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HEARINGS
BEFORE THE

SUBCOMMITTEE TO INVESTIGATE PROBLEM
CONNECTED WITH REFUGEES AND ESCAPE
OF THE

COMMITTEE ON THE JUDICIARY
UNITED STATES SENATE
EIGHTY -SEVENTH CONGRESS
SECOND SESSION
៥.៩៤ក៏ងដែរ ៤
គ្រប
មានការ

MAY 29 ; JUNE 7, 8; 28 ; AND JULY 10, 1962

Printed for the use of the Committee on the Judiciary
សម័
iਘ
ਦੇਖਾਤੇ
ਵਿੱਚ
eਸਖ਼ਤ n

U.S. GOVERNMENT PRINTING OFFICE
87544 WASHINGTON : 1962
..

COMMITTEE THE JUDICIARY
JAMES 0. EASTLAND, Mississippi, Chairman
ESTES KEFAUVER, Tennessee ALEXANDER WILEY , Wisconsin
OLIN D. JOHNSTON , South Carolina EVERETT MCKINLEY DIRKSEN , Illinois
JOHN L. McCLELLAN , Arkansas ROMAN L. HRUSKA , Nebraska
SAM J. ERVIN , JR., North Carolina KENNETH B. KEATING , New York
JOHN A. CARROLL, Colorado HIRAM L. FONG , Hawaii
THOMAS J. DODD , Connecticut HUGH SCOTT , Pennsylvania
PHILIP A. HART , Michigan
EDWARD V. LONG, Missouri

SUBCOMMITTED TO INVESTIGATE PROBLEMS CONNECTED WITH REFUGEES AND
ESCAPEES
PHILIP A. HART, Michigan , Chairman
OLIN D. JOHNSTON, South Carolina ALEXANDER WILEY, Wisconsin
JOHN L. MCCLELLAN, Arkansas HIRAM L. FONG, Hawaii
 
CURTIS E. JOHNSON , Staff Director
II
***

CONTENTS

Hearings held at Washington ,D.C., on
Tuesday, May 29, 1962 ( including the testimony in executive session Page
released for the public record) 1
Thursday, June 7, 1962 .
9 25
Friday, June 8, 1962. 87
Thursday , June 28, 1962. 105
Tuesday, July 10, 1962.. 151
Statement of -
Anderson , Donald E. , director, Lutheran Immigration Service ---
> 106
Bagration, Teymuraz K. , executive secretary , Tolstoy Foundation,
Inc. 81
Brown, Richard R., Director, Office of Refugee and Migration Affairs,
Department of State .. 13
Channel, William W. and Edward F. Snyder, American Friends
Service Committee and Friends Committee on National Legislation . 63
Chennault, Mrs. Claire L., president, Chinese Refugee Relief; accom
panied by Mr. Eng Se-Suey and family. 88
Chin , Irving Sheu Kee, attorney, firm of Holtzmann, Wise & Shepard,
New York , N.Y.. 133
Corcoran, Thomas. 98
Dixon, Ross I., president, Shanghai Tiffin Club , New York, N.Y 143
Harriman, Hon. W. Averell, Assistant Secretary of State for Far
Eastern Affairs , Department of State . 6
Hong, Ngai Ho, Chinese -American Citizens Alliance, San Francisco,
Calif.; accompanied by Earl Louie - 147
Keating, Hon. Kenneth B., a U.S. Senator from the State of New
York . 2
Lee, David, treasurer, Chinese Refugee Relief 123
ofindery

MacCracken, James, director, Immigration Service, Church World
Service, National Council of Churches . 27
Pettiss, Mrs. Susan, associate director, International Social Service,
APR
B65
14
M
O

American Branch -- 57
Reuter, Richard, executive director, CARE, Inc. 43
Swanstrom , MostReverend Edward E., executive director, Catholic
Relief Services, National Catholic Welfare Conference ; accompanied
by Monsignor John F. McCarthy, 33
Vanden Heuvel, William J., president, International Rescue Com
mittee ; accompanied by Miss Deanna Chu.-- 49
Waters, Herbert J. , assistant administrator ., Office of Material
Resources, Agency for International Development. 151
Yee, Samuel E., Chinese- American Citizens Alliance, San Francisco,
Calif . 126
Appendix
Hong Kong Government Policy Statement on Immigration from
China and offers of help from overseas, June 13, 1962 163
Letter from Hon . Robert F. Kennedy, Attorney General, to Hon .
Philip A.Hart, on the progress of the Hong Kong parolee program,
July 17, 1962 166
Letter from Richard R. Brown, Director, Office of Refugee and Migra
tion Affairs, Department of State, to Hon. Philip A. Hart, on
refugee situation in Macao and the Far East refugee program ... 167
Memorandum from Martin J. Forman to Herbert J. Waters, Agency
for International Development, on the refugee situation in Macao,
June 18, 1962 170
Letterfrom P. Y. Tsao, counselor, Permanent Mission of the Republic
of China to the United Nations, to Dale S. de Haan, May 24, 1962.. 172
III
IV CONTENTS

Appendix - Continued
Statement by Rev. Claude H. Curtis, president, Gospel Missions, Inc. , Pago
Wahiawa, Oahu , Hawaii . 170
Letter from Rhoads Murphey, editor, the Journal of Asian Studies,
to Curtis E. Johnson , June 6 , 1962 . 176
Statement by Dr. Peter S. H. Tang, executive director, Research
Institute on the Sino- Soviet bloc, Washington, D.C --- 177 ,
Telegram fromMrs. J.Fount Tillman, president, Woman's Division
of Christian Service, Boardof Missions, Methodist Church, to Hon.
Philip A. Hart, June 8, 1962. 179
Statement by Herman Will, Jr., associate general secretary, Division
of Peace and World Order, General Board of Christian Social
Concerns, Methodist Church 179
Letter from Donald E. Anderson, director, Lutheran Immigration
Service, to Hon. Philip A. Hart.. 180

1
REFUGEE PROBLEM IN HONG KONG AND MACAO

TUESDAY, MAY 29, 1962
U.S. SENATE ,
SUBCOMMITTEE ON REFUGEES AND ESCAPEES
COMMITTEE ON THE JUDICIARY,
Washington, D.C.
The subcommittee met, pursuant to notice, at 10:05 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,S. de Haan,
Also present : Curtis E. Johnson, staff director; Dale
research consultant; and Earl Nishimura, minority counsel.
Senator HART. The committee will be in order.
While Senator Fong, of Hawaii, who has always had a very deep
concern in the area we shall consider today, is going to be here, I think
in fairness to Mr. Harriman we should begin.
I anticipate Senator Fong will arrive very shortly, Mr. Secretary.
Senator Dirksen was very kind to join us, and the committee ap
preciates this.
Today the Subcommittee on Refugees and Escapees begins hearings
on the problem of refugees from Communist China in Hong Kong.
Almost a year ago when this subcommitteewas studying refugee
matters, generally ; we heard testimony from Dr. Luther Evans, who
had conducted a study of this particular problem as a special con
sultant to the Department of State.
His report disclosed that about 1 million refugees were in Hong
Kong and that while the situation was not without difficulty, the
Crown Colony Government, with some assistance from other govern
ments, including the United States, and voluntary relief agencies,
was managing to cope with it. More recently, of course, this situa
>

tion drastically has changed.
Beginning about the first of May, daily refugee arrivals began to
number in the thousands.
The Hong Kong Government, unable to contend with this unusual
flood of refugees, found it necessary to send them back across the
Chinese border.
The necessity for this decision came with the shock of a douse of
ice water to the people of the free world. Until that moment many
people had felt that the problem of the Chinese refugees should be
the responsibility of the Government ofHong Kong. I believe it
can now be said , fairly , of the majority of Americans, that they now
believe the problem is one for all free people.
The mail I have received has been overwhelmingly for assistance
to the Chinese refugees.
1
2 REFUGEE PROBLEM IN HONG KONG AND MACAO
TO
These hearings are addressed to the problem of what can be done
to provide effective relief and assistance. To what extent is immi
gration of Chinese refugees to the United States and other countries
a feasible solution ?
2
Are additional food and relief supplies needed ?
Are the present programs which the American people support
privately and through Government adequate to the need ?
What are the implications of the recent mass exodus from Red
China ?
How do we account for its virtual halt within the last few days ?
Should we be prepared for a new wave of refugees?
Whatever the answers to these questions, we have long been aware
of the fact that 1 million refugees are already jammed into an area
of about 60 square miles in Hong Kong. This is a problem that just
won't go away, and our job today and in the additional hearings which
will follow is to try to gather the facts which will enable us to deter
mine how to deal with this problem .
Senator Dirksen, would you care to make any comment at this
point ?
Senator DIRKSEN. Well, I have no comment to make. I think your
statement points up the general problem . 16

In addition , probably other problems will intrude themselves as the
hearing goes on. To say the least this is a very delicate matter in
volving other things besides refugees, and all of those factors will
have to be taken into account.
no
Senator HART. All right.
Thank you , sir. .0

Mr. Secretary,we welcome you. I know the urgency of your sched
ule. I know also the urgency of Senator Keating's. It had been our M
plan to hear the Secretary first, but, Ken, would you like to get on ?
Senator KEATING. No, I would yield to the Secretary. I have an
other committee starting at the same time and it is our usual situation .
Senator Hart. Mr. Secretary, if it's all right — let me say this TE
Mr. HARRIMAN . I will be glad to wait.
Senator KEATING. I have just checked with the other committee.
They are going to be аa. little bit late, and the Secretary's statement is
very short, and he has been so courteous to me on many occasions that I
UT
I would prefer to have you hear him first.
Mr. HARRIMAN . Mr. Chairman, I am at your disposition, 31

Senator Hart. It occurs to me, Senator, that even though your
other committee meeting is marking time, that all of us might be a
little more comfortable if you did proceed . You would then be free
to leave.
Senator KEATING . Yes, I will abide.
Senator HART. Senator Keating.
STATEMENT OF HON . KENNETH B. KEATING, A U.S. SENATOR FROM 4

THE STATE OF NEW YORK

Senator KEATING. I would be very happy to see him here beside
me, a veryable person and I know will give very interesting testi
mony and Ishall read a copy of his remarks with great interest.
I would like to commend , Mr. Chairman, the efforts which you and
the members of the subcommittee have taken to get at the heart of
REFUGEE PROBLEM IN HONG KONG AND MACAO 3

this worldwide refugee problem , and particularly am I pleased that
the subcommittee isnow giving attention to one of what seems to
me, history's most heartrending episodes in human misery, the refu
gees from Communist China in Hong Kong.
The refugee problem in Hong Kong has not developed overnight.
The State Department has informed me that over 3 million refugees
have fled Communist China since the end of World War II.
Of this number 1 million refugees live in the teeming city of Hong
Kong alone. This long -developing problem has become acute in re
cent months, however, because of the dramatically accelerating rate
of influx into Hong Kong and because of the forced return of thou
sands of refugees to Red China by the British .
Since the end of World War II the flow of people has always been
to freedom and away from communism . Hungary, Cuba, East Ger
many, and now China are clear examples of the desire of most human
beings to escape from tyranny and live in freedom .
In no corner of the world has the tide of humanity reversed this
course . There has been no exodus from freedom to tyranny, and I am
confident there never will be. In the long -range battle for the support
of mankind, this is certainly compelling evidence that the free world
must ultimately prevail.
Has the free world really lived up to its responsibilities in this area !
It has done a great deal for the Hungarians, the Cubans, and the East
Germans. But, whether it shocks our sensitivities or not, it must be
said that it has failed dismally in relation to refugees from Communist
China.
To begin with , our immigration laws have discriminated against
orientals almost from their inception.
In 1961 , for example, only one one -thousandth of all quota immi
grants admitted to the United States were Chinese. Our programs
for refugee relief have also failed to make provision for Hong Kong
refugees.
The President's statement that Chinese now awaiting admission to
the United States under the first preference quota will be admitted on
parole, will be of some assistance, although a substantial question has
been raised as to whether this is more than a token gesture.
I have just learned that despite conditions in Hong Kong,we have
been regularly deporting Chinese nationals from the United States to
that city until very recently.
Many ofthese deporteeshave resided in the United States for over
10 years. How many ofthese people, after arriving in Hong Kong,
have been forced by British authorities to return to communism can
not be determined at this time.
However, I am pleased to state that the Immigration Service has
informed me that at least for the time being no further deportations to
Hong Kong will be made.
An enlightened immigration policy and a more equitable refugee
relief program would help the Hong Kong problem . But if we are
to face facts, we must admit that even the most enlightened immigra
tion and refugee policies would not solve this crisis. The most far
reaching legislation proposed would not allow the United States to
offer refuge to more than an infinitesimal number of those seeking es
cape from Red China .
4 REFUGEE PROBLEM IN HONG KONG AND MACAO

We must keep in mind the basic elements of this crisis : First, that 14

the number of human beings potentially involved is unmatched by
any previous situation ; secondly, that the fundamental reason for
this exodus appears to be economic ' more than political ; and thirdly, LI

that despite the understandably economic motivation of the hungry D

masses fleeing Red China, this exodus can become a major political
and psychological victory for the West in the conflict with com
munism.
If we are to achieve this victory, one thing is essential: we must 3
not turn our backs on these victims of communism's failures, and
we cannot allow a wall to be built against others seeking relief.
I do not question the good faith or sincerity of any of our allies.
But this is a time for boldness and sacrifice and not a time for mute
surrender to so -called practical considerations.
We refused , after the Korean armistice, to return any prisoners who
did not want to return to communism . We are still at war with
Red China, or to put it more accurately, Red China is still at war
with the world .
If we refused to forcibly return former enemy soldiers behindthe 3
Chinese Wall, how can we now permit the forcible return of fellow
human beings who have never fought against us and who seek only
food, peace, and freedom ?
The exodus from Red China is a challenge to the West but it must
not be viewed as a threat. It is a challenge to the ability of free
societies to mobilize their resources for the relief of massive human
suffering. If we succeed we will have built on a Communist failure the
most dramatic demonstration in recent history of the superiority of
the free world's system over communism .
I hope that the American people, who have always been strongly
united in the fight against communism , will grasp this opportunity il
to turn a Communist setback into aa Communistrout.
What I propose specifically is 91
(1) that we send to Hong Kong whatever quantities of food and
medicine may be needed and thatthis material be airlifted if necessary ;
( 2 ) that we send to the area as many ships and planes as may be
required to transport the refugees to Formosa and other parts of the
world willing to accept them ;
(3 ) that the free world establish a fund for sharing the costs of
resettlement and rehabilitation in any country, including Hong Kong
and Formosa ; and
( 4 ) that the Peace Corps establish a special project for working
with the Chinese refugees ; they can help build shelters, they can help
distribute food, they can help teach new languages, and they can
help in the processes of resettlement.
How much would all of this cost ? Far less, I am certain , than we
spent saving South Korea, or propping up Laos or Vietnam; far less
even than we have spent in an effort to buy the neutrality of Com
munist Poland and Yugoslavia, perhaps even less than the cost of
one nuclear carrier, or the cost of storing feed grains for pigs and
chickens in warehouses throughout the country,
The exodus from Red China is proof that communism is losing
its case. Will this be a hollow victory for the free world or a decisive
victory, is the question . And the answer depends on whether we
REFUGEE PROBLEM IN HONG KONG AND MACAO 5

will meet this economic challenge with the same ingenuity and de
termination with which we would meet a military challenge of the
same order .
I hope we can convince our allies that the tremendous stakes in
volved in this issue justify, extraordinary measures. If we fail to
mount a joint effort, the United States must nevertheless not forfeit
this opportunity.
Success will contribute to our strength against communism more
than any other measure we could now pursue. I believe with all my
heart that the forces of freedom in this world can alleviate the suf
fering which the whole world knows is being caused by communism's
failures, and I am confident that this subcommittee under your leader
ship , Mr. Chairman, will urge whatever programs are required for
this purpose.
Thank you very much .
Senator HART.Senator, the suggestions you make, at least in some
cases, are dramatic enough to indicate that given that kind of leader,
ship and will, America can turn a defeat, in this case of Red China,
into a rout.
I am glad you made the point, becauseI think right at the outset of
these hearings we ought to put some things in focus around here.
All of us are concerned about our image and reputation in the rest of
the world. Everything that happens we test to discover, among
other things, how it affects our image.
There hasbeen some expression of concern that our image has been
damaged by the situation in Hong Kong. A reverse English wall
has gone up:
Let's get it straight. The most badly damaged imageas a con
sequence of incidents in Hong Kong is communism's . The Com
munist image, Red China's specifically, and the systemin general are
damaged. It is a demonstration of overwhelming failure. The de
feat is the Communist's; the failure is theirs; the image damage is
theirs.
True, our response is observed by a waiting world ; but first things
first .
If what has happened to Red China had happened to us, it would
have been a demonstration of complete failure on our part. But
it happened to Red China. I am glad that you made the point.
Senator Dirksen ?
Senator DIRKSEN. I have no questions at this time.
Senator HART. Senator FONG ?
Senator Fong. I just want to say, Mr. Chairman, Senator Keating
in his very powerful, dynamic, and forceful statement has again
demonstrated his great leadership in the cause for justice, freedom ,
and for liberty . I want to commend him for this very, very fine
statement. It is a strong statement. SenatorKeating has been in
the forefront of this battle for freedom , and I hope that this com
mittee can help him in his fight.
Senator KEATING . I appreciate that very much, I may say to my
colleague.
Senator Hart. Thank you very much.
Senator DIRKSEN. Ken , one question. You haven't introduced any
legislation , have you ?
'
6 REFUGEE PROBLEM IN HONG KONG AND MACAO
G
Senator KEATING . No, I have not. I thought perhaps as a result
of these hearings something might develop. Of course, I recognize
perfectly well that most of the suggestions that I have made do not
deal with the immigration aspect. I think without any question we D
should, in addition to that, take the leadership and a fair share of PT
these refugees , but the number is so tremendous that that alone , the
free world couldn't possibly absorb all of them . We must do more IM

than that, and it does seem to me that for those who want to go there ,
the normal place for them to go , to help them to go is to Formosa.
Senator HART. Thank youvery much.
Senator KEATING. I shall read the Governor's statement with great TI
interest.
Mr. HARRIMAN . You wouldn't have to stay long to read it.
Senator Hart. Mr. Secretary, thank you for your patience, and
we welcome you.
14

STATEMENT OF HON . W. AVERELL HARRIMAN, ASSISTANT SECRE
TARY FOR FAR EASTERN AFFAIRS, DEPARTMENT OF STATE
Mr. HARRIMAN . Senators, I appreciate this opportunity to discuss It
with you a very vital problem , and your subcommittee, may I say ,
has been of great value in the past and I know will be in the future in
dealing with the problems of refugees and escapees throughout the
world .
As Senator Keating has said , there is a dramatic new problem that
has developed as the result of the heavy flow of people from Red China
into Hong Kong ont

Now , beginning about the first of May, the number of Chinese he

refugees trying to enter Hong Kong increased spectacularly as you
well know 20

Each week for years past, dozens or perhaps hundredshad been mak
e
ing the attempt, often at the risk of being shot by the Communist
border guards.
01
For reasons we do not know , the Communist guards suddenly
IN
stopped trying to prevent border crossing. News of this sort spreads
rapidly in China. Where dozens had been, there were tens of
thousands. to
This drew the spotlight of public attention to the Hong Kong ful

border. But it was not a new situation . Since 1948 hundreds of
thousands of Chinese refugees have fled to Hong Kong, first to escape
theadvancing Communist troops and later to escape the hopeless life 0
which Communist leaders imposed on China . This flow has brought the
NE
to Hong Kong over á million of its 3 million people, its present
population ,
În Hong Kong these refugees have been resettled and provided with thi
medical assistance, housing, and educational facilities. The govern- den
ment and people of Hong Kong have accomplished this primarily
through their own efforts and from their own resources, and they
deserve thefree world's praise and thanks for it.
Most of the refugees have found jobs to support themselves in Hong
Kong's rapidly expanding private enterprise economy. Most impor
tant of all, the Hong Kong government has treated them on the same
footing, as other residents and has insured them the opportunity to
live their own lives in freedom .
REFUGEE PROBLEM IN HONG KONG AND MACAO 7

The people and Government of the United States have long been
aware of the Hong Kong refugee situation. American voluntary
agencies operating in Hong Kong have, since 1954,distributed surplus
a value of over $ 30 million , under Public Law 480, title III.
food with a
These agencies have also contributed clothing, health supplies, and
other necessities to meet immediate needs of the refugees and help
them support themselves.
These contributions apart from food provided under Public Law 480
represent the direct gifts of individual Americans and amount to
millions of dollars each year.
Under the Far East refugee program the U.S. Government has
provided funds and other help amounting to about $8 million for
resettlement, medical aid, housing, education, vocational training,
and community centers.
The American people can justly take pride in this effort. At the
same time we should remember that it is aа . small fraction of what the
Hong Kong government has spent to provide new housing, schools,
health services, and such basic needs as water supplies for the in
creased population .
It now appears that the spectacular flow of border crossers has
stopped, at least for the time being. Perhaps the Chinese Commu
nist authorities could no longer tolerate this revelation to the outside
world that so many Chinese people wish to leave “ People's China.'
Smaller numbers of them will probably continue to escape as was
the case in the past years. The needs of the refugees in Hong Kong
will continue. I am sure the American people will continue to help.
As the President stated last Wednesday, we are making arrange
ments as rapidly as possible for several thousand Chinese refugees to
come to the United States. It is evident that resettlement of Chi
nese refugees here and in other countries can in some degree help the
situation , and in addition to what we can do in this direction ourselves
we would consider sympathetically requests to help other countries
take in numbers of these refugees. We are in touch with the Chinese
Government in Taipei to learn more about its proposal to resettle
numbers of Chineserefugees on Taiwan .
We must remember that the increased flow of Chinese refugees into
Hong Kong is but a small aspect of a vast problem. The root of this
problem is in China . Beforethe Communists seized power in main
land China, Chinese people on a number of occasions went to Hong
Kong to escape disasters in their home areas .
On those occasions the disasters were local and temporary, and
when they had passed the refugees almost all went home again. What
today's refugees have fled is the cumulative result of 12 yearsof Com
munist rule . There is no sign that the recent border crossings came
about because conditions where these people lived had taken a sud
den turn for the worse. They were not starving.
In fact, our information indicates, that there was no physical evi
dence of malnutrition. But most of them are farmers, and they were
well aware that what Communists had done to agriculture in China
was a ' worse disaster than the most severe natural calamities they
had seen or heard of.
Others were industrial workers largely from Canton ." They had
lost their jobs because the collapse of agriculture has severely affected
8 REFUGEE PROBLEM IN HONG KONG AND MACAO

industry. They had learned that the Communist authorities planned
to send perhaps 200,000 of them to the farm villages. They might
have jobs of a sort there but the main purpose would be to have them
fed there,relieving the city authorities of this responsibility.
The Chinese are an eminently pragmatic people. They believed
that life in Hong Kong would be better than what they could foresee
in the Chinese Communists' promises. They saw a chance to try to
getinto Hong Kong, and they took it .
Hundreds of thousands ofother Chinese would, by all accounts,do
the same if they could . This is the most telling commentary possible
on what the Chinese people think of the Communist system in action.
We can be sure, I believe, that the Hong Kong governmentwill con
tinue to give safe haven to numbers of escapees from Communist
China, as they have in the past, and to the extent possible integrate
them into the Hong Kong economy. For our part, we should con
tinue our assistance to this humane endeavor.
2

Senator HART. Thank you, Mr. Secretary.
I have just one question in our preliminary exchange here.
Do you know whether or not this step -up in the number of refugees,
heavy influx, was anticipated ?
this
Mr. HARRIMAN. I don't know of any advance warning. I think
there were perhaps a few days' notice, but no great notice, and the
reasons,, of course, are very complicated. What induced the authori
ties to permit, suddenly permit, this increase in the issuance of exit
permits; I think the increase in exit permits in Canton started in
April, so there was some advance notice that they were given them,
and, of course , when the word went around there would be an increase
in exit permits, why other people applied and much to their surprise
they were given them .
Whether they were let out in order to relieve the Canton authorities
of their responsibility of feeding more people than they felt they
could or what induced them to do this or what induced the central
Communist authorities to permit these large numbers to leave is very
hard to understand ,
What seems to be clear is when they found this enormous number
leaving they felt their reputation in the world couldn't stand this
exposéof the desires, which I think is pretty widespread throughout
China, of the Chinese people wanting to get out from under the dis
astrous economic and social conditions , which have been caused by the
Communist rule.
Senator Hart. I take it from your concluding comments then , that
you do not anticipate, in the near future at least, a resumption of this
kind of mass flow?
Mr. HARRIMAN . Senator, I don't know. We can't guess what they
are goingto do. There is no indication they do planto permit a new,
large exodus. They have permitted a few people to leave for various
reasons, but most of those who have gotten out are in the category of
escapees through Macao or Hong Kong,
Senator HART. Senator Dirksen ?
Senator DIRKSEN. Governor, does anybody have a theory as to why
this stopped as quickly as it began ?
Mr. HARRIMAN. The only theory that I have heard advanced is that
they could not stand the world propaganda exposé of the numbers of
REFUGEE PROBLEM IN HONG KONG AND MACAO 9

people who weredissatisfied with the regime in Red China. That is
the only explanation that I have heard.
It ismore difficult to explain why they permitted them to come. I
think the exposition of the reasons I gave you of why they clamped
down is the reason .
Senator DIRKSEN . Under all practical circumstances, I would as
sume that w re this exodus could be counted in terms of dozens or
perhaps hundreds of a week before and then jumped into the thou
sands
Mr. HARRIMAN . Perday.
Senator DIRKSEN . That it must have been an inspired effort of some
kind.
Mr. HARRIMAN. I don't think that there is any evidence to that
effect. They permitted more exit visas and people responded to the
privilege of getting an exit permit in these very large numbers.
Why they permitted the exit visas to be increased there can only be
speculation. But one speculation isthat thePeiping authorities found
it very difficult to feed the people there, and this was a way to reduce
their responsibility for feeding people with an inadequateamount of
food , to fulfill the ration , the very low ration.
As I have said in my testimony, the information we have is that
they had already provided for 200,000 Cantonese to be moved, to be
thrown out of Canton, and be returned to their villages, and that, of
course, created a great deal of difficulty in the villages, where the
villages simply saw more mouths to be fed, and some of them then
decided if they could get exit visas they would leave.
There is also some indication that unemployment has been created
by the inability of the Peiping authorities to import the necessary raw
materials to keep the factories going.
So that there is no doubt that the evidence indicates, I should say,
rather than no doubt, the evidence indicates, if they were permitted
to do so there would be enormous exodus from all over China wanting
to escape the people's paradise and, of course, in fact, this is not dif
ferent than what exists in almost all, if not all , of the Communist
countries.
For years we have known of the desire of people of Russia or the
Eastern European countries, to leave their countries and find life
in freedom . But they haven't been permitted to do so as you well
know . I think the most spectacular example of restraint is the wall
that was built in Berlin which exploded for all time the claim of the
communists of the worker's paradise behind the Iron Curtain.
Senator DIRKSEN. I notice in your statement you say that there is
no evidence that they were actually impelled by starvation or mal
nutrition . I would assume that is based upon some examination or
survey ofthe people?
Mr. HARRIMAN . Yes.
Of course, we are depending upon the rather superficial examina
tion that the British authorities in Hong Kong were able to make.
Generally speaking, throughout China, instead of the historic starva
tion that occurred when there was bad crop in certain areas with
normal food in other areas, the Communists have distributed the
hunger, we might say, although some communities are better off, some
professions are better off than others, the army, for instance, but
10 REFUGEE PROBLEM IN HONG KONG AND MACAO

generally speaking, they have reduced the ration all over China in
order to distribute the food, which from our information seems to
indicate that the nation as a wholeis getting a substandard diet, so
low it is impossible to maintain full vigor of work but yet adequate
to prevent starvation .
Senator DIRKSEN. Was there any hint, in any information avail
able, that these refugees are diffused all over China or is it a concen
trationof people coming from a single province ?
Mr. HARRIMAN. It seems to come from the Kwangtung Province,the
one around Canton, and according to our information from the British
most of them came from within a radius of 150 miles and not from
farther afield .
Senator DIRKSEN. So it is really a concentrated exodus from a
limited area ?
Mr. HARRIMAN . This seemed to be started from an increase in exit
permits given by the Canton authorities. But this is preliminary in
formation, and † speak of it as what our information indicates rather
than beingable to testify that these are facts.
Senator DIRKSEN . I think that is all .
Mr. HARRIMAN . But, of course, the British have given us the in
formation that they have been able to glean from those escapees, those
people theyhave rounded up , and spoken to.
Senator HART. Senator Fong ?
Senator Fong. Governor, have you sufficient knowledge to say
whether the reasonsare greater or the depth of feeling is greater in
the Chinese people, in leaving China for Hong Kong as compared to
the Germans in East Germany leaving East Germany for West
Germany ?
Mr. HARRIMAN . I have no way to compare the two. I think it is
quite evident these people came out because they believed they could
get a better life for themselves and their families in Hong Kong than
in remaining in the communities, and that generally confirms the
stories we hear of dissatisfaction throughout the whole of China.
Senator FONG. Governor, you are the Assistant Secretary for Far
Eastern Affairs and you did not touch upon the question of allowing
some refugees to come to the United States.
Before this committee there is aproposition that we should allow
some refugees to come to the United States.
The President hastalked in terms of approximately several thou
sand refugees, and Senator Hart has introduced a bill asking that
50,000 refugees be allowed to come to the United States from the whole
world .
If some refugees were allowed to come to the United States, how
would that improve our image as far as the Far East is concerned,
especially southeast Asia ?
Mr. HARRIMAN. Well, as you know, I quote here from the Presi P

dent's statement the other day, press conference, that under existing
law, he was planning to make arrangements for several thousands to
be admitted into this country .
I have already had a good reaction from some of our Asian friends
who are here in Washington . Although this is relatively a small
amount, it indicates a changed attitude toward immigration from
Asian countries, and therefore, my answer is that admitting more
REFUGEE PROBLEM IN HONG KONG AND MACAO 11

Asians or not discriminating against Asians in our immigration laws
would improve our image, if you wish toput it that way, or our good
will, to put itanother way, among the Asian people.
Senator Fong. Would that be universal among the Asian people ?
Mr. HARRIMAN . I would think it would be universal.
Senator FONG. And you would recommend that we do admit some
refugees ?
Mr. HARRIMAN . I haven't studied the legislation, frankly, that is
before you .
Senator Fong. Asa generalproposition ?
Mr. HARRIMAN . But I fully support the President's position ad
mitting some immediately under the existing law.
Senator Fong. Thank you.
Senator DIRKSEN. They can under existing law parole Asians into
the country as well ?
Mr. HARRIMAN. That I understand is the position taken by the
Attorney General.
Senator Hart. That is a good answer. That sounds like a lawyer's
answer ,and I would say it is a very good lawyer's answer .
Mr. HARRIMAN . I think the Attorney General as a result of his
extraordinarily and very interesting trip to the Far East has a very
keen understanding of our problems.
I think no American has had more success in so rapid a time in
understanding the attitudes of an important group of the Asian
people, namely, the youth. He talked with them frankly and it
wasn't his debate with the Communists that made the impression, but
answeringthe normal and legitimate questions of young students
about the United States and what we are tryingto do, and particularly
in Japan where I followed him , I found thathis visit had been very
effective, and was the first public communication between the United
States and the youth of Japan, and it indicated the need for more
communication with the new rising generation.
It also gave him an insight into our problems.
Senator DIRKSEN. Governor, in view of the fact that there is abun
dant authority in Public Law 480 to provide the necessary food from
our surpluses, and there seems to be sufficient authority in the Mc
Carran -Walter Act to provide for the administration of parolees,
do you know whether the administration contemplates additional legis
lation with respect to this immediate problem ?
Mr. HARRIMAN . Well, the problem is under consideration as a mat
ter of emergency because of the enormous flow which occurred, and
the most regrettable aspect of so many of them being turned back.
That, of course, that has been, that study has been ended because
of the stop inflow. Whether this concentration of public opinion on
the whole problem of resettlement of refugees coming to Hong Kong
or Taipei “should require new legislative authority will be studied,
in a more from a long-range standpoint but theneed for emergency
measures has been stoppedby this check now in the flood of im
migration,
Of course, as far as Hong Kong is concerned, we immediately offered
more food to them to take care of their people. They were unwilling,
as you know , to set up a refugee camp.
12 REFUGEE PROBLEM IN HONG KONG AND MACAO

They have maintained that their responsibility was not to establish
refugee camps with all the misery that goes with that but those they
permitted to remain in Hong Kong should be integrated into the 1
economy as rapidly as possible, and I think all of us who have been
to Hong Kong have - must respect the responsible attitude of the
Hong Kong authorities which they have taken toward those they
have permitted to remain .
Incidentally, there has been a larger outflow of emigrants. The
legal and illegal entry into Hong Kong, I am told, from the first of
the year, up to the third week in May, has been 45,000 which they are, +

I understand, planning to integrate into their economy.
And incidentally, if I may take this opportunity to put it into the
record, the assistanceto the Hong Kongauthorities andthe assistance
to the resettlement of the refugees should not be limited only to food FD

HAN
and relief supplies, but I think we should give encouragement to the
Hong Kong authorities to give them jobs, and this should be con
sidered in connection with legislation permitting the entry of manu
factured products from Hong Kong because only through exports can
these people in Hong Kong live.
I was very much impressed with the need for continued opportunity
for the sale of their manufactured goods to the United States, and I
discovered , as one usually does, information which one doesn't know
>

until one goes to a place. On balance we were selling more to Hong
Kong, slightly more than we were buying from Hong Kong so that
I commend to this committee to give consideration to giving oppor TI

tunities for helping the Hong Kong authorities in giving opportunity
for employment. Th
Senator DIRKSEN . Has that matter been discussed in the State
Department ?
Mr. HARRIMAN . It is constantly discussed, this whole matter
Senator DIRKSEN . No, I mean the admission of Hong Kong goods
under preferential treatment ?
Mr. HARRIMAN . No, because it is tied in with our very complicated
procedures in connection with our general tariff legislation, and our
general tariff agreements.
I think that many of the decisions that are made are effected by
public attitude, and the attitudeof labor and management in connec be
tion with permitting small quantities of manufactured goods to come
into Hong Kong.
They are tiny percentages of our total consumption of these items AN
in this country . IN

Senator HART. Mr. Secretary, the committee is to hear also , as you TI
know , Richard Brown, the Director of the Office of Refugee Affairs
in the Department. 21
:, I feel that if your schedule permits it, and following such questions WY

as may be directed to Mr. Brown, the committee would then proceed
in executive session to review with you certain of the I think we used
the word “ delicate ” -items that attach necessarily to our subject.
Then we might have a record here which would help all of us in the no
Congress to better understand our responsibilities.
-

Mr. HARRIMAN . Senator, I will be very glad to stay as long as the
committee wishes me to.
REFUGED PROBLEM IN HONG KONG AND MACAO 13

Senator Hart. Our next witness is Richard R. Brown, the Director
of the Office of Refugee and Migration Affairs, Department of State.
Mr. Brown .

STATEMENT OF RICHARD R. BROWN, DIRECTOR , OFFICE OF
REFUGEE AND MIGRATION AFFAIRS, DEPARTMENT OF STATE
Mr. Brown . Mr. Chairman, and members of the committee, Secre
tary Harriman has called the attention of the subcommittee to some
facets of the foreign policy considerations which have confronted the
United States as a result of this influx, and he alluded to some of the
program accomplishments.
I have a prepared statement which goes into a little more detail in
some of the program aspects and calls attention to one or two other
items which Secretary Harriman has not covered .
I would propose, Mr. Chairman, with your permission, that I just
present the statement for the record and then in order to be very brief
here summarize its contents.
Senator Hart. The statement will be made a part of the record .
Mr. Brown. Mr. Chairman , I feel it is necessary for several points
to be borne in mind as we dedicate ourselves to this problemof con
sidering the refugees, the new influx of refugees in Hong Kong.
First, I think it is extremely important that we bear in mind that
all of the assistance which can be given to the refugees in Hong Kong
in whatever form it is given , has to be the determination of the Hong
Kong Government.
That hasbeen true in the past, it is true now and certainly it will be
true in the future .
The British authorities in Hong Kong must acquiesce to any of
the offers of assistance or aid to solving this problem .
Secondly,> I think we would remiss if we did not keep in mind the
tremendous contributions which the British authorities in the crown
colony have made over thepast decade in attempting to alleviate the
condition faced by these refugees.
Some of us who have been to Hong Kong on numerous occasions
have seen the transition from the cluttered hillside shacks to these
modern estates as far as housing is concerned. They have not been
able to complete all of it, but I can assure you , Mr. Chairman, that
since my own initial visit to Hong Kong in 1954 there has been a very
marked improvement in the condition of the then squatters on the
hillsides, the roofdwellers and the others.
The job has not been done but it is well along the way .
Next, I think it is important that we bear in mind thatthe United
States has not been remiss in its attention to assisting the Hong Kong
Government in the handling of the Chinese refugees from Red China.
.
Since 1953, we have maintained a program of full cooperation with
the British authorities there in which every effort has been made to
render maximum assistance for a relatively small amount of expendi
ture each year .
Initially recognizing we were having to deal with a vast number of
refugees, we have concentrated upon developing a program , first, for
selected refugees and in the initial stages we concentrated primarily
87544-62--2
14 REFUGEE PROBLEM IN HONG KONG AND MACAO

upon the intellectuals and the skilled people trying to give them op
portunities in an otherwise almost impossible situation .
Then, we sought to aid selected types of refugees, whereby we con
centrated upon young people and children. Lastly we concentrated
upon developing selected types of projects which would give as much
assistance as possible and still merit recognition for the U.S. con
tribution.
I think, too, it is important as we discuss what we have done in this
area, that we also callattention to the tremendous interest which was
generated in the HongKong refugees almost on a global basis through
the World Refugee Year, which resulted in very sizable sums of
money and offersof service which were accepted by the responsible
authorities in the crown colony.
We, as the U.S. Government, in addition to our regular program ,
which has amounted to somewhat over a million dollars annually, made
a special contribution of slightly over a million dollars to assist in cer
tain rather dramatic types of projects which were carried on in Hong
Kong.
I have summarized those items in my presentation.
Mr. Chairman, I think it is also important that we bear in mind the
respective roles of at least two of the international agencies which are
interested in the field of refugees.
Considerable talk has beenhadwith reference to what the U.N. High
Commissioner for Refugees could do.
The Office of the U.N. High Commissioner for Refugees does not in
clude the Hong Kong refugees in hismandate. However, under Gen
eral Assemblyresolutions that are called the Good Office resolutions, he
is permitted, and has carried on a very significant program in behalf
of the HongKong refugees, not directly operating as such, but trying
to summon the maximum of international aid and services for these
refugees.
The U.N. High Commissioner for Refugees, just 2weeks ago, at the
time of themeeting of his Executive Committee, made an offer to Her
Majesty's Government and in turn to the Hong Kong authorities to
utilize hisgood offices in any way possible to assist in the present crisis.
That offer has not yet been taken up.
With respect to the Intergovernmental Committee for European
Migration, it must be bornein mind that this Committee, for the most
part, is nonoperative outside of Europe. It has had under aa special
provision of its constitution an opportunity tocooperate with theU.N.
High Commissioner for Refugees in moving the several thousand Eu
ropean refugees who come out through Hong Kong from Red China,
but the Committee does not have the responsibility for doing anything
with respectto the movement of Chinese refugees there.
The excellent services and background of this Committee and its
experience could be brought into play to remove Chinese refugees,
provided that the costs involved were completely reimbursed to the
International Committee for European Migration.
As you know , Mr. Chairman, we are now cooperating very closely
with the Attorney General's office, particularly the Immigration and
Naturalization Service in attempting to hasten at least the first arrivals
to the United States of Hong Kong
refugees under parole procedures.
The extent to which this program can be expanded to include others
REFUGEE PROBLEM IN HONG KONG AND MACAO 15

largely depends upon the analysis presently being made with respect to
the currency of the sponsorships and the willingness and the sustained
interest, of the people, in wanting tocome to the United States.
All of that is being very carefully reviewed, to achieve a rapid
handling of the program . The Department has assigned additional
consular officers to HongKong.
In conclusion , Mr. Chairman, may I merely state that, first of
all, with the attempts that have been made over the period of time
since 1953 by our Far Eastern refugee program , we have found that
resettlementis not the answer.
It has helped. But unfortunately the numbers who have moved
from Hong Kongelsewhere are pitifully small compared with the
numbers that theHong KongGovernment hasbeen forced to integrate
and to try to assimilate into the economy of the crown colony.
We, in turn , have done our utmost to try to stimulate movements
outside Hong Kong, but the resources and the opportunity for their
resettlement elsewhere have been very limited.
We are intensely interested, of course, in the interest that has been
generated throughout the world with respect to this current program
and it is our sincere hope that the contributions from international
sources will be such that the Hong Kong Government can and will
accept these offers . Even though the numbers may be reduced and
the flow regularized once more, there still is tremendous need for

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