any suggestions to improve the system !
REFUGEE PROBLEM IN HONG KONG AND MACAO 33
Mr. MacCRACKEN. I would be very pleased to include this as part
of the data which we would prepare to provide the subcommittee.
I would not consider myself the competent Church World Service
executive to respond to that very direct and helpful question .
Mr. DE HAAN . We would appreciate that material, too.
Senator HART. Thank you again ,Mr. MacCracken .
Mr. MacCRACKEN. Thank you, Mr. Chairman .
Senator HART. Next, the subcommittee will hear from Bishop
Swanstrom, the executive director of Catholic Relief Services, NCWC.
STATEMENT OF MOST REV . EDWARD E. SWANSTROM , EXECUTIVE
DIRECTOR OF CATHOLIC RELIEF SERVICES, NCWC; ACCOMPANIED
BY MSGR. JOHN F. MCCARTHY, ASSISTANT EXECUTIVE DIREC
TOR, CATHOLIC RELIEF SERVICES
Senator HART. Bishop Swanstrom , we welcome you back to the
country. I should explain, before we continue, that Bishop Swan
strom , on May 23, cabled the chairman of the standing committee,
Senator Eastland, and the chairman of the Immigration Committee
on the House side, Congressman Walter. I report this for the record
because Bishop Swanstrom thoughtfully addressed a report of this
cable to me. The cable read :
We urge United States take lead by offering admit at least 10,000 Chinese
refugees Hong Kong who have relatives and friends here anxious to provide
homes and jobs for them . Catholic Relief Services offers cooperate fullest
extent in resettlement these refugees. Such gesture on the part of United
States should stimulate others assist in this tragic problem.
Maybe I have stolen some of the statement which you have filed with
us, Bishop, but I felt your prompt response to the situation should
bemade a part of the record.
Bishop SWANSTROM . Thank you , Mr. Senator.
My name is Bishop Swanstrom and I am the executive director of
Catholic Relief Services-NCWC, the foreign relief and resettlement
agency of the American Catholic bishops. Until recently, I was
chairman of the American Council of Voluntary Agencies for For
eign Service.
I am happy to have the privilege of appearing before this commit
tee to present my views on the importantproblem it is considering of
the Chinese refugees in Hong Kong.
I had the good fortune to be in Hong Kong during the early days of
May when the crisis created by the influx of new thousands of refugees
from China into the crown colony was acute and critical.
I took advantage of the opportunity to spend several hours in the
Fanling section of the colony where a steady stream of refugees had
been arriving from the mainland. I was fortunate enough to be able
to talk with dozens of newly arrived refugees who had been lucky
enough to escape and who were in hiding from the Hong Kong police,
protected by friends until they could safely make their way into the
city of Hong Kong.
I was accompanied on this visit by priests who were formerly mis
sionaries in China and who could speak the language of the new
refugees and were familiar with the areas from which they had come.
Because they trusted me, the refugees spoke openly and I probably got
a truer picture from them than any reporter could possibly get.
34 REFUGEE PROBLEM IN HONG KONG AND MACAO
There was only one thing that motivated the escaped refugees to
whom I had the privilege of talking, and that wasa desire to get out
of China into Hong Kong so thatthey could send back packages of
food and money to the wives and children they had left behind. Those
I spoke to were all men - heads of families who, in agreement with
IS
their families, had spent anywhere from aa week to 3weekstraveling by
night through the mainland and hiding in the hills until they could
reach the border and escape both the Chinese guards and the Hong
Kong police. They told me stories of others who had not been so
fortunate and who had been caught and returned by either one of these
security guards.
I can say without fear of contradiction that to a man , their story
was pretty much the same. The hunger and famine in China was
decimating their villages. Many of them had been city workers who
had been forced to work on the collective farms and the tribute they
had to pay to the government in producewas so great that they barely
had sufficient left for their families. As I recall it
Senator Fong. If you will permit me, I will have to leave just now
to be aa witness before the Interior Committee on the Molokai reclama
tion project. We are trying to borrow $4 million from the Federal
Government. I will be back as soon as I can.
Bishop SWANSTROM . They spelled it out to me, actually, in pounds
of rice the ration they were permitted to retain was only enough to
feed a family for 10 days, whereas they had to stretch it over a whole
month. The price of rice on the black market was so exorbitant that
they could notpossibly obtain it.
Therefore, when they were turned back at the border by the Hong
Kong police, they were literally being told to go back to China and
starve with their families. That is a very strong statement, but in
essence , to my mind, that is what it amounted to .
No one could explain whythe Communist authorities had suddenly
relaxed their rigid control of the border, unless that was to embarrass
the free world. There may be some truth in this in view of the fact
that once the United States and Taiwan announced that they would
take some of these refugees, the Communists again sealed off the
border .
I watched the Hong Kong, police examine every vehicle coming
from the border at numerous checkpoints . Crowds of residents of the
colony watched as they seized different refugees who were attempting
to find their way into Hong Kong. I saw truckload after truckload
of refugees being returnedto the border to be sent back into China
and it reallywas a very sadand distressing experience.
I do not know exactly how many people tried to escape. It has