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
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
been estimated at anywhere from 60,000 to 70,000. The men to whom
I spoke told me there were at least 30,000 to 40,000 people waiting in
villages and on illsides on the Red Chinese side of thefrontier look
ing for a chance to slip into the crown colony.
Little groups of peoplefrom the villages would sit around where
they examine these buses and watch them taking them off. Some of
the refugees told me that the Red guards were sympathetic to them
and turned their backs on them when they saw them escaping.
Now, there is no denying that the Hong Kong Government, our own
U.S. Government, through its Far East refugee program , the volun
REFUGEE PROBLEM IN HONG KONG AND MACAO 35
tary foreign relief agencies, and the indigenous agencies of Hong
Kong have done an amazing job in meeting the problem of the more
than 1 million Chinese refugees who are inHong Kong and Kowloon
at the moment.
When I was there in 1951, practically all of the refugees were liv
ing in makeshift huts of cardboard and tin all over the hillsides with
out anything inthe way of sanitation, schools,churches, dispensaries,
hospitals, and the like. Today, as you know , hundreds of thousands
of them are nicely housed in Hong Kong. There are roads and sew
ers, schools and churches, hospitals and dispensaries, and almost any
thing you want to mention for the welfare and the health of the
people. Practically everyone is employed even though wages are low.
More than anything else, the people are happy and contented in their
freedom .
It is true that there are still thousands of them living in makeshift
huts. In fact, you can stand in the foyer of the beautiful new hospital
of the Maryknoll Sisters which , incidentally, was erected with help
from our own Government and the HongKong Government in Kow
loon and lean out the window and touch the huts of refugees in which
life goes busily on . However, all of these people have hope that they
will be able to obtain the better type of housing that so many of their
friends andneighbors now enjoy.
I recall that in the early 1950's the situation looked almost hopeless
to the Hong Kong authorities. They refused to face the fact that
these refugees were going to be with them for a long time to come.
The voluntary agencies on theother hand had a more realistic attitude
about it. We began to build small cement houses for some of the
refugees; we erected schools, dispensaries, social centers and, of course,
churches. Gradually the Hong Kong Government and our own U.S.
Government began to help us with the housing. Then finally the
Hong Kong Government faced the situation squarely and began to
developpublic housing on a broad scale. The housing situation is
far fromperfect today,but itis a. far cry from that of 1950.
In those early days, the Chinese refugees themselves, industrious
and self-reliant as they are, began to build up small industries. To
day these have been expanded and there are industries of every nature,
small and large, in this bustling metropolis. I am only saying all
this toprove that no situation is hopeless.
In those early days of May, Hong Kong was threatened with an
other on -rush of halfmillion refugees. Someone estimated that with
an expenditure of $100 million housing and roads and sanitation and
all the other necessary facilities could have been erected for these
500,000 refugees in the stillundeveloped sections of the Crown Colony
just outside of Kowloon. That would have meant an expenditure of
$ 200 a person , little enough to save a life and possiblythe lives of
thousands of families still in China.
I think the refugees would have housed themselves in temporary
huts just as the refugees of the late 1940's had done while this new
development was taking place. However, I suppose that sounds like
too easy a solution for the problem .
I think the events of the last month have demonstrated that the
Chinese refugee problem in Hong Kong must be looked upon as an
international one. I think our Government should encourage the
36 REFUGEE PROBLEM IN HONG KONG AND MACAO
other nations of the free world — incidentally, I cabled that to Presi 1
dent Kennedy and to Secretary Rusk — to look upon it as just such .
Perhaps it may even be desirable to set up another international
refugee organization similar to the old IRO to provide all that is
necessary for aa broader resettlement program for the Chinese refugees
who are presently in Hong Kongand Kowloon .
We have made a significant token gesture in agreeing to make it 1
possible for some 5,000 of these refugees to come to the United States
at the present time. It is hoped that Taiwan, Canada, Brazil, and
Paraguay will follow through no their offers to provide refuge for
additional numbers of them . Their transportation to these countries i
may present a problem and that is why I think the development of a
United Nations refugee organization to handle this phase of the prob 1
lem is essential .
Incidentally, I have a N.C.W.C. news service release of the 4th of
June, which says that the Taiwan Government is now preparing to 9
take about 30,000 of these refugees. One of our Government officials 1
said that the economy in Formosa could absorb between 100,000 and 1
200,000 of them without the economy being affected. Well , I ques
tion that. There is not too much economy in Formosa to be affected
anyway, but certainly, they can absorb 30,000 and possibly eventually
additional thousands.
However, I don't think immigration is the complete answer to the
problem , and even though much has been done, still more can be ac +
complished in the way of better housing and care of the refugees in
Hong Kong and Macao. The voluntary agencies are doing a fairly
good job of supplementary feeding with U.S. surplus food for the
poorest of the refugees. Their efforts are limited to some extent by
the amount of money that the Hong Kong Government and our own
provide for the processing and distribution of such foods. A little
more governmental help in this direction would mean much also .
Finally, I agree with those who feel that aa revision of our own basic
immigration law along the lines that Senator Hart has suggested in
his bill , would make it possible for the United States to offer its lead
ership in such crises on a more sound and salutary basis than is now
done on an emergency level.
These new refugee problems which are developing all over the
world are not ones of easy solution . However, the lives of hundreds
of thousands of human beings, made to the image and likeness of
God , like ourselves, are involved and no human effort should be
spared to find a solution to them . The nations of the free world met
the test before, when over 10 million people found themselves dis
placed in Europe after the last World War and I am sure they can
meet it again. Much of the leadership, however, will have to come
from our own Nation .
Senator Hart, I appreciate the opportunity given me to put that on
the record . I thank you.
Senator Hart. Bishop Swanstrom , we appreciate your help to the
committee in putting it on the record.
A number of things in the statement will continue to provide help
ful counsel , but one of them , I think, is of special value at the mo
ment - the reminder that you include on the situation of the early
fifties. Ever so many people in the last couple of weeks, including
REFUGEE PROBLEM IN HONG KONG AND MACAO 37
editorial commentators, have made the point that this is a hopeless
situation. We should respond, they say, but largely with sympathy,
because, really , there are just too many Chinese.
>
Bishop SWANSTROM . I would like to say something, not for the rec
ord, though, if I may.
Senator Hart. Of course, you are in the presence of the press, so
we cannot go off the record for them .
Bishop SWANSTROM . This would have to be off the record .
Senator HART. Off the record.
( Discussion off the record. )
Bishop SWANSTROM . In 1945, when we had 10 million refugees,
maybe 11 million, and then new millions of expellees being added to
them , if everyone had thrown up their hands then, and if you will
remember, we started to forcibly repatriate some of them , then
righteous voices were raised and that was stopped, and IRO was set
up and they said, “We will resettle those of them who want to be
resettled someplace else in other countries." With the help of IRO,
over a million of them were resettled. I know it is not an easy job,
but I do not think you are going to do it without some sort of inter
national machinery, because you have the whole process of transpor
tation, place reception, and something else.
May I throw one thing more in ?
Senator HART. Yes.
Bishop SWANSTROM . It is only symptomatic of what is happening in
other parts of the world. They have refugee problems developing
in all of these African Republics. We are about the only ones who
still say that the Yugoslav refugee problem is a serious one. There,
too, you have people escaping from a system. The argument is given
in Congress and other places all the time that they are economic
refugees. All right ; call them economic refugees, but they are escap
ing from an economic system under which they cannot live. That
is what we are up against in this modern -day world of ours. The
Europan refugee problem has gradually disappeared. We are getting
all these refugee problems— we have a new refugee problem down in
Laos. While I was there, I gave a priest a couple of thousand dollars
to feed for 2 months 6,000 refugees who had just escaped from
Laos into Thailand .
It might have been only the beginning of a new refugee movement.
In — well,why go intoit, I am taking too much of your time.
Senator HART. No. Go ahead.
Bishop SWANSTROM . But it is true, I see this thing as part of a
total world problem in this age we are living in. It is a tough one.
Senator HART. I was interested in your comment that in Congress,
particularly, we spend a lot of time debating the distinction between
an " economic refugee” and a “ political refugee.” You would, accept
-
ing the definitions that have been developed in the course of this
debate, describe the people whom you saw in Hong Kong as " eco
nomic refugees” !
Bishop SWANSTROM . I would be inclined to. Many of them are
" economic refugees.” Oh, they prefer to leave China anyway, but
they would stay if they could get sufficient food and aa livelihood for
their people. Most of the people I talked to laughed at the present
situation politically in China. I asked them , well,“ What doyou hear
about the efforts of the United States in the exploration of space ? "
38 REFUGEE PROBLEM IN HONG KONG AND MACAO
Well, they had heard all about the Russians. They heard a U.S.
man went up , but he only made sort of a token trip or something
likethat. They do not hear about what we are doing for the refugees
in Hong Kong or what we are trying to do for these African coun
tries, what we are trying to do for the Cuban.
So they know . Thethings they do not hear about — they hear about
them by word of mouth , of course, are the things that are being done
in the world but are hidden from them by their own Government.
But I would say “ economic refugees,” most of them , trying to escape
from a system that is breaking down.
Senator HART. You described the situation in a village, where the
villagers observed the local police stopping refugees and turning
them back . Was there any reaction to this on the part of the Chinese
who had settled in Hong Kong ?
Bishop SWANSTROM .I do not think I understand that completely.
Senator Hart. Well, specifically, when the Hong Kong authorities
stopped a group of refugees, the local Hong Kong people would ob
serve it. Whatwas theirreaction ?
Bishop SWANSTROM . Sort of a sad and pathetic one. They sat it
little groups by the roadside and watched these trucks being exam
ined. They saw the trucks going back, they felt kind of hopeless
about it.
I will tell you another one,though,off the record .
( Discussion off the record .)
Bishop SWANSTROM . I would say it was a feeling of desperation and
sadness. I would say there was a willingness on the part of - they
begged me to try todo something to prevent the Hong Kong authori
ties from stopping these people come across. Those million refugees
in Hong Kong would have absorbed those people just like the Cubans
in Florida absorbed their Cuban relatives and friends in the early
days. There would have been shacks going up all over if those people
had come in, you know .
Senator HART. Well, what about the reports we have seen in the
press of not only food shortages in Hong Kong, but аa water shortage
as well? Wouldn't this suggest difficulty in successfully absorbing
refugees. Have you any feeling about that ?
Bishop SWANSTROM . Well, I have to admit there was a water short
age,because in the middle of the day in your hotel, you would not get
much water. Well, with the ingenuity of man, I think you might meet
that one, too. I had not thought too much about it, but a few more
wells and so forth . I do not think the water did it. I think it was
largely a problem of their housing, roads, sanitation and so forth,
you see.
But, Senator, we spend millionsfor many things. With aа hundred
million dollars, you could just broaden the Kowloon colony. There
are 25 miles of land there . There are some farms and so forth , but
there is still plenty of land around Kowloon that could be developed.
As I say, that sounds like — it is not an easy solution, but it could
be done ; it was done before.
Senator Hart. What was your impression of the working relation
ship between the voluntary agencies in Hong Kong and the crown
colony authorities ?
REFUGEE PROBLEM IN HONG KONG AND MACAO 39
Bishop SWANSTROM . Excellent, and between - the highest praise
for our own U.S. refugee program group there. Excellent. The
Hong Kong government,our ownGovernment, the voluntary agencies,
foreign ones, and the indigenous agencies, all working hand in hand.
It is really fine.
And you know , it is an answer to those who say that government
help cannot be extended nicely through voluntary agencies which
happen to have a religious character, you see. Our own Government
and the Hong Konggovernment have helped both the Protestants
and ourselves to erect fine hospitals and dispensaries in Hong Kong.
No one has questioned it. We are church -related agencies . But I
hear people say no state aid to the church, you cannot spend money
through a voluntaryagency that is church related. Well,, you have
the answerto it in Hong Kong.
Senator Hart. Almost as an aside — this may be useful someplace
down the road, although not necessarily in connection with a discus
sion of refugee matters — but you commented, and so did Mr. Mac
Cracken, on the distribution of our surplus food abroad. People
cite the fact that some of this gets into "black market " channels. They
say this is inevitable, it is normal, and from that they argue either
that we should continue the program or shut off.
What have you in your visits abroad, observed ?
What impression did you get ?
Bishop SWANSTROM . In Hong Kong in the early days, a black mar
ket developed because we gave people flour and corn meal in its natural
form and they did not have the meansto prepare it. Nowadays we are
converting flour and cornmeal into noodles and other things and feed
ing them that way and there is no attempt on the part of the people to
sell it because they need it for their own sustenance. We are giving
them foods that they can eat .
There is no organized black market in Hong Kong or Taiwan or any
place else. In Taiwan, where people are hungry, you give them the
foods in the same form .. Children are sick. They are going to go out
and sell some of the food in order to buy medicine for the sick child .
We are preventing that, even , nowadays, with the help of the Taiwan
Government. They recently passed a law making it a crime for anyone
to sell or buy any of the U.S.surplus food .
I would say there is a very limited, tiny black market sometimes.
Things are bound to get on to the black market if people exchange them
for something that they need more. But the important thing about
it, there is no organized black market in any one of those places. I
think that thing is blown up outof all proportions.
I wentall over the place while I was there. You cannot go into a
store in Hong Kong now and buy U.S. surplus food. Oh, you might
find an isolated store where .a number of people in аa. small community
sell it. I could not find any.
No, Senator, between our own Government, U.S. aid, between the
indigenous government and between the voluntary agencies and the
indigenous agenciesof the country, a superhuman effort is being made
to wipe out even a minor black market.
You raised - well, I do not want to go into the question of Taiwan.
Senator Hart. By all means.
40 REFUGEE PROBLEM IN HONG KONG AND MACAO
Bishop SWANSTROM. Well, there is a tremendous poverty all over
the island. About 8 months ago, our two governments, representatives
of the two governments concerned, representatives of the agencies got
together, set up a new ration card system and so forth, had the Chi
nese Government pass this law, and we are prepared to move ahead on
the basis of that now, don't you see . What they are doing, they are
eliminating these little hawkers, as they call them , who stand outside
a distribution center and try to buy the flour and cornmeal and milk
from the people, because they are no longer permitted by law and the
local peoplecanarrest themif theydo it now. I see whateverthreat
of a black market there was in Taiwan being gradually wiped out a
year from now . And I will fall on that statement a year from now if
I have to.
But, gentlemen, I talk tomen who are out distributing this food day
after day or week after week and they are making a superhuman effort,
you see. Now , as I say, we are converting the food into other forms.
We are converting the milk into liquid form . We are converting the
cornmeal and flour into noodles, even doughnuts and a few other pal
atable things, so that the people can eat them or use them immediately.
Of course, in order to do it, the voluntary agencies have not an
unlimited budget, either ; we need some help from governments in
order to do the conversion and do the distribution and so forth , and
we have been getting it.
Senator HART. One last question from me. Not frequently,, but
occasionally, we have been told of instances where Communists have
attempted to infiltrate the community in Hong Kong, the refugee
community. Have you any comment on that ?
Bishop SWANSTROM. I read it in the papers. Isaw no evidence of
it myself, but I have no doubt but that isdone. But, Senator, I say,
are we afraid of a few Communist agents in Hong Kong? The gen
eral masses of the people in Hong Kong want no part ofcommunism .
So of the few Chinese agents, they cannot put it in the light of the
story of the hunger and deprivation in China that the new refugees
arebringing into the colony.
You can talk to any refugee in the colony nowadays and they
know what is going on in China. They know that they were lucky
to get away from it and their friends and relatives are coming in and
telling them the true story.
It may be true. I was going to say something about it in my
statement, but I did not think it was necessary. I do not think we
should have too much of a fear of them . Youhave a security police
in Hong Kong which is as good as any in the world and they should
be able to ferret out these Communist people as they come in . I do
not think there is anything to it.
If they want to send them in, Mr. Senator, they can send them over
the border at night just like these other refugees that come over the
border, escape. They do not have to come in as part of a big surge
of refugees. They get into thecolony, come through Macao.
Andincidentally ,I think it is a mistake to think that this thing is
going to stop now . If the famine goes on in China, more people are
going to try to escape, and they are still trying to escape right now.
We had a letter from our manin Hong Kong yesterday saying that
some of them are still managing to find their way across. They
REFUGEE PROBLEM IN HONG KONG AND MACAO 41
come through Macao every day in the week. So whether there will
be another big onrush of them , no one can tell, but it would not sur
prise me at all.
The Formosa Government thinks that there will be. They say that
the government feels certain that the present stoppage of refugees
in Hong Kong due to measures taken by the Communists is only
temporary. The government is therefore proceeding with prepara
tions for receptionof refugees.
I doubt if it has been stopped permanently, unless conditions im
prove greatly in China.
Senator HART. There is always a danger in saying this is your last
question. What you have just said suggests another one, not directly
related, however,to the problem in Hong Kong at the moment. But
what about food for Red China ? Let's assume, as you say, there is
a possibility that famine may develop in Red China. What should
our response be ?
Bishop SWANSTROM . Well, I must be honest ; I have not been able
to form a true opinion in regard to it. I spoke with a number of
people in Hong Kong and there was a divided opinion. Some felt
that you would be helping the Chinese Communist Government, that
maybe the people would prefer to suffer rather than help the Chinese
Communist Government. Others felt, well, here, a poor human being
is starving and no matter what the end result is, you should try to
help them. I must confess, I have not got a real, definite opinion
on it .
I would say in a humanitarian, Christian point of view, I would
do everything I could to bring food in to them . On the other hand,
in view of the political consequences, the danger of helping a Commu
nist government to grow stronger - I do not know . We had the same
question in regard to Cuba, you know .
Senator Hart. Well, at least your answer , Bishop, is helpful
Bishop SWANSTROM . Have you got an answer!
Senator Hart. No. At least your answer is helpful to those who
write us who do know absolutely what we should do.
Monsignor McCarthy, did you have something you wanted to add ?
Monsignor MoCARTHY. I have nothing to add, Senator ; thank you.
Mr. JOHNSON . Bishop Swanstrom , in one part of your statement,
you suggest that there is an actual shortage of food for purposes of
distribution. Did I understand you correctly ? We have had con
flicting reports on this. The immediate reaction , of course, to the
dramatic situation early in May, was that vast quantities of food were
going to be needed. Are there adequate surplus agricultural com
modities available for Hong Kong's needs ?
Bishop SWANSTROM . My answer to that is we could provide a better
ration to the people if we had the means of converting more of the
food into things that could not be sold, you see. Our ration at the
present timeis very limited formany of the people.
Mr. JOHNSON. You are speaking, now, qualitatively ?
Bishop SWANSTROM . Yes ; qualitatively. But everyone who needs it
is getting something. That is the only reason I say they could use
more if we had the means of convertingmore and the means, the finan
cial means of distributing it.
We would furnish a better ration to many people.
42 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mr. JOHNSON. Would this be, for example, an increase in noodle
production and the reconstitution of milk, and probably a higher
amount of protein ? I assume the major part of the present diet is
starch .
Bishop SWANSTROM. That is right. All those in need , however, are
being covered at the present time.
Mr. JOHNSON . There is no starvation ?
Bishop SWANSTROM . No.
Mr. JOHNSON. The other thing I was interested in was the view
expressed that a similar situation, aswe are presently faced with in
Hong Kong, was solved in Europe. I do notknow the total number
of people who emigrated from Europe, but it was in excess of a million,
probably 2 or 3 million .
Bishop SWANSTROM . I think that is about right.
Mr. Johnson .One of the things we noticed was that following the
passage of the Displaced Persons Act in 1943, Canada increased its
quota , and Australia began admitting non-British people. But in
the case ofChinese refugees, there seems to be a different feeling.
Assuming the United States and other countries have the capacity
to admit additional people, to what degree do you think it possible
to provide opportunities for Chinese immigration, commensurate with
the inflow of refugees into Hong Kong, which over the past 10 years
has been around 50,000 a year ?
Bishop SWANSTROM . Ithink if the governments would get together
on it, it might be possible to assist places like Taiwan, Vietnam ,
Malaya, and places that have traditionally accepted Chinese, to absorb
more ofthem . Andthe Philippines, possibly, although I knowthat is
crowded already. We might open up some opportunities for them in
Latin American countries.
Mr. JOHNSON . Well, in essence, then , the program would call for
a shift from a relief operation to the stimulation of the economies of
the areas they would be resettling in ?
Bishop SWANSTROM . I think so.
Mr. Johnson. Hong Kong some years ago was a port. Now it is
an industrial center. If Taiwan wants to become a place of resettle
ment, it will likewise have to become an industrial area.
Bishop SWANSTROM . Right.
Mr. JOHNSON . And likewise other places.
Bishop SWANSTROM. Yes. Which can be done, though, you see .
Mr. JOHNSON. Well, in effect, it might mean we would have to shift
our operation from one of relief to a greater emphasis on economic
development as envisaged under the foreign aid programs.
Bishop SWANSTROM . That is right. And it is in line with the food
for peace program , it is in line with the title II program - use more
of our food for work projects to help make the peopleself-sustaining.
You can oversimplify it, but there are thousands of little things that
can be done in Taiwan, like opening up roads, improving irrigation
through the driving of wells, all of which is being done at the present
time by voluntary effort, which little help from government of any
kind, you see.
The missionaries have changed their whole tack from a purely
missionary effort to what you might call a social effort, the social
mission of these missionaries. AndI talked to them. They are help
REFUGEE PROBLEM IN HONG KONG AND MACAO 43
ingto cut little roads so that men can bring their produce to the market
easier ;driving wells, building little irrigation ditches and so forth.
With the help of the U.S. aid program and the local government
itself, much more could be done in that direction, you see, using title
II foods and using some help.
I honestly think - I am expressing too many opinions— we do not
do enoughto bring our foreign aid program down to the level of the
people. That is the thing we have to do and then you will help bring
about a better absorption of these people.
Senator Hart. I have heard that opinion expressed before, too.
Mr. Nishimura, do you have questions ?
Mr. NISHIMURA. Bishop Swanstrom , in your observation in Taiwan ,
how many thousand Hong Kong refugees can Taiwan absorb for
resettlement purposes ?
Bishop SWANSTROM . I would say at the moment, 25,000 with no
difficulty. Gradually, up to 100,000, with the type of assistance we
have just been talking about, get the people established on farms and
in little industries andso forth .
Mr. NISHIMURA. Up to about 100,000 ?
Bishop SWANSTROM . Yes ; and I say that because I think the Chi
nese Government in Taiwan would agree with that.
Senator Hart. Mr. Ziemba, do you have any questions ?
Mr. ZIEMBA. No.
Bishop SWANSTROM . Thank you. I hope I have not taken too much
time.
Senator HART. I had indicated the subcommittee would next hear
from Mr. Richard Reuter. But I understand Mr. vanden Huevel
has an appointment downtown soon. Perhaps he has already left.
Our next witness is Mr. Richard Reuter, the directer of CARÉ.
STATEMENT OF RICHARD REUTER, EXECUTIVE DIRECTOR OF
CARE, INC.
Mr. REUTER. As executive director of CARE , I have had the oppor
tunity to be conversant with the evolving HongKong picture over
the years since World War II. The CĂRE office in Hong Kong
consists of two men from our American staff and six local employees.
We work closely with the British authorities and find them most
cooperative and helpful. The donors to CARE have exhibited over
these years a sincere interest in the refugees who have crowded this
free world outpost.
May I provide for the committee a report of the activities of CARE
in Hong Kong and Macao since we started regular operations there
in 1954 ?
Senator HART. The committee will receive that for the files and wel
come it.
( The document referred to will be found in the files of the sub
committee.)
Mr. REUTER. As background information on any on-going people
to-people program , this may be useful for your deliberations. Cer
tainly following Bishop Swanstrom's thorough report, it is not nec
essary to take the committee's time now for the details. I would be
most happy, after these few words, to attempt to answer any ques
tions that are within my competence.
44 REFUGEE PROBLEM IN HONG KONG AND MACAO
Two weeks ago, as the influx of refugeesreached a new high , CARE
authorized its stockpile of food and blankets to be used as required
to aid the most needy of the newcomers. This was distributed through
special emergency machinery set up by the Hong Kong Government
and was part ofa pool arrangement by all of the agencies working
jointly. Within a week, the CARE board of directors representing
the 28 major American welfare,social and fraternal organizations
which are member agencies of CARE allocated an additional $100,000
from net margin funds for emergency refugee aid in Hong Kong.
This sum is available when we have the appropriate project.
This additional $175,000 brought the total of CARE aid for Hong
Kong to over $ 6,400,000 since 1954. Quite naturally the bulk of this
CARE aid was in the form of food and it includes some $4.3 million
worth of U.S. surplus foods distributed under CARE's so-called food
crusade program and an additional $ 1,114,000 worth of food pur
chased by CARE , including rice, tea, pickled cabbage, and other items.
I might interpolate just a comment here, in light of your question ,
Mr. Chairman, in regard to the use of surplus commodities.
One of the factors that we found in our experiences in Hong Kong
was the difficulty of utilizing foods unfamiliar to the refugees for
family feeding operations. The flour distributed in the form of
flour alone, and milk powder, was not satisfactory to a family that was
not used to its use. It created difficulties in proper utilization. We
have found these sameitems distributed through a controlled situation,
a Kaifong school distribution or through an institution, accomplished
the proper goal. But this is the reason that, despite the availability
of surpluses, we still purchased over a million dollars' worth of food,
much of it in the Hong Kong market, because it was typical food that
would be the type used by the people normally. Over the years, our
experience has been that it is very difficult to change dietary habits,
regardless of the pressure for food .
CARE is therefore continuing this purchasing policy , as well as the
use of American agricultural commodities wherever possible. Under
agreement just reached with the U.S. Department of Agriculture
and AID , some 10,000 needy children and 12,000 adults in hospitals
and other institutions will be the recipient on a regular basis of
powdered milk, cornmeal, vegetable oil, and other foods as they are
available during the coming fiscal year.
In addition, CARE has distributed some $290,000 worth of blankets,
clothing materials, and other supplies, usuallyto fire victims and on
an emergency basis. Some of these, incidentally, are received as cor
porate gifts from American manufacturers, who have shown a con
siderable interest in this problem .
Most importantly, we believe, however, in terms of strengthening
the capacity of Hong Kong to withstand the continuing threat of eco
nomic warfare is the $540,000 which has been made available by donors
for so-called self-help assistance which CARE has been able to bring
to the people in the colony. This includes tool kits, supplies for fish
ing cooperatives, for agriculture, supplies for public health and social
welfare centers, cooperation with ongoing programs. The unique as
pect of the CARE self-help program in the economic field is that its
beneficiaries are paying back over a period of time the cost of the orig
inal equipment. Such moneys go into a revolving fund administered
REFUGEE PROBLEM IN HONG KONG AND MACAO 45
by the cooperative neighborhood improvement association or by their
Kaifong so that other members may be able to purchase much needed
equipment. We feel this is a continuing factor in maintaining the dig
nity of the recipient and giving him a sense of participation in the
solution of his own economic problem .
A perfect illustration of this is a fisherman's settlement at the island
of Ap Chau,in Mirs Bay, nearthe northeastern corner of the newer
territories . Some 60 fishermen's families were settled on this little
island after they escaped from the mainland. The story is detailed in
this report and it is an encouraging story of government and private
effort. Because this island, which had previously been uninhabitable,
was made satisfactory for these families by the provision of a water
line which was put under the bay from the mainland as a joint effort
of British Government engineering support, USEP funding, and
CARE voluntary participation. We, ourselves, put almost $20,000
into this program , and these families are today living in a degree of
self-sufficiency that would have seemed impossible previously.
Not included in the CARE Hong Kong total of $6,400,000 is an ad
ditional $ 431,000 worth of refugee aid so far distributed in neighbor
ing Macao, including specifically some $405,000 worth of U.S. surplus
foods and $ 20,000 worth of food purchased by CARE and about $ 5,500
worth of self-help supplies. We have not been able to develop the
same type of imaginative self-help programing in Macao. The im
portance of Macao, however, as a halfway stop on the escape route,
has also been recognized by the U.S. Government, and the U.S. Refu
gee and Migration Unit in Hong Kong has recently earmarked some
$ 430,000 for food, blanket, and other emergency supplies to be dis
tributed by CARE among escapees in Macao and an additional $12,000
which we are quite proud of, was allocated to a dining room and
noodle plant in Macao which will serve some 3,000 needy children
daily with a hot meal under the food -for-peace program. These RMU
programs, I should add, are in addition to the $690,000 spent over the
past 6 years by this unit of the State Department for various projects
and emergency fire victim aids administered by CARE in Hong
Kong proper.
This matter of Hong Kong, concluding, sir, is a deeply emotional
question . Americans want to help refugees from communism , but
even more deeply, from my experience, I would say that we are moved
as Americans by need, human need , regardless of the reason. The
plight of the homeless, the pathetic, but the energetic refugees in
Hong Kong stirs our sympathies. Yet I do not feel, in carrying out
comment on your discussion earlier, that there is a solution short of an
international political solution or short of aa solution within mainland
China itself. Hong Kong, Formosa, the Pacific islands, the Western
World generally, cannot possiblyabsorb all the peoplewho apparently
are eager to leave China. But I think the danger of this position is
that it should not be taken to mean that we should not do what we
can in terms of resettlement for those individuals we can help.
The situation, of course , is very different from that other former
doorway - Berlin. There, refugees from East Germany could look
forward to assurance for establishing a new life in West Germany.
It seems to us at CARE that especially because there does not appear
to be a reasonable hope for resettlement of significant numbers of
87544462
46 REFUGEE PROBLEM IN HONG KONG AND MACAO
either those now in Hong Kong or the millions more who would be
there, that we have a responsibility to try tomake the lot of the human
being therewhom we can reach more bearable.
I would like to include for the record that we feel the British au
thorities have done a most commendable job. I think, too, that
USEA, the refugee and migration unit of our State Department
should particularly be commended for the imagination and the
human consideration that they have put into carrying out their as
signment. But nowhere have the voluntary agencies done a larger
share of the relief job than in Hong Kong.
The churches of America, as you have heard this morning, have con
sistently and persistently sacrificed to maintain_large -scale, well
staffed , effective programs. The International Rescue Committee,
World University Service, and similar nonsectarian groups have im
portant programs. Although each works in its own way, these Amer
ican voluntary efforts have been surprisingly well coordinated . Yet
all of us together, both public and private sector assistance, have, it
seems to me ,as the most important reason for effectiveness, the energy,
the patience, the inherent skill of the Chinese people themselves. They
arewonderful people to work with. I think this is a reason that, more
and more, CARE is putting its resources and energies, which are,
ofcourse, limited, into cooperative development schemes, into fishing
villages and farmer assistance and cottage industry. The result of
these programs is to help raise the dignity of those individuals.
These projects may not solve the overall problem — they will not
solve the overall problem . But they can solve the individualproblem
and with enoughof these we may materially ease the overall human
burden . I believe that we can do no less and be true to ourselves.
Senator Hart. Mr. Reuter, thank you for a fine statement. I am
sure that those who read it will recognize again the substantial con
tribution that CARE has made to a part of the world that many of
us will never get to. For that the committee certainly thanks you.
On a narrower question ,What is the present regulation or law with
respect to the sending of CARE packages into mainland China ?
Mr. REUTER. There is not thepossibility of sending CARE pack
agesas such into mainland China. I am not familiar with all of the
regulations, which would be postal regulations, for providing pack
ages. I am sure the committee staff would have much more informa
tion on that regulation, but CARE itself has pursued the policy that
it does not work in any area of the world in which it cannot have
agreement by the host country to its basic provisions of operation .
We feel we should not operate in acountry unless we have been in
vited to work there and that wewould have the opportunity of utiliz
ing our own staff for the handling of such distributions. This has
never been a possibility in mainland China, although we did operate
briefly in Kwantung Province just before the Chinese Communist
takeover, and at that time made overtures toward continuing a pro
gram there which were never answered .
Senator Hart. Is this also the situation, as far as CARE is con
cerned, in those European countries which are behind the Iron Cur
tain ?
Mr. REUTER. We have it at the present time an operation that is a
very effective operation in Poland and in Yugoslavia. At least, we
did have such up until last night. These programs are with the
REFUGEE PROBLEM IN HONG KONG AND MACAO 47
participation of CARE American staff and have, it seems to me,
provided a magnificent opportunity for individuals in the United
States to indicate a concern for individuals in those countries, and
the relationship, because it has not been done on a political basis,
and because it has no other purpose than to exemplify this very legiti
mate concern, has had a remarkable effectiveness. And I would just
like to add in the record that our experience in both countries has
been one of strict adherence to the provisions of the contract which
has allowed us to operate with our own staff and with clear identifica
tion as to the source of the donor.
Senator HART. I appreciate getting that statement. I am not sure
that if it had been available 24 hours ago, it would have made any
difference in the Senate voting. But it is an additional reason why
I hope that the action taken by the Senate yesterday with respect
to limiting the President's authority in distribution of mutual aid,
and even Public Law 480 commodities, will not be agreed to by the
House .
Mr. Johnson . Mr. Reuter, I would like to ask one question, which
I think I also asked Mr. Devine last year. Perhaps your experience
in this last year has been helpful. How much potentiallies in the
further development of the self-help projects which CARE has done
so much in pioneering in termsof refugees, and particularly, of course,
I am thinking of the Hong Kong situation. We are familiar with ,
and had rather extensive testimony, on the fishing village which
CARE established in Hong Kong. I am wondering how much fur
ther opportunity there is for similar help by CARE .
Mr.REUTER. I think this can be materially increased. The ability
to organize a cooperative effort there has been so successful because
of the nature of the people participating and because of the support
ing position of the British authorities who provide machinery for
the regulation of cooperatives which is properand provides backstop.
Because of this, I think that that type of programing can be mate
rially increased. Each time you improve the economic position of a
small group of these people, I think that you also improve the poten
tial for the children to go to school, so that you start to bring a new
generation with skills that in turn improve the economic potential
wherever they may find their future life. The tragedy is that the
inherent skill which the Chinese brings as a refugee is so frequently
not supported by technical skills. It is not necessarily supported by
an educational background that allows him to write, and in the com
petitive picture thre, the availability of education is of great im
portanceto the economic future of the people. Now , I think these
can be materially increased, but unfortunately , this is not the kind
of thing that can be necessarily projected by the amount of money
available. If they are going to be legitimately useful, they must
spring from the people themselves to a very large degree. And while
you can encouragethis, you cannot be sure that you are going to have
the project unless the people really wanted it.
Mr. JOHNSON . This leads to my next question, and that is, could the
U.S. Government, through any of its programs, do anything to stimu
late, to assist, or to promote such activity ?
Mr. REUTER. Not only canthey, but they have been . Our experi
ence has been, and I mentioned in my prepared testimony, particularly,
48 REFUGEE PROBLEM IN HONG KONG AND MACAO
the imagination that has been shown by the RMU people, because it
seems to methat in aa situation such as this, we do require imagination.
At many points, the solution is not going to be the standard approach.
It may require a new method to accomplish our goal. And I have been
particularly pleased by the willingness to consider new approaches
and by their willness to provide financing for pilot efforts in this
in this direction .. I am certain that additional funding will be useful,
but in honesty, I will have to report that there has not been a restric
tion on funding that has materially held us back in the operation.
Mr. JOHNSON. I notice Mr. Richard Brown sitting in the back of
the room .I am sure he will appreciate your comments.
Mr. DE HAAN . I have a general question here which in your answer
you may or may not apply to Hong Kong. But what is your view
of the position of the voluntary agencies in the overall pattern of
American foreign policy ? What are your feelings on this matter,
as to what role the agencies play ? Do they play a great role, a small
role ?
Mr. REUTER . I have aa feeling on this, that could keep the committ
much longer than they wish to stay. I would just try to summarize
that by saying that I feel strongly that the voluntary agency is a re
flection of the natural American pattern of meeting itsresponsibili
ties, that in many instances, Americans in our own country and in
terms of the international scene, find a satisfaction in making use of
an organization of their choice and their control to undertake their
program . I think that it has been one of the magnificent stories of
the postwar period, the way the American public has made use of its
agencies, through its church groups and throughother organizations,
and I think groups such as the Federation of Women's Clubs and
Lions Clubs are not often recognized for the amount of activity they
do undertake in the international field . I think this has been a
strength, because it also helps to interpret to the Congress the
concerns .
Specifically, IΙ would say that one of the great values to the CARE
program has been the ability to undertake pilot efforts until wefind
new techniques. Then these can often be better supported by the
large scale financial abilities that can only be made available through
Government moneys. But this ability to represent the concern of
Americans without other reason is of great value.
Much of what we are doing in the world today, I think, is trying to
change the attitudes of people, and we don't know many of the answers
in this area .
Mr. De Haan . I have just one more question. Would it be correct
to assume from your testimony, that you believe the best approach to
the Hong Kong situation is through the local integration of the
refugees — through the boosting of the economy so that it can absorb
the talents and the potential of the refugees !
Mr. REUTER. I am only saying this within my frame of competence .
I would not wish to use this and say this is the best answer, because
that includes aa lot of variables which I am not competent to answer .
Mr. De Haan . But under today's circumstances and for the present
time, this is a substantially correct approach ?
Mr. REUTER. Yes.
REFUGEE PROBLEM IN HONG KONG AND MACAO 49
Mr. NISHIMURA . You stated in your statement that you feel that
the resettlement of refugees can be carried out in fishing villages, in
farmlands, and I believeyou said cottage industry.
Mr. REUTER. Yes.
Mr. NISHIMURA. What do you mean by "cottage industry ” ?
Mr. REUTER. I am speaking about small - scale production indus
tries, the handicraft production, which often can be used as a supple
ment for the income of the fishing villager.
Mr. NISHIMURA. Family avocation, or family enterprise ?
Mr. REUTER. Yes ; and this will frequently provide a cash income
to the family which is not available from their other activity which
may be at a pretty much subsistence level.
Mr. NISHIMURA. I see.
Thank you .
Senator HART. Thank you again , Mr. Reuter.
Mr. REUTER. Thank you, sir.
Senator Hart. Our next witness is the president of the Interna
tional Rescue Committee, Mr. vanden Heuvel.
STATEMENT OF WILLIAM J. VANDEN HEUVEL, PRESIDENT, INTER
NATIONAL RESCUE COMMITTEE , INC., NEW YORK , N.Y.; ACCOM
PANIED BY DEANNA CHU
Mr. VANDEN HEUVEL. I would like, if I may, to begin by introduc
ing Deanna Chu, who is the first of the Chinese refugees to arrive in
New York from Hong Kong under the President's emergency pro
gram . She arrived yesterday afternoon.
Senator HART. I welcome you , Miss Chu. I wish the record in
cluded photographs. I am sure that the reception of Chinese in this
country would be stepped up appreciably if they could just see you,
Mr. VANDEN HEUVEL. Speaking as president of the International
Rescue Committee, I would say that Miss Chu's presence here today
is a positive vindication of the validity of the President's program
which has opened the portals of the United States to at least 5,000
Chinese refugees from Hong Kong. Her own case history is an in
teresting one . She has come to joinher family , her mother andher
father and her four sisters who have lived in the United States. They
all escaped from Shanghai in 1949 when the Communists took over
that city. At various times since then they came to the United States.
Miss Chu was deprived of that privilege because she had a tubercular
mark in 1956 when her eligibility came up. She is now, of course,
totally recovered, but unless the program had come along which is
now being discussed, she could have only looked forward to many more
years of separation from her family. Instead of that, she has been
welcomed to the United States and you may have seen the pictures
in today's papers of the family reunion yesterday in New York . It
was an extraordinary scene. She is in Washington today to per
sonally thank the Congress and the Attorney General of the United
States for the program that has made it possible for her to be here.
Senator HART. Well, it goes without saying that this is a very excit
ing and emotionally charged moment. I repeat with much greater
seriousness than perhaps my first commentindicated , the warmest
welcome. I think the International Rescue Committee can feel what,
50 REFUGEE PROBLEM IN HONG KONG AND MACAO
in a sense , the chairman feels. There are a lot of times around here
when I am glad that the Senate is not on television, but this is one time
when I wish very much that every American could be present, and I
think certain attitudes might change.
Mr. VANDEN HEUVEL . Thank you, Senator.
I have not prepared a statement to submit today, principally be
cause, returning only yesterday from Hong Kong, and with the events
that have filled the last 24 hours, I have not had an opportunity to
prepare a written statement, but I have given a considerable amount
of thought to the remarks that I would like to make and I shall re
duce them to written form later.
I would like to begin by making several observations. I have been
to Hong Kong several times prior to 1957, generally in the company
of General Donovan, who had been our Ambassador to Thailand.
This is the first time I have been to Hong Kong as president of the
International Rescue Committee to really study the refugee situation .
As we all consider the Hong Kong refugee problem , I think there are
certain basic points that we should keep in mind. First of all, Hong
Kong has not asked for our assistance. When I say " our, " Í mean
the United States or free world assistance. In other words, the Hong
Kong Government, which has set such an extraordinary example to
the world in dealing with refugee problems, has not to this point found
it necessary to make a direct appeal for the assistance of the nations of
the free world .
Secondly,in considering programs that may affect the Chinese
refugees in Hong Kong, I think we should keep in mind that Hong
Kong itself is ananachronism , that it is a colony in an era of anti
colonialism , that it exists by Communist sufferance. I do not think
there is any doubt in the minds of any of those who are given the re
sponsibility for Hong Kong but that the Chinese Communists could
take it over in a matter of minutes if they so desired .
The fact that it is allowed to continue must mean, it seems to me,
that Hong Kong servesa purpose for many nations. It serves the
purpose of Communist China as perhaps its only and most valuable
outlet to the rest of the world . It serves the extraordinary purpose to
us, to the free world, as being one of the sole sanctuaries being the
sole sanctuary, really — for allowing Chinese refugees to come to free
dom and security. I say this about Hong Kong and its political status
only because I think that theChinese refugee problem allows very little
room for political maneuvering, that the greatest single need for Hong
Kong and its refugees is the unselfish concern and the compassionate
assistance of the nations of the free world .
I will go onestep further and associate myself completely with the
remarks of Bishop Swanstrom . I would emphasize his remark and
perhaps take it somewhat further by saying thatmass migration, in
myjudgment, is not the answer for Hong Kong and it is not the answer
to the Chinese refugee problem .
If the question could have been posed precisely to the authorities in
Hong Kong in the early days of May as to whether or not they could
have permitted or would have permitted the exodus of 50,000 or
60,000 or 70,000 refugees into Hong Kong, there isno doubt in my
mind but that they would have allowed it. But the question that
was posed to the authorities in Hong Kong was not the allowance,
REFUGEE PROBLEM IN HONG KONG AND MACAO 51
the permission for 70,000 people to come into the crown colony. It
was the fact that the Communist border controls had been totally
relaxed for reasons that no one knew and theprospect they faced was
not of a limited number of refugees coming into the colony, but per
haps 100,000 or 200,000 or perhaps 1 million.
The point that I am making is that what the authorities in Hong
Kong faced and the problem that compelled their direct reply was a
problem without dimensions that were measurable. As we think of
the problem today aided by hindsight, it is altogether possible for us
to say they should have opened up the gates and let these 70,000 people
in. But that is not the problem that they faced on May 1.
I tried, in speaking to British authorities, to Americans, to count
less Chinese refugees themselves, to representatives of the Chinese
community, to answer some questions for myself, such as what was
the crisis and who were the refugees ? Again, I associate myself with
the remarks of Bishop Swanstrom , I would go somewhat further in
saying that these refugees generally speaking numbered around 60,
000. The great majority of them were refugees from the southern
provinces of China. They were peasant farmers principally . Only in
the last days of the exodus was it clearly seen that the refugees were
also coming from thecities. As far as Ican understand, there was no
obvious indication of extensive malnutrition. Very possibly, there
was hunger. But thatis not to say that there wasstarvation. The
refugees who came in, I think , complainedof a variety of things asso
ciated with hunger and they were fed by the Hong Kong authorities.
No one can precisely say what it is that motivated this exodus. In
terms of China, in terms of the Chinese refugee situation, to say that
70,000 people sought asylum in Hong Kong is not to measure a very
large number.
My own feeling is that the exodus was motivated by several things.
First of all, I think it had its roots in the census taken in Hong Kong
last year which revealed that 312 million people now live in that terri
tory , that the potential population explosion - and when Isay poten
tial, I mean that that is just ahead in the next 2 or 3 years — faces Hong
Kong with an automatic increase (without any additional influx of
refugees) of at least 100,000 people a year. In the period of the next
decade, without the additional influx of a single refugee, Hong Kong
will have another million in its population.
Thecensus figures show, for example, that 41 percent of the popula
tion of HongKong is under 15. As this population approaches ma
turity, marries, the population explosion is going to be even greater
than presently anticipated . With this in mind, I think the authorities
probably gave the first real concern to the problem of how many can
you let in and still maintain aa viable colony.
In early April six refugees who had illegally entered the colony
were returned to China. At approximately the same time, as I under
stand it, there was mounting pressure in China itself for relaxed
border controls so that peasants and the residents of southern China
could more freely enter Hong Kong to visit relatives, to buy food,
etc. The indication is that the Chinese Communist government gave
in to this pressure because it cost them nothing to do so and it wasone
means of lessening tensions. So a great number of exit permits were
issued at that time.
52 REFUGEE PROBLEM IN HONG KONG AND MACAO
The rumors spread fast. With the exit permits being issued , with
the possibility that the British were going to close off entrance into
the crown colony except for very limited numbers, a great number
suddenly decided that this was the time to take advantage of an op
portunity to leave. If you described the suffering they brought with
them in terms of spiritual depression , in terms of moral anguish, in
terms of physical ħunger, and I think you would be right in every
respect .
This was an additional cause that drove the refugees to the border.
The Communists have now entered upon a new policy where ashortage
or raw materials has caused the closing of factories in cities like
Canton . The city populations have been compelled to go to the villages
to help with the harvest and the farming. This has been resentedby
both groups, by the villagers who also have too little food and are
not anxious to share what they have with strangers, and by the city
dwellers, who have no desire to becomepeasants in turn and who do not
care to live among strangers.
The one side effect, certainly for those voluntary agencies and the
agencies of the United States that have been concerned with Hong
Kong for a number of years, is that for the first time, the real focus
of attention in this country has been put upon Hong Kong and its
refugee problems. We in the International Rescue Committee had
more calls, for example, of offers of help and assistance from private
American citizens in the first 2 weeks of May concerning the Chinese
refugees than we have had in the past year concerning the Cuban
refugees. There was a real identity with the problem and a tre
mendous urge to help.
I said earlier that the Hong Kong Government, to my knowledge,
has not asked for assistance . I think it is important in assaying this
refugee problem to know that , to know that we are dealing with a
problem that is under the general jurisdiction of the British Govern
ment, to know that we are also dealing with a colony that has managed
to set an unprecedented example of having budget surpluses in 12 of
the last 14 years. The extraordinary example that Hong Kong has
shown of the capability of absorbing a million refugeesis also em
phasized by what I think is a fact, that the greatest resources of Hong
Kong is the refugee. The refugee has enabled the Hong Kong
economy to expand and to be enlarged and to be immensely profit
able in many ways, and at the same time, Hong Kong has given to the N
refugee the one supreme right that in my experience, all refugees seek ,
the right to be self-sufficient and to be self-reliant and to make for him
self and his family aa daily living.
To my knowledge, the crown colony has received no financial assist
ance from the United Kingdom for its refugee needs. The declared
policy of the crown colony is to absorb the refugees as soon as pos
sible. When you talk in Hong Kong about refugees at least the Gov
ernment authorities, you are quickly channeled into another are of dis
cussion , because in their judgment, they do not want to call this a
" refugee problem .” This is a problem of absorption of a population.
The refugee or the person who flees across that border is made into a
part of Hong Kong community and he is treated as a part of the
Hong Kong community at the earliest possible moment.
REFUGEE PROBLEM IN HONG KONG AND MACAO 53
I also went to Macao on this trip and I would make aa few comments,
if I may , about that. Evidences of malnutrition were much clearer, to
me, among the refugees arriving in Macao than in Hong Kong. The
escapes being made to Macao are much more dramatic in many ways
than the escapes being made to Hong Kong, involving much peril to
the lives of those who had been denied exit permits by Communist
officials. Those who escape to Macao, having been denied exit permits
by the Chinese Government, frequently comeasa measure oftheir own
personal despair and their own reaction to the Chinese Communist
Government . Again , I think Macao has done a tremendous job in
trying to give sustenance and assistance to the refugees. The volun
tary agencies who work in Macao and in Hong Kong are really worthy
of great admiration. Anybody who sees the CARE feeding station
in Macao can only be deeply and profoundly impressed, or sees the re
habilitation center established by the American Association for the
Overseas Blind, or sees the extraordinary work done by the church
groups in Hong Kong and Macao. To spend a day with Father Ruiz
in Macao is a personal experience that rery few people who have ever
had it will forget. He is a person who has given his life to the care
of the refugees.
I would make additional comments about the problems of Taiwan
in relation to Hong Kong and the extremely delicate problems of re
settlement in Taiwan, but I would prefer to make those at a later date
and perhaps under differentcircumstances.
Senator HART. Would it be possible to include those in the written
report ?
Mr. VANDEN HEUVEL. Yes ; I will try to do that, Senator.
In conclusion , I would just like to make what Í regard as the points
of assistance that are possible and reasonable in the current emergency
concerning HongKong. First of all, I think the greatest need among
the refugees in Hong Kong is for continued assistance at every level,
and I would emphasize especially the direct assistance of the voluntary
agencies who are involved in resettlement and rehabilitation within
the crown colony itself.
I realize in saying this that I am pleadinga special interest, because
the International Rescue Committee is involved in this work. But I
think that the heads of the other voluntary agencies would agree with
me that the greatest single need for these refugees is to be trained and
permitted to make their own living and to be self -sufficient as soon as
possible. To that end, we have entered into programs of English
language training, because refugees who can speak English are capa
ble of earning at least three times what they otherwise would be
capable of earning. The IRC supports programs like the Organiza
tion for ChineseRefugee Industrial Development, whichhas techni
cal training facilities and supports training of the handicapped in
Hong Kong. We have a program mapped out for day nurseries, so
that Chinese mothers who must work will know their infants will be
taken care of. This kind of work , in addition to the medical assist
ance, I think, is of extreme importance. The International Rescue
Committee, for example, hopes to start soon a program of training
hotel workers, because within the next 2 years, it is estimated Hong
Kong's hotels will need an additional 7,000 employees and this is the
kind of technical trainingthat helps the economy of Hong Kong but,
most importantly, helpsindividuals to sustain themselves.
54 REFUGEE PROBLEM IN HONG KONG AND MACAO
Secondly, I think the program such as that announced by the
President is of unusual importance, and I would wholeheartedly
support it. To allow refugees to come to the United States, to realistic
allyadjust the immigration quotas, which is part of your bill, Senator,
I think is an urgent necessity. And in saying this, I would say
again that realistically, I think we are fooling ourselves if we think
that any kind of mass immigration or migration is going to sub
stantially reduce the problem that confronts HongKong. În saying
that, I include the offers that have been made by all the other nations
of the free world, including Taiwan.
Thirdly , I would say that a terribly important item that the Con
gress must consider is the trade policies concerning Hong Kong.
not possibly
Hong Kong survives on its export industries. It could Its
begin to raise the food necessary for its inhabitants. lifeblood
is exports. To the extent that the United States and other nations
adopt protective policies against Hong Kong industries, to that ex
tent do we decrease the possibilities within the colony itself for
providing the jobs and the daily suetnance that is desperately needed
for its refugees. There is no doubt about the reaction in Hong Kong
to the recent embargo on textiles from Hong Kong. The impact this
has had on the textile industry, which is the mostimportant industry
in Hong Kong, has already had substantial results in causing unem
ployment. I do not attempt to suggest a solution, but I do suggest
that in contemplating these problems, we remember they are not only
economic in their straight classical sense, but they do have human
overtones, especially inHong Kong where a refugee community is
affected .
Fourthly , I would like to say I was delighted to hear Bishop
Swanstrom talk in terms of capital improvement in Hong Kong.
For example, the building of new housing, the reclaiming of new
lands, the development of land in places like Lan Tau that has greater
land capacity than Hong Kong itself. These are lands that can be
developed but it takes capital investment to do it. Hong Kong should
be able to makean appreciable addition to that development.
International banks can help, and this is clearly an area where the
United States itself can be of direct assistance .
An international conference has been discussed to allow the free
world to meet and discuss the possibilities and problems of the
Hong Kong crisis. I believe that the crisis we saw in Hong Kong
in the early weeks of May is one that we will see again, because the
conditions that occasioned it will recur again. And I would hope very
much that in contemplation of that recurrence, the nations of the
free world would concentrate and focus their attention on possible
solutions. Because of the political problems that are involved , I do
not think that this can be done in a formal way. I think it has to
be done unofficially and it has to be done at a high level and it has to
be done with realism and frankness and the honesty that allies deserve
to give to one another.
I think that Hong Kong faces the basic problem of the Chinese
refugees and carries the basic responsibility for whatever solutions
will come about. Essentially, it is a problem whose solution, if any,
depends upon the guidance and goodwill of the British and Hong
Kong authorities.
REFUGEE PROBLEM IN HONG KONG AND MACAO 55
Because this is a problem that has evoked a response throughout
the world , and especially because it is a challenge that has evoked a
deep emotional response in America in its traditional sense of com
passion and humanitarianism , I think the refugee problem in Hong
Kong is one that should and must command our continuing attention.
But I think it has to be an attention that is within a framework of
responsibility. And that framework of responsibility is the frame
work of the Hong Kong authorities who bear the principal burden
of the daily battle . I hope very much that those who are charged
with the responsibility of settling these problems will try as far as
possible to seek out the opinions and the advice and the recommenda
tions of the Hong Kong government before moving into any major
areas of new recommendations.
Thank you , Senator.
Senator Hart. Thank you. I find it hard to imagine that your
written statement could be any more explicit and easy of chronological
absorption than your oral one from notes. It is excellent. So, too, the
specific suggestions with which you concluded that statement. It is
the kind of statement that we have not exchanged views on for a long
time, just as Bishop Swanstrom’s. I think our wisest course is simply
to let it speak for itself.
Mr. Johnson
Mr. JOHNSON . No questions.
Senator HART. Mr. De Haan ?
Mr. DE HAAN . No questions.
Senator HART. Mr. Nishimura ?
Mr. NISHIMURA. I observed that there is a great deal of American
concern on the Hong Kong refugee problem . Have you seen the activ
ities of the United Nations or the nations of the United Kingdom or
other members of the free world on this Hong Kong problem ?
Mr. VANDEN HEUVEL. There are authorities in the room who can
correct my impression , but I believe that the United Nations has
little or no program in relation to the Chinese refugees because they
are not under the mandate of the U.N. High Commissioner for
Refugees.
The United Kingdom, of course, carries on major relief programs
through its own system of voluntary agencies, such as the Oxford
Committee for Famine Relief. During the WorldRefugee Year, the
British response, of course, was more generous than any nation in
the world , and a good part of that was directed toward Hong Kong
and the refugees.
Butbasically, the everyday problems of the refugee community
have been the problems of the Hong Kong authorities and the volun
tary agencies who have worked there. The American voluntary agen
cies have struggled with their various constituencies to find the re
sources to carry on the endless programs that could be carried on if the
resources were available. There is no limit to what the voluntary
agencies can do, I think, in HongKong, if the resources were available
to them, because Hong Kong does represent a practically endless
humanitarian problem .
I think thatthe voluntary agencies deserve great commendation for
the work they have done, and I think the British authorities in Hong
Kong feel that very strongly, too. They have established excellent
56 REFUGEE PROBLEM IN HONG KONG AND MACAO
working relationships with the agencies and are deeply appreciative
ofthe assistance and the generous support they have received.
The agencies, I think , have had a difficult time for a decade in find
ing the kind of support that they needed, although there were a million
refugees in Hong Kong before May 1. It was very difficult to get the
American people to understand the dimensions of the problem , and
perhaps one of the greatest benefits that will come under the recent
experience is the fact of a real and realistic identification between the
American public and the Chinese refugee problem in Hong Kong.
I hope it will be an enduring identification .
Mr. NISHIMURA . One more question, Mr. Chairman .
You suggested that the rehabilitation and resettlement work can
be carried out within Hong Kong itself. Is there room or space to
absorb more refugees, or do you mean the present refugees in Hong
Kong ?
Mr. VANDEN HEUVEL. I mean among the present refugees in Hong
Kong and among the 50,000, who, as you may know, come in legally
every year. The crown colony admits at least 50,000 refugees each
year legally intoHong Kong.
I might add, Senator, that of the 60,000 or 70,000 who appear at the
border, probably 15,000 or 20.000 are in Hong Kong today through
various means and the Hong Kong authorities are not returning them
to China. They are allowing them to register and establish residence
in Hong Kong
All of us, I think, were deeply disturbed to see one of the few
boundaries of the free world that is left to us where people can come
from an Iron Curtain country to the free world closed up. We feel
very deeply about the wall in Berlin and its consequences, and it is a
traumatic shock to us to think that it was necessary for a member
nation of the free world to put up an obstacle of its own to prevent
people from coming across the boundaries of the free world. But, at
the same time, we do not have the direct responsibility for Hong Kong.
I am sure thatwe would no more appreciate the government ofHong
Kong setting the immigration standards for admission into the United
States of Chinese refugees than they might appreciate various recom
mendations that have been made publicly in the United States, and I
might say among those recommendations were my own.
I feel that my trip to Hong Kong has, among other things, given
me a very real appreciation for the daily problems that that govern
ment faces, and I think that there are many things that we can do as a
voluntary agency , as a government. But I think we have to do it in
a realistic context of guidance from the authorities who have the basic
responsibility.
Mr. NISHIMURA . Thank you.
Senator HART. One of the things we ought to repeat often here at
home is the point you just made, that, annually, 50,000 refugees are
admitted and absorbed into Hong Kong. We have been " standing
on our head” around here for a couple of years over the influx from
Cuba. So we ought to remember this point. We ought to remember
Hong Kong's capacity when we talk about reevaluating our own basic
immigration policy. When we tear our hair out over the fact that
increased immigration might cause economic disturbances and areas
of unemployment, we just ought to measure our performance against
that of Hong Kong.
REFUGEE PROBLEM IN HONG KONG AND MACAO 57
Mr. VANDEN HUEVEL. Yes.
Senator Hart. Before you leave, Miss Chu, when did your family
come to this country !
Miss CHU . My two elder sisters came in 1949. Then my parents
and my younger sister --my mother and my younger sister in 1956.
Senator HART. What does your family do, if I may ask ; your
father ?
Miss Chu. Well, my father is retired and my elder sister is working
as a writer at NBC onthe “ Today " show. Mysecond sister is working
at Time-Life. My third sister is studying in the University of Cali
fornia, biochemistry; and my younger sister in Columbia University,
Far Eastern courses .
Senator Hart. Well , again, I wish we were going into the living
rooms of every home in America.
Miss CHU . Thank you .
Senator HART.I would like to find anybody that would wrestle with
the proposition that this American society is not richer because you
and your sisters are here. I take it from that sequence that you
described beginning in 1949 , that is took quite a while for that to
happen.
Miss CHU. Yes.
Senator HART. Absent a very wise and prompt response from the
Attorney General and the President, I take it you would not yet be
here .
Miss CHU . No.
Mr. VANDEN HUEVEL. Thank you very much .
Senator Hart. Unfortunately, I must suggest a recess. I know
how difficult it is for those remaining.
If for some reason any of the remaining witnesses find it simply
impossible to return, as I shall suggest, at 2 o'clock, there are two
alternatives. One, the less satisfactory from our standpoint and un
doubtedly from yours, would be to file a written statement to be
made a part of the record. The other would be to plan to come
tomorrow. I have not made this announcement for the record today
until this point, but the committee will resume hearings at 11 o'clock
tomorrow morning, at which timethe president ofthe ChineseRefugee
Relief Organization, Mrs. Claire Chennault, will testify. You can
indicate to Mr. Johnson your preference and I shall suggest a recess
until 2 o'clock.
(Whereupon, at 12:40 p.m., the subcommittee recessed, to resume
at 2 p.m. , of the same day .)
AFTERNOON SESSION
Senator Fong (presiding ). Senator Hart, chairman of the subcom
•
mittee, will be unavoidably detained. I will open the meeting and
we willnow continue with our hearing .
I will call for our first witness, Mrs. Pettiss.
STATEMENT OF MRS. SUSAN PETTISS, ASSOCIATE DIRECTOR,
INTERNATIONAL SOCIAL SERVICE, NEW YORK , N.Y.
Senator Fong. Mrs. Pettiss, I have read your whole testimony, be
cause I thought you had given it this morning while I was not here.
Mrs. PETTISS. Thank you .
58 REFUGEE PROBLEM IN HONG KONG AND MACAO
Senator Fong, on behalf of the American Branch of the Interna
tional Social Service, I should like to express our appreciation for the
invitation to appear before your subcommittee.
Problems of refugees and migration were the central reason for the
establishment of International Social Service. During the past 40
years an individualized approach has been provided to uprooted peo
ples by our agency which is nonsectarian in character and operates
through its network ofoffices in 20 countries and qualified correspond
ents in most other countries around the world . Experience has proven
the validity of the social casework method of assisting refugees, as
the eventual solution to their problems must inevitably be on a one-by
one basis.
We were receptive therefore, in 1958 when the Hong Kong govern
ment asked International Social Service to assist in finding a secure
future for a number of orphans abandoned or stranded in their al
ready overcrowded orphanages. With partial support of the Far
East refugee program (FERP ) of the U.S. State Department, ISS
Hong Kong has ,since that time, been able to show dramatic and
heart -warming results with the problems of these " littlest refugees. "
Over a thousand children in Hong Kong have received ISS help ,
some assisted to remain with a mother or relative under bettered con
ditions, others to go to selected adoptive homes in 13 countries—
chiefly Great Britain and the United States. Forty -three percent of
these children were known to be refugees or children of refugees.
Thirty -three percent were abandoned, and therefore with no records
to show whether they were refugees. Since in the Chinese culture,
however, children are loved and highly prized , one can only think that
abandonment was a last resort ofa desperate parent or family over
whelmed by the conditions of the refugee crowded economy and
insecure future.
Specialnonquota orphan immigration legislation has made it pos
sible for ISS to bring over 600 ofthese children to the United States
to waiting adoptive parents who have welcomed them as a member of
their family.
This very personal and intimate gesture of generosity has created
an image of the United States which, ina way, offsets that usually
created by the U.S. immigration restrictions imposed on orientals.
The families assure us, however, that they are the benefactors, not
the children, because of the love and joy they receive from them .
Through this intercountry adoption plan, permanent solutions are
found for children who would have been a costly burden on the Hong
Kong Government as they would have required care in institutions
until they grew up. The adoptive parents bear the cost of transporta
tion and documentation, so that the expense to the U.S. Government
is at a minimum. The service of the American branch of ISS has,
up to now, been provided without cost to families, or to either the
Hong Kong or the U.S. Government.
Children are a precious commodity and although the conditions
creating the need for expeditious movement of these Hong Kong
children are overwhelming, it is to the credit of the Hong Kong Min
istry of Welfare and the U.S. State and local adoption agencies that
this movement into individual American homes is considered withno
less skill and care than that which would be given to American chil
dren placed in adoptive homes.
REFUGEE PROBLEM IN HONG KONG AND MACAO 59
The results giveproof that this planning pays off. In less than
1 percent of the ISS adoptive plans has there been the necessity to
alter the original placement arrangement, and in no caseis thereany
indication that the child should be returned to Hong Kong. The
intercountry movement has been accomplished within the framework
of the excellent Hong Kong child welfare and adoption laws, and
according to the child placement and adoption laws of the 50 Śtates
of the United States.
We confess that we had some questions at the beginning of this
program as to whether the oriental children going into Caucasian
American families would encounter discrimination in their new com
munities, how would they be accepted in their American schools, and
what would it be like for them when they reached adolescence and
marriageable ages.
In 1959 we called in a group of eminent scientists to consult with
us — an anthropologist, a psychiatrist, a geneticist, a psychologist, and
a sociologist. We were reassured by their expert advice .
It was only after we had .a meeting of a group of adoptive parents
last year, however, that we were assured that our fears were un
grounded. They had adopted oriental children of all ages, and some
had been with them for over 5 years. Their experience, and that
which we have reported to us daily from all over the country, con
firms our faith in the response of American families and commu
nities to children eventhough they may be visually different.
Over half of the children from Hong Kong have been adopted by
Caucasian families. The interest inspired by Church World Service
through their affiliated Protestant churches has been a positive force
in stimulating families to want these children and to welcome the
children into their new hometowns.
But this movement of Hong Kong children into adoptive homes in
the various countries is not the only benefit of the ISS Hong Kong
operation. Like all ISS offices, it is staffed by trained social workers,
native to the country, and enjoys a close relationship with the gov
ernmental and voluntary welfare agencies. Because of this indige
nous compatibility, it has been in a more strategic position to have its
service accepted as a demonstration which will undoubtedly have wide
effect on general child welfare services to children in the crown colony.
As the only professional voluntary casework agency, ISS is frequently
called uponto consult with orphanages, schools of social work, and
other voluntary agencies . Recently one of the orphanages was so
impressed with the way ISS assembled facts about a child's back
ground and medical history that they asked for the loan of a case
worker to set up the whole registration and recordkeeping system for
the institution. Up until that time they did not even have a proper
file cabinet and children were taken in with the only record of their
admission and background in the memory of the person receiving
them . Now the orphanage has taken a social worker on their staff.
While planning to continue intercountry adoptions, ISS Hong
Kong is moving to fulfill other service needs in this refugee-ridden
city .
Hong Kong's problem is people. The Hong Kong Governmentis
doing a stupendous job in trying to provide basic housing, jobs, medi
cal attention, schools, et cetera. People need attention to their per
sonal problems and situations, though, and there are not enough
60 REFUGEE PROBLEM IN HONG KONG AND MACAO
trained social workers to give it. ISS is being called upon more and
more to support efforts of the Hong Kong Government to bolster their
reservoir of trained personnel to meet this overwhelming need . Some
of the ISS staff teach in schools of social work, the agency serves as a
laboratory for practical experience for social work students, and ISS
caseworkers are called upon for leading seminars on casework coun
seling for those individuals working directly with refugees on retrain:
ing or resettlement plans.
We were asked by your subcommittee, Mr. Chairman , to give our
appraisal of present relief and assistance programs in Hong Kong.
I have just returned from Hong Kong and after only a few days there
would not presume to do more than comment on my impressions which
to some extent have been confirmed by the experience of our agency.
The Hong Kong Government has beenmost effective in establishing
and maintaining law and order in a chaotic situation , so much so
that one mightsuperficially get the impression only of a bustling,
thriving city. I was most favorablyimpressed with the U.S. Govern
ment efforts to support the Hong Kong Government in coping with
the refugee-swollen population, and the sound way in which the
FERP, under the leadership of Mr. Robert Aylward and Mr. Herman
Washington, are directing the expenditures of funds, coordinating
and advising with the American voluntary agencies operating there,
and generally recognizing and meeting the human needs.
It did seem to me that these voluntary efforts needed to be better
coordinated to eliminate duplication. Also, guidance seemed called
for to direct more effectively good intentions into sound programs.
For instance, I learned from staff ofthe Hong Kong Ministry of Wel
fare that the Ministry was finally forced to take a firm position not
to permit any building of more children's institutions. Certain
schemes designed to assist institutions based on contributions to in
dividual children might be reevaluated to be sure the children are not
then bound to permanent institution care. I learned that a new build
ing for blind infants had recently been completed, beautifully
equipped, and it was only when no babies were brought for admission
that it was determined that what was really needed was trained ther
apists to go out to homes to help mothers and families determined to
keep their babies with them .
In order to accomplish best results in the present situation it seemed
to me that what is needed is more skilled staff to plan for the move
ment of children out of institutions, more qualified staff in the existing
institutions to provide the children with adequate care, professional
leadership to help bring recognition of the fact that storing children
in institutions and turning them out at the age of 18 is not the best
preparation for adulthood and citizenship.
Repeatedly examples came to my attention strongly pointing up
the need for more trained personnel at all levels of social welfare.
This need does exist all the way from the top level of social surveys,
social planning, and social welfare administration to the practical
level of combating juvenile delinquency, caring for children'in insti
tutions, day care of children of working mothers, and casework serv
ices in hospitals, housing projects, refugee reception centers, vocational
training for the handicapped, mental institutions, et cetera .
REFUGEE PROBLEM IN HONG KONG AND MACAO 61
Money spent to provide better staff and expand Hong Kong schools
of social work, bolster the current program to train those already
working in social welfare jobs, offer stipends and scholarships to
social work students, strengthen operating agencies with standards
sufficiently high to give internship experience to those in training,
would be a very wise investment whichwill pay off for years to come
in dividends inhuman happiness and productivity.
In closing, Mr. Chairman, I would ſike to comment that if a bill
similar to S. 3043, which Senator Hart introduced in the Senate, had
been law, the United States would have been in a much better posi
tion to give tangible expression of our sympathy for the heartbreak
ing plight of the refugees in Hong Kong by absorbing a number into
the United States.
Undoubtedly, this would have had a great impact, not only in terms
of the individuals resettled, but by ourexampleother countries would
have been encouraged to do likewise. Senator Hart's bill is a step
forward in the whole field of immigration as a constructive revision
of the currently rigid formula structure of national origin quotas and
an expression of a humanitarian desire to assist refugee groups more
adequately. We earnestly hope, also, that the bill, H.R. 10079, intro
duced into the House of Representatives by Congressman Francis
Walter and passed by that House, will soon be assigned to a com
mittee in theSenate for their consideration and prompt action. The
recommended provisions in this bill for appropriations for U.S. par
ticipation in ICEM , UNHCR , and USEP - covering FERP - pro
grams is more important than ever in view of the recent flood of ref
ugees from Communist China.
I might add that International Social Service is prepared to assist
our Government by immediately bringing into this country for adop
tion 200 orphaned or needy children, assuming that an agreement
can be reached with the Hong Kong Governmentto expedite the plan.
In cooperation with the established adoption agencies of our States
and communities, ISS is ready to move swiftly. Most of these adop
tion agencies are already burdened with the problem of finding homes
for the Cuban unaccompanied children , but we believe they can be
counted upon to rise to this Hong Kong emergency.
May I thank you, Mr. Chairman , for this opportunity, and may I
Social Service will be glad to make our
advise you that Internationalcommittee
experience available to your in any way in which you will
find useful .
Senator Fong. Mrs. Pettiss, concerning the International Social
Service - how many nations are in this social service group ?
Mrs. PETTISS. At the present time, we have offices or branches in
20 different countries. It is an international agency. Our headquar
ters is in Geneva, Switzerland.
Senator Fong. Do you have any members who are now working
in Hong Kong who areU.S. citizens?
Mrs. PETTISS. No; they are all Chinese, with the exception of the
director, who is an American.
Senator Fong. And in the work that has been done by the Inter
national Social Service in getting these orphans to be adopted by
families, most of them have been adopted by American families ; is
that true ?
87544-62-5
62 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mrs. PETTISS. A number have gone to Great Britain. Some few
have gone to Canada. More will be going to Canada and small num
bers have gone to other countries. The largest numbers have come to
the UnitedStates.
Senator Fong. Are you familiar with the laws of these other coun
tries relative to allowing these orphans to be adopted by their people?
Mrs. PETTISS. Somewhat familiar. Particularly, I am familiar with
the British law.
Senator Fong. Does thatlaw allow unlimited adoption ?
Mrs. PETTISS. The British law does. The Canadian law and some
other countries are extremely restricted . The Australian law, for in
stance, does not allow them to come into Australia to be adopted by
their people.
Senator Fong. Is the International Social Service trying to liberal
ize the laws in those countries ?
Mrs. PETTISS. The International Social Service in these countries
where they have branches, I think, has consistently taken the stand
that the American branchof the social service has, and that is that
these children should be allowed to go to whatever country in which
homes are offered to them .
Senator Fong. Does International Social Service work in coordina
tion with the local branch of social service; for instance, in Hawaii?
Mrs. PETTISS. That is true. We work very closely with the child
welfare division of the Hawaii State Department of Public Welfare.
Senator Fong. Before the child is allowed to come, do the social serv
ice and welfare organization of the State make a careful study of the
family ?
Mrs. PETTISS. This is true, and after the child comes, the same agency
will remain in the picture to supervise and stand by until such time
as the child's legal adoption is completed, which in many States is at
least a year after the child arrives.
Senator Fong. And all these adoptions that have taken place in
the United States, has anyone been sent back ?
Mrs. PETTISS. None have been sent back, sir.
Senator Fong. Has it been a very beneficial thing ?
Mrs. PETTISS. We feel it has been a very successful program .
Senator Fong. And all the people you have contacted, the Interna
tional Social Service has contacted , their expression has been a happy
one ?
Mrs. Petriss. I would say that is an understatement. They would
say they are the recipient in the program , as they have been able to
get from these children a great deal of joy and happiness.
Senator Fong. I was interested in your statement that over one
half of these children were adopted by Caucasian parents. I had the
impression that most of them were adopted by Oriental parents.
Mrs. Pettiss. The children that webring in, Senator, are ordinarily
in two categories. About a third of the children come to relatives.
These are children that have been orphaned by the death of their par
ents, or one parent. They come to grandparents, uncles and aunts,
or perhaps even a brother or sister. Of course, these would be Chi
nese families. Of the other two -thirds, half have gone to Chinese
families and the others to Caucasian families.
REFUGEE PROBLEM IN HONG KONG AND MACAO 63
Senator Fong. Is there not a restriction in the orphanage law which
states that before a child is eligible for adoption, the child must be a
child of a refugee or must have lost a parent !
Mrs. PETTISS. I believe the definition of a child that is eligible for
the nonquota visa is that the child is orphaned either by loss of both
parents or the loss of one parent and the other parent is unable to take
care of him and has irrevocably released the child for adoption.
Senator Fong. Regardless of who the parents were ?
Mrs. PETTISS. Yes .
Senator Fong. Thank you very much, Mrs. Pettiss, for a very fine
statement.
Any questions, Mr. Johnson ?
Mr. Johnson . No.
Mr. DE HAAN . No.
Senator Fong . Thank you.
Mr. Snyder of the American Friends Service Committee, we would
like to have you come forward to give your testimony.
STATEMENTS OF WILLIAM W. CHANNEL AND EDWARD F. SNYDER
ON BEHALF OF AMERICAN FRIENDS SERVICE COMMITTEE AND
FRIENDS COMMITTEE ON NATIONAL LEGISLATION
Mr. SNYDER. Mr. Chairman , I am Edward Snyder and this is Wil
liam Channel. William Channel is going to lead off in the testimony
and I will add other points.
Senator FONG. Proceed .
Mr. CHANNEL. Thank you. I have some descriptions of the Ameri
can Friends Service Committee program in Hong Kong which I will
leave here for the committee.
Senator Fong. We will incorporate that as part of your testimony.
Mr. CHANNEL. Thank you.
( The document referred to is as follows :)
AMERICAN FRIENDS SERVICE COMMITTEE REFUGEE PROGRAM IN HONG KONG
REPORT No. 3
More than 1,500,000 refugees have come into Hong Kong since the Com
munist takeover of China in 1949. It is the world's most densely populated city,
increasing in numbers every year. The problems of housing, feeding, clothing,
and caring for the needs of these people are overwhelming ones. In an attempt
to alleviate some of these hardships and to assist the refugees in obtaining jobs
and useful leisure time occupations, the American Friends Service Committee
has been working in Li Cheng Uk, one of nine large resettlement estates.
AFSC community service in Hong Kong includes a cooperative day nursery,
mothers' clubs, fathers' clubs, youth activities, and work with villagers. The
project center is located in the third largest of the multistoried resettlement
buildings erected by the government. Over 48,000 people live on a 14-acre site.
Some 16,000 are children under the age of 10. Thousands of other refugees
still have to live in shacks on hillsides, or on sidewalks, rooftops, and boats.
The AFSC program has been centered in the city, but opportunities for helping
the refugees have recently been extended to fishing villages on the mainland
portion of Hong Kong.
The AFSC has organized projects in two villages among refugee fishermen .
At Tsung Hau village there was great need for an all -weather path so that
supplies could be brought in during the rainy season . AFSC staff helped the
villagers meet this problem. Responding to the aroused refugee initiative, the
government provided cement, stone, and sand ; villagers did the work - meticu
lously organized with a local cement man supervising mixing and laying.
Tools were borrowed from a local work camp organization. Extra food was
64 REFUGEE PROBLEM IN HONG KONG AND MACAO
provided for workers. With the path completed , villagers have now improved
their own houses with steps and paths, buying a few cents worth of cement and
using river said.
The AFSC also provides training in sewing and literacy. Villagers enjoy get
ting together for a constructive purpose in the community center.
The room pictured here is 10 by 12 feet. It is typical of the rooms in the
resettlement block where the AFSC is working. This is the living space for five *
adults. Children under 10 count as half an adult. If families are small, one
room is divided into two sections and two families live in the space with a com
mon door and a thin partition separating them .
Residents show much ingenuity in making a home of this cubicle, dividing off
a sleeping and living area, or putting in a half-balcony for sleeping . Twenty or
more families share communal toilet and laundry facilities with one or two
water taps for the entire floor.
The two boys in the picture, aged 16 and 19, sew all day - assembling previously
cut short pants. They get 25 cents per dozen for completed articles, and can
average 50 cents a day. Their mother takes care of a neighbor's baby, which
allows the neighbor to work in a factory and earn a few more dollars.
These youths are not only learning a useful occupation, but are contributing
to the income of their family. AFSC classes in tailoring enabled the boys to get
work.
In addition to these training and recreational programs, the AFSC has estab
lished a library. This is available for all ages and is much in demand. Its
6,000 volumes are used daily by about 500 children and adults.
“The youth in Hong Kong are terribly confused ," write an AFSC worker.
"In place of emptiness and hopelessness the AFSC staff attempts to put some
thing constructive - job opportunities, and recreational facilities.”
The AFSC-trained Chinese staff teach the refugee children in a cooperative
nursery school set up as part of the service committee project. In this picture
children are learning how to tell time. Refugee mothers share in planning and
running the school, thus feeling a sense of belonging and of community. Without
this activity large numbers of small children would be left to sit in their cubicles
or huts, or to play in the streets.
In all these programs - fathers' clubs, youth work, mothers' clubs, village de
velopment, cooperative day nursery, counseling, teaching — the aim is to help
refugees to help themselves, and to gain a purpose in life. This is a beginning
toward the solution of an enormous problem which will have to be met for a
long time to come.
Mr. CHANNEL. I would like to say at the beginning that I am one
of those Caucasian parents — referred to by the previous witness — who
has adopted a Chinese child in Hong Kong and it is certainly one of the
happiestthings that has everhappened to us.
I am William W. Channel, of Philadelphia, director of the oversea
refugee program of the American Friends Service Committee. I have
recently returned from Hong Kong where I have served for 242
years as director ofour Hong Kong refugee program . My companion
is Edward F. Snyder, executive secretary of the Friends Committee
on National Legislation. Our two committees do not claim to speak
for all Friends, since Friends cherish the right to their individual
opinions. Nevertheless, Friends in general have aa long and continuing
record of concern for the hungry and dispossessed.
I will speak to the refugee problem in Hong Kong. Edward Snyder
will speak to the more general problem of hunger on the mainland of
China .
The first page of my testimony and about halfthe second page has
been already said in one way oranother by previous witnesses. So I
would like to spare the committee hearing them again by skipping
down to my recommendations on themiddle ofpage 2.
REFUGEE PROBLEM IN HONG KONG AND MACAO 65
Senator Fong. That will be incorporated as part of your testimony.
( The matter referred to is as follows :)
The influx of refugees from China into Hong Kong over the past 10 years has
resulted in one of the most dramatic refugee problems in the world today. The
responsibility of caring for and housing these refugees has been borne largely by
the Hong Kong Government, though there has been substantial help from the
United States Government as well as many private agencies.
The crown colony government has responded to the emergency in many ways.
Health and welfare programs have been developed and expanded . Industry has
been encouraged to the extent that, whereas before the war entrepôt trade made
up 70 percent of the colony's income and local industry 30 percent ; the situation
is now exactly reversed with local industry providing 70 percent of the colony's
income. Perhaps the most dramatic development has been in public housing. In
the past 5 years, over 400,000 squatters have been rehoused in multistoried re
settlement estates. Another 100,000 people of higher incomes have been re
housed in middle -income housing units.
Private welfare agencies have helped bring relief to Hong Kong by providing
schools, vocational training programs, community services, as well as vast feeding
programs. These feeding programs have been made possible through contribu
tions of millions of pounds of U.S. surplus commodities. In addition to providing
approximately $5 million worth of food each year, the U.S. Government, through
its Far Eastern refugee program , allots $1 million annually in cash assistance,
much of which goes to finance special projects proposed by various private
agencies.
With the various government and private agency relief programs in Hong
This is largely true. With
Kong, it has been said that no one need starve.
present numbers and present programs continuing, no one need be hungry.
But these people have no future.
They are ambitious and industrious. One might say they share the American
dream of making life better for themselves and their children. But unlike us,
their chance of fulfillment of this dream is slight.
As Hong Kong has continued to bsorb vast numbers of refugees over the
years, the question has frequently been asked , “ How long can Hong Kong con
tinue to absorb such numbers of people ? How long can they be fed ? How long
can industry continue to expand and provide jobs for this rapidly expanding
population ?" Hong Kong has responded with resignation , and a faith that
somehow they would manage, that in any case they had no choice but to continue
to accept people as they came.
The deluge of refugees that began to cross the border in May of this year
changed the picture. It was obvious that Hong Kong could not absorb the num
bers that were coming and continue to provide jobs and food for its citizens.
The government of Hong Kong was suddenly forced to turn people back.
For this reversal of policy Hong Kong was criticized in many circles. Yet it
was not Hong Kong that was taken by surprise. It was the entire Western
World, including the United States. We were not ready. Hong Kong had been
receiving refugees in vast numbers for 10 years and receiving only token help
from outside. Because this refugee problem had been in existence for 10 years,
we in the West accepted it as a normal state of affairs. We learned to live with
it. We did not demonstrate a readiness to devote major attention to this prob
lem . And we were not ready when the situation suddenly became dramatic and
critical.
China has now spared the West continuing embarrassment. The bamboo cur
tain has again closed . For how long we do not know. But now is the time for
us to give serious thought and study to a major constructive program for
Chinese refugees and to provide leadership for other nations in the West. This
committee is to be commended for its initiative in this direction .
Mr. CHANNEL . While I am not prepared to suggest a major solu
tion to this problem , I feel there are certain things we could be doing,
in addition to the very commendable action by President Kennedy in
permitting several thousand Chinese refugees in Hong Kong to enter
the United States. Among such actions might be these :
1. Take greater numbers of Chinese immigrants and refugees as
proposed in the bill being sponsored by Senator Hart with the co
66 REFUGEE PROBLEM IN HONG KONG AND MACAO
sponsorship of other Senators. Raising the quota on Chinese immi
grants from 105 to more than 5,000 and permitting the admission of
up to 50,000 refugees a year — including Chinese refugees encourage
a more liberal policy on the part of other nations. It would increase
the hope of many who nowfind Hong Kong a dead end. Putting
the quota more in line with that of other nations would remove the
stigma of the Chinese as an " excluded” group. It would be public
recognition that the Chinese make good American citizens.
2. The United States should also take its fair share of the aged and
infirm Chinese .
3. We should study ways and means to encourage Hong Kong
industry to expand and diversify in order to provide more jobs for
a people who are anxious and willing to work. I am no expert in
this field, but I feel we should take advantage of the Chinese desire
to work and make a better life for themselves. The Chinese are a
courageous and industrious people and will make their way if given
a chance.
4. We must remember that Hong Kong must manufacture and sell
in order to provide employment for thousandsof these refugees. How
ever, in an overpopulated area suchas Hong Kong, labor standards
are naturally far below our own. The Hong Kong Government is
vigorously pursuing the problem of labor standards and is making
steady progress. We might further encourage and support these
efforts by suggesting a " certificate of good labor practices ” for fac
tories that comply, giving import priority to such factories. Such
a step would put Hong Kong products on a fairer competitive level
with our own and would be far more constructive than blanket re
strictions on imports.
5. The United States might also explore the possibility of joining
with the Hong Kong Government in constructing a demonstration
desalination plant in Hong Kong. This suggestion is made, not be
cause we have any expert knowledge about desalination, but because
we are aware of the many problems Hong Kong faces because of
the water shortage. An increased water supply might allow Hong
Kong to accommodate more people, or accommodate present numbers
better, and expand industrial production.
We are also aware of the fact that last year Congress gave the Sec
retary of the Interior authority to initiate cooperative desalination
programs with other nations under Public Law 87–295. The possi
bility for developing conversionplants outside theUnited States was
discussed at length by Under Secretary of the Interior, James K.
Carr, in a speechon March 28, 1962.
In addition to this I would like to describe briefly the water situa
tion in Hong Kong as I have known it over the past few years.
Outside of the rainy months, toward the end of the year, for ex
ample, when we got up in the morning, we knew thatthere would be
4 hours of water a day. We had to do all of our washing and clean
ing during those 4 hours between 6 and 10 o'clock in the morning.
Before 10 o'clock when the water went off, we had to fill our bathtub
in order to have water for use during the day for the flushing of
toilets and for use in cooking and drinking.
Now, we had a bathtub. More thana million people in HongKong
do not have a bathtub. Almost a million of these probably do not
REFUGEE PROBLEM IN HONG KONG AND MACAO 67
have a water tap in the house where they live, and they must take
pails and stand in line at a public water tap on the street and hope
that they will reach this water tap in time to collect a pail of water
before the water goes off.
Manytimes there is near panic as the hour for the water cutoff comes
near and many people in this line have no water. Hong Kong uses
approximately 40 to 50 million gallons of water a day. All of this
water is rainwater that is collected during the rainy season and run off
into reservoirs. There is no appreciable water supply from wells. A
yearago, a reservoir was built and made available to HongKong by
the Chinese Communist government just over the border. This aided
the water situation considerably .
Now, several desalination plants have been experimentally devel
oped in the United States. I have received information this morning
that the United States could build a 50 -million -gallon -a -day conversion
plant in Hong Kong in 18 months to 2 years. Westinghousehas built
a plant at San Diego and has said they are prepared to build plants
of up to 150 million gallons a day capacity. The cost estimates on
constructing a 50 -million -gallon plant — that is, to produce 50 million
gallons a day, would be approximately $40 million.
Now, Hong Kong is preparing to double its water capacity by
damming off bays of the sea and pumping out the salt water and using
these then to collect fresh water. However, these are long -term proj
ects and may take 8 to 10 years to complete. If we could provide a
plant to convert sea water to usable water in a period of 18 months to
2 years, it seems to me that this would be a tremendous contribution to
helping solve Hong Kong's water shortage.
I will now let Mr. Snyder talk to youabout food for China.
Mr. SNYDER. Mr. Chairman, several times during the hearing today,
the question has been raised about feeding the people on mainland
China, potential refugees rather than actual refugees, and I think that
most people regard this as an integral part of the whole question of
the refugees in Hong Kong. It is important for the United States to
make strenuous efforts to help ease the plight of the Chinese refugees
in Hong Kong through resettlement in the United States, through
revision of the immigration law, through expanding the contribution
of U.S. surplus food to refugees in Hong Kong, and through explor
ing the possibility of assisting in a water desalination program .
But it is increasingly apparent that with 600 to 700 million people
in mainland China - roughly one-quarter of the people on the earth
no solution is adequate which deals only with the relatively small num
ber of refugees who can make their way to Hong Kong or Macao.
ThePresident pointed this up in his May 23 press conference when
he said that any efforts at refugee relief and resettlement are swamped
and dwarfed by " the basic problem , which is that of a tremendous
country **** * where food supplies are inadequate.”
Up to this point China has been trying to stave off hunger by
importing millions of tons of grain from Canada, Australia, and
France. Now , however, there is a question as to whether these sup
pliers will be able to meet China's future demand. There is also a
question of whether China has the foreign exchange to continue such
massive oversea purchases.
68 REFUGEE PROBLEM IN HONG KONG AND MACAO
The United States, on the other hand, is blessed with an abundance
of food. As of the end of March , the Commodity Credit Corporation
had in storage 1.1 billion bushels of wheat, 981 million bushels of corn ,
and 32 million bushels of barley .
We believe our Government should begin active exploration to find
ways to help feed those in mainland China who are hungry. We
should not wait to be asked . Pride and self-respect make it difficult
for the Communist Chinese to ask the United States for assistance .
China's Foreign Minister has already proclaimed that Peking “would
never stoop to beg for food from the United States."
Brotherly love knows no national boundaries. As a nation we are
focusing our attention and material assistance on the Chinese refu .
gees who have somehow arrived in Hong Kong. Our hearts have also
been touched by the tragic faces of those who sought to reach Hong
Kong but were truned back . Too few have remembered the hungry
who never left home. Yet each of these persons should be the object
of our concern . As hunger knows no boundaries, so a desire to help
our fellow men should not be restricted by barbed wire borders or cur
tains, whether iron or bamboo , or restricted to China, or Africa, or 1
India.
A humanitarian concern for the hungry regardless of political or
ideological views has been one of the brightest chapters in American
history. After the First World War, hungry people were fed in
Germany, Austria, and Russia . After the Second World War, the
same was done in Germany, Japan, and Italy. Surplus foodswere also
given to the needy people in the Communist countries of East Ger
many, Czechoslovakia, Hungary, and Yugoslavia , after the disas
trous Danube flood of the midfifties. This last program was initi
ated under title II of Public Law 480 ; the food was distributed by 1
local Red Cross societies, acting under the supervision of the League
of Red Cross Societies.
The present situation in China provides this generation of Ameri
cans the opportunity to reaffirm our Nation's traditional concern for
the hungry .
Under our present policy, U.S. Government regulations prohibit 1
the sale of all goods to mainland China including food. Recently a
Seattle trading company applied for a license to sell food to China,
but its application was denied on the grounds there was no evidence
it was acting on behalf of the Communist Chinese Government.
Gifts of food or money to buy food by private U.S. citizens to Chi
nese in mainland China are prohibited by administrative regulations
issued under the Export Control Act and the Trading With the Enemy
Act.
The U.S. Government could give food to the Chinese people under
title II of Public Law 480, which permits donations to friendly
but needy populations without regard to the friendliness of their
Government.'
At his recent news conference on May 23, President Kennedy ex
pressed the latest view of his administration :
Well, there has been no indication of any expression of interest or desire by TH
the Chinest Communists to receive any food from us as I have said from the
beginning, and we would certainly have to have some idea as to whether the
food was needed and under what conditions it might be distributed . Up to the
present, we have no such indications.
REFUGEE PROBLEM IN HONG KONG AND MACAO 69
RECOMMENDATIONS
We recognize this is a very complex subject with many ramifications.
Nevertheless, we believe the present situation gives the United States
anespecially creative opportunity to act constructively in helping to
knit together a dividedworld . We hope our Government will -
1. Lift the prohibitions on selling food to China.
2. Take the initiative in exploring, in quiet ways at Warsaw and
elsewhere, Chinese Government interest in a sale or gift or loan
of food .
3. Initiate discussions inside and outside the Government re
garding the possibility of using international channels, such as
the League of Red Cross Societies which includes the mainland
Chinese Red Cross, to distribute food in China.
4. Remove restrictions on gifts by private American citizens to
designated persons in China. It is intolerable that people who
attempt to send a food parcel to hungry people in China are sub
ject to prosecution under the Trading With the Enemy Act and the
Export Control Act .
America's abundance in a hungry world lays a heavy burden on
our national conscience. We have done much to discharge that burden
through the surplus disposal program under Public Law 480 and the
more recent food - for -peace program, which has provided generous
help in many parts of the world , especially India, Africa, and South
America.
The sharing of our agricultural abundance should now be extended
to the people of mainland China. To withhold help from one- quarter
of the world's people who are in need when our agricultural abundance
is at record heights, would be a moral disaster for our Nation.
To act affirmatively and constructively by offering to sell or give
food would be in accord with our own national traditions and with
the highest teachings of our Judeo -Christian heritage that we should
share food with thehungry even if they are called our enemies.
A magnanimous act at this crucial hour in history might also enable
our Nation to help create an atmosphere in which the traditional
friendship of the American and Chinese people can be reestablished
and the chances for world peace enhanced.
We appeal to this subcommittee to continue its search for effective
methods to assist Chinese refugees in Hong Kong and to support and
encourage efforts to find ways to use U.S. surplus food to feed the
hungry in China.
I have with me, Mr. Chairman, a number of editorials and state
ments, commenting on this question. They include statements favor
ing U.S. food for mainland China by the New York Times. The
Washington Post, Life Magazine of January 27, 1961, of Rabbi Mau
rice M. Eisendrath , president of the Union of American Hebrew Con
gregations; Herschel Newsom of the National Grange ; Charles Schu
man of the Farm Bureau ; George Meany of the AFL -CIO , and
private groups of citizens such as the one in Kansas, who have collected
eight_thousand signatures on a petition to President Kennedy, the
New England Committee for Famine Relief; a. group of San Francisco
clergymen who sent an appeal to the President; the Gallup poll of
March 19, 1961, which showed at that time that 52 percent of the
people questioned favored offering food to China ; 37 percent opposed ;
70 REFUGEE PROBLEM IN HONG KONG AND MACAO
and 11 percent had no opinion. This may be of interest to your sub
committee, and with your permission, I will submit it for the record 1
for whatever use you may wish to make of it. .
Senator Fong . It may be submitted and it will be incorporated as
part of the record .
(The documents referred to are as follows :)
[ From the New York Times, Mar. 31, 1962 )
U.S. FOOD FOR MAINLAND CHINESE ?
1
Keeping food from hungry people is not in the American tradition, but in view
of the circumstances the administration was right to refuse an export license
1
to an American firm seeking to clear the way for a possible sale of American 1
grain to Communist China. No approach from Peiping had been made. The 3
scheme was simply one in which a Hong Kong middleman was trying to arrange
a hypothetical sale which might not have been concluded even if an American
license had been granted .
The Government has not rejected in principle the possibility of American food
being sent to the underfed people of mainland China. Indeed, American food
should be made available by free donation or by sale — to succor the Chinese
people if the arrangements could be carried out in such a way that the Peiping
government would be prevented from using the grain as an anti -American propa
ganda weapon. The U.S. Government, however, is understandably cautions about
authorizing food for the Chinese that would only facilitate Communist
misrepresentation .
The Peiping regime last year let it be known that it did not want American
food, even if given on a private basis with a minimum of publicity . There has
been no official indication from the Chinese Communists that this attitude has
changed. If there is a change, the furnishing of American food for the China
mainland becomes a possibility that ought to receive favorable consideration in
Washington.
[ From Life, Jan. 27 , 1961 )
STARVATION IN CHINA
Unless they get massive help, millions of Chinese people may starve before
spring. They will starve for two reasons : ( 1 ) what their Communist masters
call " natural adversities without parallel in the past 100 years ” ; drought, flood ,
hail, frost, pests ; ( 2 ) the failure of the Communist " commune” system of agri.
culture which broke up families and impressed millions into barracks.
Perhaps most of the tragedy should be blamed upon this stupid and inhumane
system . But that is irrelevant to the stark fact of starvation. By grim paradox,
it flashes on the conscience of mankind at a time when the United States glut of
food is a political and economic embarrassment.
Because of this same paradox , Life more than 6 years ago ( Life, Aug. 23,
1954 ) , at a time of terrible floods, urged that the United States devote some of its
surplus food to the helpless Chinese people. The need now is at least as great as
then. We urge anew that ways be found to move these stores into the emaciated
hands of the men , women, and children who otherwise will die. Admittedly it
will be difficult to guarantee fair distribution , to prevent diversion of the food to
military uses, to graft, or to Communist reexport for trade. But Americans who
managed to save millions of Russian lives amid the Bolshevik revolution, who
sheltered the victims of Japan's 1923 earthquake, who fed the victims of World
War II , such Americans, given the will, can find the way to do this job. Adlai
Stevenson could well make this the subject of his first speech in the U.N.
[ From the Washington Post , May 19 , 1962 ]
STARVING . CHINESE
Whatever grievance the United States justly may have against the Communist
government of China, it has not grievance whatever against the unfortunate peo
ple who are crowding the barricades of Hong Kong as refugees from a starving
land.
REFUGEE PROBLEM IN HONG KONG AND MACAO 71
Wang Ping-nan , the Communist Chinese Ambassador at Warsaw , at the close
of a talk with U.S. Ambassador John Cabot, said “ the Chinese people always
have been good friends of the American people.” One suspects that they re
main so, despite years of violent hate-American propaganda . And it is equally
true that the American people remain friends of the Chinese people .
It is no longer possible for them to show that friendship as once they did.
China is not open to the great charitable endeavors that gathered the contribu
tions of Americans from the smallest villages of the land for Chinese missions.
We cannot now send our teachers and preachers into China, to show that this
traditional friendship for the Chinese persists.
We can aid and we ought to aid the hapless Chinese who are trying to escape
the scourge of famine by flight to Hong Kong. The British crown colony already
has absorbed more Chinese refugees than anyone would have thought possible.
The efforts of Hong Kong to block the entrance of more than can be cared for
in the already overcrowded city is understandable. The responsibility is too
great for Hong Kong, but it is not too great for the United States and the free
world.
Until the officials of Red China ask for famine relief it is not possible or
feasible to supply food to the mainland . We do not need to await the initiative
of Red China to take care of the starving masses who are knocking at the gates
of the British colony. We ought to move to lighten a burden that would be un
endurable for Hong Kong alone. We should transport the refugees to Taiwan
or some other less crowded spot. We should then undertake to provide these
unfortunate people with food from our bulging stocks of surpluses. There will
be other costs of course .
Whatever the costs amount to they will give us value received simply by eras
ing the vision of starving men, women, and children standing in need and want
across the Hong Kong barbed wire. To try to find out how and why they are
there, by whose fault they are in need and pain, is a piece of futile inquiry and
conjecture. It is enough to know that they are in need . One cannot believe
that a generation of misunderstanding and conflict with the Red Chinese has ex
tinguished the historic sympathy and affection of the American people for the
Chinese people. Let the gates into Hong Kong be opened. Let us minister unto
the sick and feed the hungry as we have been wont to do in times past. The
bonds of sympathy, compassion , and understanding abide still in spite of all
the winds of doctrine . We can show that this is so by sending relief missions to
Hong Kong.
The President of the United States probably is the only person in the world
who has the power to set in motion at once an organization equal to the task of
caring for these suffering people. A swift response to this crisis, perfected in
cooperation with the British Government whose interests are so directly in
volved, would do much to show that nothing has diminished our feeling for
the stricken people of China.
[ From the Washington Post, May 22 , 1962 )
FAMINE IN CHINA
Famine, that dread and ancient enemy of man, is again abroad in the world,
stalking the vast plains of China, afflicting its teeming city masses, and hurling
multitudes of starving men, women, and children against the barricades of
Hong Kong.
The statesmen of this country, and of other countries which have food to
give, have many reasons why they cannot act to meet this dreadful scourge.
This country does not have relations with Red China . Red China has not
asked for help. There is no room at all in Hong Kong. There is little room
on Taiwan. There is no room anywhere. These are persuasive reasons ; but
they are not persuasive enough . They are not as persuasive as hunger .
They are not the answer to hunger. Hunger admits of no armistices, delays,
treaties, or compromises. Diplomacy has not a good answer for it. Science
has no answer . Politics and diplomacy and science are all very complicated.
Hunger is very simple. And there is only one answer to it. That answer
is food .
Sooner or later the West in general and the United States in particular will
make that answer. The conscience of this country will not permit it to with
hold any help it can give if the people of China continue to flood toward the
72 REFUGEE PROBLEM IN HONG KONG AND MACAO
barricades of Hong Kong. We may devise a reason a day why we cannot
act. But the hordes beyond the barrier will produce 10,000 reasons a day why
we must act . And the American people will be moved by these reasons. They
will not understand why there must be hungry people at Hong Kong while there
are granaries bulging with food in the United States. They will begin by
blaming Red China for this dreadful calamity ; but if we do nothing to avert
it, they will end by blaming redtape. For all of our logical , plausible, tenable
political reasons will sould like redtape if we let the dead pile up like so much
debris along the Hong Kong barricade.
The world is face to face with another famine, like the terrible famines
that have scourged mankind since the dawn of history. It is a famine that
somehow seems more terrible because it is happening in a generation when
man has dared even to attempt the conquest of space . How strange if such a
generation cannot cope with this ancient foe. Perhaps it is partly because we
have forgotten what sheer hunger is like. Maybe we need to hear old witnesses
to its horror, witnesses like Laurence Binyon who contemplated the great
famines of World War I and wrote in the London Nation for December 1918,
these lines :
I come among the peoples like a shadow.
I sit down by each man's side.
None sees me , but they look on one another ,
And know that I am there.
My silence is like the silence of the tide
That buries the playground of children ;
Like the deepening of frost in the slow night,
When birds are dead in the morning.
Armies trample, invade, destroy ,
With guns roaring from earth and air.
I am more terrible than armies,
I am more feared than cannon .
Kings and chancellors give commands ;
I give no command to any ;
But I am listened to more than kings
And more than passionate orators .
I unswear words, and undo deeds.
Naked things know me.
I am first and last to be felt of the living.
I am Hunger.
The Government of Nationalist China, by offering to accept Hong Kong refu
gees, has taken a step that will make it possible for others to take useful actions. 41
The way may now be opened for vast and effective operations that hitherto could
not have been so readily accomplished . The world outside of Red China has,
as yet, only the faintest intimations of the dimensions of the tragedy. However
great it is, we have great resources at hand to meet it . 9
Let us rejoice that we have the means to turn back this ancient enemy of man.
Let us embrace the opportunity to send food and blessings to Asia, as well as
soldiers and weapons. Let us embark upon a great mission of mercy. Let us
live up to our most honorable traditions. Let us demonstrate anew our his
toric friendship for the Chinese people. Let us send succor to those who beg
for food at the barbed -wire barricades of Hong Kong.
+
[ From the New York Times, Mar. 30, 1962 )
GRANGE CHIEF FAVORS FooD SALES TO RED CHINA — PROTESTS THE U.S.
PROHIBITION AGAINST SHIPMENTS — WHEATGROWERS ALSO ASK LIFTING OF
RESTRICTIONS
( By Donald Janson )
3
CHICAGO, March 29.—Herschel D. Newsom, master of the National Grange,
challenged today the Government's ban on sale of food to Communist China.
Mr. Newsom said the organization's executive committee would meet next week
to discuss the ban . He said it would probably issue a formal protest against the
administration's rejection last Friday of a Seattle exporter's request for permis
sion to sell some $ 400 million worth of wheat and barley to China and North
Korea .
REFUGEE PROBLEM IN HONG KONG AND MACAO 73
" Restraint of trade on the necessities of life is a totally different matter from
an embargo on goods of warmaking potential such as steel," he said in a tele
phone interview from his Washington office.
This is the first time the Grange, which has 800,000 members on the Nation's
farms, has come so close to taking a stand on the question. Mr. Newsom based
his view on humanitarian considerations rather than the need to reduce the
Nation's price -depressing surplus of 1,200 million bushels of wheat.
The position quickly gained the support of representatives of the National
Wheat Growers Association in Kansas. In the association's Washington office,
however, James Dyess, executive vice president, said his organization had no
policy on the matter and “ does not feel we should try to influence the foreign
policy of the country one way or another."
There is now an embargo against shipment of any goods to Communist China
and North Korea , although the law establishing it set up a Cabinet- level review
board with authority to waive it and grant export licenses in specific cases.
President Kennedy said at a news conference 2 weeks ago that there was
" no information " that the Seattle concern had any direct purchase orders from
the Peiping or North Korea regimes. The implication was that an open request
from the Chinese for food to feed a starving populace might get a different
response .
Charles B. Shuman, president of the American Farm Bureau Federation, said
here that his organization believed " we should sell for dollars anywhere anyone
wants to buy.” But he added that he was not in favor of " soliciting” business
with Communist China even though the competitors of American wheatgrowers
in Canada were doing so .
A new organization , called the Kansas Freedom From Hunger Committee, was
formed in Topeka earlier this week . It hopes to collect the signatures of 100,000
Kansans for an open letter to President Kennedy requesting the shipment of sur
plus food to Communist China “ as an act of human compassion regardless of
ideological and political differences. ” Today, posts of Veterans of Foreign Wars
and the American Legion in Topeka protested the petition .
[ From the New York Times, Apr. 1 , 1962)
MEANY PROPOSES Food AID TO REDS—WOULD SEND U.S. TEAMS TO DISTRIBUTE
FREE GOODS , AS HOOVER DID IN THE 1920's
WASHINGTON , March 31 ( AP ) .–George Meany proposed today a plan to send
American relief teams behind the Iron Curtain to distribute free food and medi
cine. The Communist world , he said , is plagued by starvation.
The labor leader said such a plan was negotiated with Lenin following World
War I had worked out well , and, under the direction of Herbert Hoover, had
saved millions of lives in the Russian famine of the early 1920's.
" It should ,” he said , " therefore be welcomed by Mao Tse - tung, Khrushchev,
Castro, Tito and all the other Communist dictators who now are vying with each
other in expressing undying devotion to everything Lenin ever said or did . ”
Mr. Meany outlined his plan in the American Federationist, monthly magazine
of the American Federation of Labor and Council of Industrial Organizations,
Mr. Meany, who is president of the federation , said Americans would like to
help alleviate human suffering if they had an assured way of getting aid to
those who needed it.
OPPOSES SALES OF GOODS
Mr. Meany said selling grain or goods to dictators " whose policies have brought
misery and hunger” to their peoples would not help . Communist leaders, he
said , are not above reselling such supplies or storing them for military forces
" geared to oppression at home and aggression abroad.”
But he said an organization such as the American Relief Administration in.
the twenties that sent American teams to stricken areas and gave aid directly
to famine victims could work without any “ possible misunderstanding by the
recipients of the aid as to who helped them ."
President Kennedy has said there have been no requests for aid from Com
munist China, which has a severe food shortage. But Mr. Meany noted that
Mr. Kennedy had stated recently about that situation that “ if people's lives are
iuvolved , if there is a desire for food, the United States would consider it
carefully.”
74 REFUGEE PROBLEM IN HONG KONG AND MACAO
Saying the Communists had expressed deep gratitude for the aid given after
World War I , Mr. Meany continued :
“ Our country has always shown great generosity and capacity in helping save
people from starvation . The American people would rather give away some of
their rice, wheat, butter, textiles, and medicines to the needy people in Com
munist China, Cuba, and elsewhere behind the Iron Curtain than to sell these
goods for gold mined by slave labor.
" AGAINST ' BUSINESS AS USUAL
“ The suffering is far too great and the human crisis is far too grave to be met
with business as usual transactions and deals. The conquest of hunger must
know no politics.
“ The principles and experience of the American Relief Association in saving
Lenin's Russia from famine could well provide the guiding line for our country's
efforts to help those now menaced by famine behind the Iron Curtain ."
Some Communist countries in Europe, including Poland and Yugoslavia , are
receiving United States surplus food shipments, as well as aid from private
United States relief agencies. No American food is being sent to Communist
China , although Peiping buys some food supplies from Allied countries.
The American embargo on trade with Cuba does not apply to food or medicine.
However, Cuban food purchases here have been dwindling, with Premier Fidel
Castro apparently spending what cash he has for military supplies. Mr. Meany
said the Cuban food shortage was becoming desperate.
[ From the Washington Star, Apr. 1 , 1962 )
SEND U.S. FOOD TEAMS TO REDS, MEANY ASKS
AFL - CIO President George Meany yesterday proposed a plan to send Ameri
can relief teams behind the Communist iron curtain to distribute free food
and medicine to starving millions.
Mr. Meany said such a plan negotiated with the late Communist leader Nikolai
Lenin following World War I worked out well and, under the direction of Herbert
Hoover, saved millions of lives in the Russian famine of the early 1920's.
“ It should,” he said , " therefore be welcomed by Mao Tsetung, Khrushchev,
Castro, Tito and all the other Communist dictators who now are vying with each
other in expressing undying devotion to everything Lenin ever said or did.”
Mr. Meany, outlining his plan in the AFL - CIO monthly magazine, the Ameri
can Federationist, said the Communist world is plagued with starvation. He
said Americans would like to help ease human suffering if they had an assured
way of getting aid to those who need it.
Mr. Meany said selling grain or goods to dictators “whose policies have brought
misery and hunger” to their peoples won't help because he said the Red leaders
are not above reselling ch supplies or storing them for military forces "geared
to oppression at home an aggression abroad.”
But he said an organization like the American relief administration in the
1920's that sent American teams to stricken areas and gave aid directly to
famine victims could work without any “possible misunderstanding by the
recipients of the aid as to who helped them .”
President Kennedy has said there have been no requests for aid from famine
hit Red China. But Mr. Meany noted that Mr. Kennedy had stated recently
about that situation that “ if people's lives are involved , if there is a desire for TI
food, the United States would consider it carefully."
Some Communist satellite countries in Europe, including Poland and Yugo
slavia , are receiving U.S. surplus food shipments, as well as aid from
private U.S. relief agencies. No American food is being sent to Red
China although it buys some food supplies from allied countries.
So far as Cuba is concerned the American embargo does not apply to food
or medicine. However, Cuban food purchases here have been dwindling with
Castro apparently spending what cash he has for military supplies. Mr. Meany ,
said the Cuban food shortage is becoming desperate.
REFUGEE PROBLEM IN HONG KONG AND MACAO 75
[ From the Gazette and Dally, Mar. 27, 1962 ]
HUNGER IN CHINA
Refusal of the Commerce Department the other day to permit shipment of 642
million tons of wheat and barley to China and North Korea by a business firm
in Seattle once again pinponts our blindness to reality in dealing with the Chinese
people. The only China we know is the paper government of Chiang Kai-shek
on Formosa ; the 600 some million on mainland China — 20 percent of the world's
population — are officially nonexistent. We haven't recognized them since their
unification and have done all within our power to keep them from joining the
family of nations represented by the U.N.
We seem to be bent on repeating the blunders with China that we made in
dealing with Russia a generation ago ; and with the same ill effect. It took us
15 years before we got around to exchange ambassadors with the Soviets. Dur
ing that period we not only declined to do business with them diplomatically but
turned thumbs down on businessmen who sought commercial opportunities there.
When Col. Hugh L. Cooper, a retired Army engineer , who built the dam on the
Dnieper river for the Soviets, in the twenties, returned with a glowing report of
the business possibilities for American capital and American know - how and
urged American businessmen to take advantage of the opportunity , the then
Commerce Department under Herbert Hoover would have none of it.
The results are now history . We lost a great opportunity, and the friendship
of the Russian people whose efforts at industrialization subjected them to hard
ships which might have been avoided had they been able to benefit by American
capital and American know-how. If our policy was designed to block Soviet
efforts to industrialize, we have succeeded only in alienating the goodwill of a
people with whom , like it or not, we must live and get along in a world much
smaller than it was even a generation ago . There's little doubt but that the lack
of confidence on both sides impeding the disarmament sessions at Geneva, is in
no small degree due to the attitude maintained when the Soviets were the under
dog in world affairs. Our present attitude toward China shows we have learned
little from our experience with Russia.
Refusal to permit shipment of foodstuff to China by American businessmen has
overtones of a far more serious character than political folly . We appear to
be saying by our behavior that because we don't like China's form of government
we don't care how many Chinese men, women, and children suffer from mal
nutrition . These are shipments of food , not guns. Such an attitude belies the
natural generosity of the American people who have never turned a deaf ear to
the suffering of mankind.
A great friend of America in our own days of trial, Edmund Burke, addressing
an unfriendly House of Commons, put it in words worth repeating : “Magna
nimity in politics is not seldom the truest of wisdom, and great empires and little
minds go ill together." How true.
[ Advertisement from the New York Times, May 28 , 1962 )
FAMINE IN CHINA --OUR GOVERNMENT HAS OVER 2.3 BILLION BUSHELS OF SURPLUS
GRAIN - WE HAVE A MORAL OBLIGATION To LIFT OUR EMBARGO
DEAR MR. PRESIDENT : We feel acutely the disparity between our abundance
of food and the terrible scarcity in other lands. There is famine on the main
land of China while we in America have a surplus of wheat. The United States
traditionally has responded to a concern for the hungry of the world . Political
disagreements should not interfere with the fulfillment of our moral obligation
to feed starving people wherever they may be.
Mr. President, you reflected this American sense of responsibility in your
first press conference when you said : “ If there is a desire for food and a need
for food, the United States would be glad to consider that need, regardless of
the source . "
In fulfillment of this policy we urge that the United States now take the
following actions :
Authorize the private sale of grain to mainland China.
76 REFUGEE PROBLEM IN HONG KONG AND MACAO
Offer to work out arrangements for making grain from our surplus stocks
available as a gift to the United Nations Food and Agriculture Organization
for famine relief in China.
Herbert Agoos Felicia Lamport Kaplan
Ruth Agoos James Lawrence, Jr.
William Alfred Hilda Lieberg
Robert N. Bellah George McCandlish
Crane Brinton Violet Brooks McCandlish
Cecilia Brinton Dr. Samuel G. McClellan
Gorham Brooks David McClelland
Shepherd Brooks Mary McClelland
Katherine Bruner Millicent Cary McIntosh
Hiidreth Burnett Adelaide Marquand
Bishop Donald J. Campbell Leonore Marshall
Hester Hocking Campbell Harold C. Martin
James Carey Perry Miller
Henry Steele Commager Elizabeth Miller
Evan Commager Evelyn Morgan
Francis Judd Cooke Dr. Henry Adams Mosher
Maymay Ludwig Cooke Nancy Mosher
Jacqueline Cooke Henry A. Murray
Albert Sprague Coolidge Robert B. Nathanson
Margaret Stewart Coolidge Reinhold Niebuhr
Phyllis Byrne Cox Ursula Niebuhr
Gordon Crothers David Edward Owen
Marion Crothers Louise Owen
Charles Eliot John B. Paine, Jr.
Regina Eliot Henrietta N. Paine
Alla G. Emerson J. Harlston Parker
Erik H. Erikson Susannah Ayer Parker
Dr. Jacob Fine Hester Chanler Pickman.
Dr. Maurice Fremont-Smith Royce Pitkin
Mary Thayer Fremont- Smith Helen Pitkin
Roger Fisher Dr. Curtis Prout
Josephine Crosby Forbes F. L. W. Richardson , Jr.
Dr. M. Robert Gardner Rebecca B. Richardson
Rabbi Roland B. Gittelsohn David Riesman
John Chipman Gray Norman Rockwell
Helen L. Gray Mollie Rockwell
Rosalind Huidekoper Greene Elizabeth C. Rubel
Lee S. Halprin Florence Selleck
Isabelle Halstead José Luis Sert
Mary F. Handlin Moncha Sert
William Ernest Hocking Stanley D. Sheldon
C. Fenno Hoffman , Jr. Sayre Phillips Sheldon
Ruth Hoffman Elsie B. Sherwood
Irene Hoglund William Shurcliff
Mark DeWolfe Howe Joan Hopkinson Shurcliff
Georgina P. Howland Alice Smith
Celia Hubbard Elizabeth B. Spencer
Everett Cherrington Hughes Polly Thayer Starr
Helen Hughes Paul Tillich
Arnold Hunnewell Hannah Tillich
Mary C. Hlunnewell Rev. Howard Thurman
Gertrude Amory Hutchins Christopher Tunnard
Louis L. Jaffe Sam Bass Warner, Jr.
Mildred M. Jaffe Dr. Richard Warren
Dr. Charles A. Janeway Cora Lyman Warren
Elizabeth B. Janeway Robert W. White
Evelyn Johnson Margaret L. White
Howard Mumford Jones Amos Wilder
Theodore Jones Catharine Wilder
REFUGEE PROBLEM IN HONG KONG AND MACAO 77
7
NEW ENGLAND COMMITTEE FOR FAMINE RELIEF TO CHINA
Esmee De Menocal Brooks Mary Manning Howe
Joan Mowat Erikson Evelyn Thompson Riesman
Caroline Speer Fisher Lyle Lobel Warner
We urge you to cut out and sign this advertisement and send it to your
Congressman . We urge you also to reprint this in your local newspaper. Write
New England Committee, 140 Upland Road, Cambridge, Mass.
FRIENDS COMMITTEE ON LEGISLATION ,
NORTHERN CALIFORNIA OFFICE,
San Francisco, Calif., November 25, 1961 .
President John F. KENNEDY ,
The White House, Washington, D.C.
DEAR JOHN KENNEDY : The enclosed statement urging the sale of wheat to the
Peoples Republic of China has been endorsed by the religious leaders listed below.
It is my understanding that sale of the wheat could proceed if you were to direct
the Department of Commerce to issue an export license for this purpose. It is
the hope of the signers that if this is the situation , you will see that a license
is issued soon . If present law prohibits action, they would appreciate your
efforts to change the law.
Signers of the statement are
Sidney Akselrad, president of the Northern California Board of Rabbis,
Temple Beth El, Arch and Vine Streets, Berkeley.
Joseph Glaser, social action chairman of the Northern California Board
of Rabbis, Union of American Hebrew Congregations, 209 Post St., San
Francisco.
George T. Peters, chairman of the Social Education & Action Committee of
the United Presbyterian Church , Synod of California , First Presbyterian
Church, Burlingame, Calif.
James Pike, bishop of the Episcopal Diocese of California, 1055 Taylor
St. , San Francisco.
Harry Scholefield , minister of the First Unitarian Church of San Fran
cisco, Geary and Van Ness Streets, San Francisco .
Madge Seaver, chairman of the northern California office of the Friends
Committee on Legislation , 2160 Lake St. , San Francisco.
W. Earle Smith, executive secretary of the American Baptist Union of
the San Francisco Bay Cities, 83 McAllister St. , San Francisco.
Sincerely,
HENRY LOHMANN .
A STATEMENT IN SUPPORT OF SELLING WHEAT TO MAINLAND CHINA,
NOVEMBER 22, 1961
Thanksgiving in America has always been a time for pausing after the harvest
to give thanks to God for providing a land which has brought forth food and
materials in abundance . But can one lift his heart in such thanks without a
deep longing to see fed all those who hunger ?
This week news has come that mainland China is seeking to purchase American
surplus wheat through private channels. It is reported that the purchases are
needed to raise the food ration to 1,500 calories daily for the Chinese, hardly
enough to sustain life. It is reported also that our Government may not allow
this sale of surplus wheat.
Our land has been so blessed in the production of grain that some have come
to view America's overflowing silos as a burden . Now this surplus offers an
opportunity to respond to human beings in extremity.
With thanks to God for his bounteous goodness to us , we petition our Govern.
ment , and the people of our Nation to place no barrier to selling food to those
who are hungry in any land, regardless of the political position of their leaders,
which most certainly we do not endorse in this instance.
We hope that those in authority in China will convey to the Chinese people
the concern that we feel for their welfare. May our action as a nation be
such that it will serve to bring closer the day when swords will be beaten into
plowshares and spears into pruning hooks.
87541_62 -6
78 REFUGEE PROBLEM IN HONG KONG AND MACAO
" But whoso hath this world's good , and seeth his brother have need, and
shutteth up his bowels of compassion from him, how dwelleth the love of God
in him ?" I John 3:17 .
" If thine enemy be hungry, give him bread to eat * * * ." Proverbs 25:21.
[ From the New York Times, May 28 , 1962 ]
RABBI URGES UNITED STATES TO OFFER GRAIN TO RED CHINA - EISENDRATH WOULD
NOT WAIT TO BE ASKED FOR THE SURPLUS - HE FEARS POWER STRUGGLE IS
SUBMERGING MORAL VALUES
( By Irving Spiegel)
A leader of American Reform Judaism urged the national administration last
night to take the " moral initiate ” and offer surplus grain to Red China “ with
out waiting to be asked for it ."
Rabbi Maurice N. Eisendrath, president of the Union of American Hebrew
Congregations, referred to President Kennedy's statements that the United States
would be willing to supply the grain if Red China made such a request. The
spiritual leader said :
“ I deeply fear that in this grueling contest with communism , we often sub
ordinate our moral and human values to our military and scientific power . But
moral impotence on our part will in the long run have a greater impact on the
hearts and minds of the peoples of the world than all our military pyrotechnics,
our troops in Thailand , our rockets to the moon , and our blasting of Van Allen
Belts in outer space .”
Dr. 'Eisendrath“ spoke at a $ 100 -a -plate dinner given by the Combined Cam
paign for American Reform Judaism in the Waldorf-Astoria Hotel in connection
with the board of trustees meeting of the Union of American Hebrew Congre
gations. The union is the representive body of all reform congregations in
the Western Hemisphere.
The proceeds of the dinner will go toward the support and maintenance of
the programs of the Union of American Hebrew Congregations and the Hebrew
Union College -Jewish Institute of Religion, a reform rabbinical seminary.
Representative Abraham J. Multer of Brooklyn, a member of the union's board
of trustees, received a plaque in recognition of his public service and efforts on
behalf of American Reform Judaism. Jack Davis, general chairman of the cam
paign , inade the presentation.
In his address, Rabbi Eisendrath described as “ ugly” the fact that “under our
basic and permanent immigration law, the immigration quota of the entire
country of China is 104." 1
“ Our immigration laws are based upon racism and discrimination," he said.
In another address, James J. Saxon , U.S. Controller of the Currency , appealed -
to bankers, businessmen and labor leaders not to limit themselves to meeting the
requirements of “ the law ” but to give increasing weight to “ the social impli
cations" of their acts and to conduct their affairs with the national interest in
mind .
AN OPEN LETTER TO PRESIDENT KENNEDY
We Kansans, living in the breadbasket of America, feel acutely the disparity
between our abundance in food and the scarcity in other lands .
Particularly do we sense the human tragedy of famine and starvation on the
mainland of China. We believe that both we and the Chinees people, in spite
of the ideological and political differences that separate our governments, are
kin in the common root of all mankind : “ God hath made of one blood all nations
of men .” Acts 17:26.
Mr. President, we petition you ( and the Congress of the United States) to
seek ways to make food from our abundance available to the hungry of China
as an act of human compassion . " If thine enemy hunger, give him bread to
eat.” Proverbs 25:21.
.
We realize that many difficulties stand in the way of our desire to alleviate
the distress of the Chinese people. The obstacles notwithstanding, we urge that
the U.S. Government take immediate initiative and quickly make an offer in
good faith through international channels.
For we would not be true to the bedrock idealism of our American heritage
nor to the golden rule of our religious faith if we too easily called ourselves
REFUGEE PROBLEM IN HONG KONG AND MACAO 79
helpless to assist our hungry brothers. We must test every means to that end,
which, with the help of God , we will discover.
As you have stated , Mr. President, in your first press conference on January
25 , 1961, the United States would be glad to consider the need for food “ regard
less of the source” where “ peoples' lives are involved .” We believe that it is
urgent that we act now because peoples' lives are involved . To this end we sub
mit the following :
1. That the United States offer to provide famine relief for the Chinese
people under title II of Public Law 480, which permits grants of food to
friendly people regardless of the friendliness of their Government;
2. That such assistance be made through United Nations channels, perhaps
under the auspices of the Food and Agricultural Organization's current
“ Freedom From Hunger Campaign ” ;
3. That the arrangement with the U.N. provide that the Chinese govern
ment repay the U.N. in money or in kind. The amount so repaid could be
used to meet future food emergencies in other parts of the world.
Rev. Harold Z. Bomberger, pastor, McPherson Church of the Brethren, presi.
dent, Kansas Council of Churches ; Dr. Desmond Bittinger, president, McPherson
College, McPherson , Kans.; C. Verne Cochran, farmer, president, Federal and
Land Bank Association, of Topeka ; Rev. R. Dale Ferris , Kansas State director,
Church World Service, CROP ; Dr. E. G. Froyd , executive secretary Synod of
Kansas, United Presbyterian Church, U.S.A.; Alice Margaret Huggins, China
missionary, author, Topeka , Kans.; Professor Emeritus John Ise, University of
Kansas, Lawrence, Kans. ; The Rev. Robert J. Kelly , S.J. , St. Mary's Seminary,
St. Marys, Kans. ; Rt. Rev. Arnold M. Lewis, bishop, Episcopal Missionary Dis
trict of Western Kansas, Salina, Kans.; Dr. NedBurr McKenny, minister, Cen
tral Congregational Church, Topeka , Kans. ; William C. Menninger, M.D. , the
Menninger Foundation, Topeka, Kans. ; Dr. L. M. Rymph , superintendent, Kansas
Congregational and Christian Conference ; Rabbi Elbert Sapinsley, Temple Beth
Sholem , Topeka, Kans.; Bishop Eugene Slater, Kansas area , the Methodist
Church ; Rev. Harold B. Statler, executive secretary, Kansas Council of Churches,
Topeka, Kans.; Mrs. Ernest Tonsing, past president, Kansas United Church
Women, Topeka, Kans. ; Dr. Ewart Watts, minister, First Methodist Church,
Topeka, Kans.; Rev. Ralph Weber, president, Western District Conference, Gen
eral Conference Mennonite Church, Moundridge, Kans.
Senator Fong. Do you feel there is a majority opinion in the United
States to offer food to thehungry in China?
Mr. SNYDER. This Gallup poll was made 15 months ago and the
figures then were 52 percent in favor, 37 percent opposed, and 11 per
cent with no opinion . There have been a number ofopinion leaders,
farm organizations, religious groups, and some of our leading editorial
writers in our newspapers who favored this point of view in one form
or another .
There are differences in the proposals they would support, but they
haveall indicated interest and support for the general idea of using
U.S. surplus food to feed the hungry in China.
Senator Fong. Now , do you know anything about the sending of
food parcels from Hong Kong to the interior of China ? Do you have
any information on that ?
Mr. SNYDER. I think William Channel can speak to that. All I
could speak to would be that it is impossible for an American citizen
to try to send a food parcel to a person in China through Hong Kong
or nay other way.
Mr. CHANNEL. Practically everyone in Hong Kong seems to have a
relative or several relatives in China to whom they are sending food .
During the month of March, I believe, more than a million of these
packages were sent to China through the mails.
Now, the food that goes through the mail from Hong Kong, cannot
exceed 2 pounds per package.
There arealso certain shops that have set up business in Hong Kong
for direct delivery of commodities to China. Customers at these
80 REFUGEE PROBLEM IN HONG KONG AND MACAO
shops prepay the duty in Hong Kong dollars for any food they send
into China, so that recipients will not have to pay duty.
Because of the cotton shortage, the Chinese receive a ration of 21/22
feet of cotton per year. Thus, many people who send packages to
China use face towels as wrapping material andput the writing on
the outside of that so at the same time they send food, they also send
a little cotton .
Senator Fong. Do you have any information as to whether these
parcels actually get there !
Mr. CHANNEL. I can only say that individuals whom I know in
Hong Kongwho send food say that the food is delivered .
Senator Fong. The same thing is happening in Macao, is it not ?
Mr. CHANNEL . Yes, I think so; although I think the refugees in
Macao are less affluent than those in Hong Kong. There is a greater
shortage of jobs in Macao, so they are probably not able to send as
much food to China as the peopleof Hong Kong.
Senator Fong. I was interested in your desalination plant. Do
you know whether the Hong Kong government is considering such
a plant ?
Mr. CHANNEL. I have not seen anything in the press inHong Kong
for a little over a year.At that time, the matter was discussed, but
it was felt that the cost was prohibitive. Now that Congress has
passed a law allowing the Department of the Interior to help finance
such projects, construction of a desalination plant might very well be
feasible.
The Office of Saline Water in the Departmentof the Interior could
supply you with additional information as to the possibilities here.
Senator Fong. What did you say was the number of gallons used in
Hong Kong per day ?
Mr. CHANNEL. Approximately 40 to 50 million a day.
Senator Fong. Would you propose a plant that would take care of
100 percent of their needs ?
Mr. CHANNEL. Well, by saying 40 to 50 million gallons a day, I
am saying that at this level, they do not have enough water. For
instance, I know the difference, from experience of living in Hong
Kong when there is 8 hours a day of water instead of only 4 hours a
day of water. The difference in livingcomfort is tremendous. So
that is, during the periods that Hong Kong normally provides its
people with 4 hours of water they could have 8 hours of water a day,
this would make a tremendous difference. So that even though con
struction of аa. desalination plant might increase the supply 100 percent
over the present water supply during the short seasons of the year,
it still would only be a supplementary plant.
By theway, on the cost of this thing, the cost of converting water is
quite high in a small million -gallon-a -day plant. It costs something
like $ 1 per 1,000 gallons. But the cost goes down as production goes
up. According to some estimates, the cost of producing 50 million
gallons a day might be out back to42 cents per 1,000 gallons. The
present cost of producing water in Hong Kong is 20 cents per 1,000
gallons, using the reservoir system . So you see ,conversion is stillnot
as economical as the reservoir system presently used in Hong Kong,
but Hong Kong is in exactly the situation where a more expensive
system should be explored because the shortage is so acute and the
needs are so great. Construction of a desalination plant in Hong
REFUGEE PROBLEM IN HONG KONG AND MACAO 81
Kong could provide the world with a valuable laboratory for explor
ing additional techniques for converting sea water to fresh water at
low cost .
Senator Fong. Would you cut the volume down to one-half ? If
you were to cut the volume down to one-half of 50 million gallons,
say to 25 million gallons, would the cost be cut from $40 to $ 20 million ?
Mr. CHANNEL . The cost of installation would be cut, of course , but
the cost of producing water would be higher.
Senator Fong. Mr. Channel, were you in Hong Kong when the
textile agreement was entered into ?
Mr. CHANNEL. Yes.
Senator Fong. Would you tell us something about the reaction ?
Mr. CHANNEL. The reaction was very bitter. Now, I think we need
to consider that some of the bitter reaction that appeared in the papers
was the voice of the big manufacturers. The big manufacturer spoke
of the hardship to refugees, whereas he may have been thinking actu
ally about his own profits. However, the fact does remain that it is
the workingman that suffers and is thrown out of work. I think
Hong Kong has been unrealistic in not diversifying its industry.more
rapidly. The textile industry is comparatively easy to set up and
put into production as compared to some of the heavier industries.
The Hong Kong manufacturers took advantage of this fact because
it provided quick return for their capital . That is why I have sug
gested that we try to give some aid to Hong Kong industrialists, per
haps researchwise, in helping them diversify their industry, so that
they can still employ vast numbers of people but will not become so
much of a threat to our particular markets.
Of course, I understand that the textiles we import are relatively
small as faras ourtotal textile production is concerned.
Senator Fong. The long bell you heard says “ Come and vote," so
I will have to call a recess for about half an hour.
( Recess taken. )
Senator Fong. Mr. Channel, may I ask you one question ?
Mr. CHANNEL. Yes.
Mr. Fong. The American Friends Service Committee, how many
members are there in that committee ?
How big is your membership ?
Mr. CHANNEL. Well, the American Friends Service Committee is
a national Quaker organization formed to operate service programs.
It is aa board of directors and many committees and subcommittees on
refugees, on social and technical assistance, on race relations, and that
sort of thing. The total number of members on these various commit
tees I would not know .
Senator Fong. Thank you.
Mr. Teymuraz K. Bagration.
STATEMENT OF TEYMURAZ K. BAGRATION, EXECUTIVE SECRE
TARY, TOLSTOY FOUNDATION, INC., NEW YORK , N.Y.
Senator Fong. Mr. Bagration is here in place of Alexandra Tolstoy,
president of the Tolstoy Foundation .
Mr. BAGRATION. I am Teymuraz K. Bagration , Executive Secretary
of the Tolstoy Foundation .
82 REFUGEE PROBLEM IN HONG KONG AND MACAO
Before I read my statement, may I say a few words of introduction ?
We share the concern of voluntary agencies of the American people
for the refugees in Hong Kong from China. We are very much im
pressed and happy to see the President's emergency program being
enacted. Weare also very much in favor of Senator Hart's S. 3043,
which will enlarge the quota for Chinese people, because this will be a
certain solution to the problem .
But our special concern is for group which is not included in the
President's emergency program, and our statement is about this group .
During the past decade, several thousands of Russian refugees,many
of whom were born in China, have been escaping to freedom from
Harbin , Shanghai, Tsientsin, and other Chinese cities. They enter
Hong Kong on a transit visa and are helped by voluntary agencies,
mainly by the World Council of Churches - I should add by CARE,
with food packages — to emigrate to other countries — mostly to Latin
America and Australia. At the present moment there are 162 Russian
refugees in Hong Kong.
Unfortunately those who are sent to the countries of South Ameri
ca cannot be always considered as permanently resettled anda great
number of those refugees are now immigrating to the United States
on affidavits provided by their relatives or other organizations.
According to the survey just made by the Director of the Tolstoy
Foundation ,Mrs. Tatiana Schaufuss, inArgentina, Brazil, and Chile,
a great number of those refugees have no permanent work and live
in great poverty and need — especially the old and disabled.
After the Russian revolution of 1918 some 80,000 Russians re *
mained in China ; the White Russian Armies of Admiral Koltchak .
refugees from Siberia, and the families of the personnel of the Rus
sian -Chinese Railway. Only a small part was evacuated in the early
fifties by the InternationalRefugee Organization to the Philippines ,
the Tolstoy Foundation took part in their resettlement- others were
forced to return to Soviet Russia. For those who remained in China,
life became unbearable.
At the present moment 6,000 to 8,000 Russian refugees still remain in
China. These people have been suffering for many years under the
yoke of communism , with the only hope to escape and start living
like human beings in a free country. Among those Russians is a group
of religious farmers, of the old Orthodox faith — the so-called old
Believers — residing in Singkiang and Manchuria.
In 1940 those in Singkiang were organized in army groups of the
Nationalist Chinese military units which fought in 1946–48 against
the Red Chinese and the Soviet Army. Out of a group of 200 men ,
that's from Singkiang, only 22 escaped through the Gobi Desert, the
Himalayas, and the snowy mountains of Tibet - finally reached Cal
cutta in 1952 — from where they emigrated with the help of the Tol
stoy Foundation and are now happily resettled in Haverstraw near
the Tolstoy Foundation Farm in Rockland County, N.Y.
Another group of Old Believers, assisted by the World Council
of Churches,immigrated through Hong Kong to the Parana Prov
ince of Brazil, where some of them are not happy, and to our knowl
edge there is still a large number of them in China.
The Russian refugees in China have behind them many years of
physical and moral suffering. It was not easy for the Russians,, many
REFUGEE PROBLEM IN HONG KONG AND MACAO 83
of whom fought against Communists and who opposed communism ,
to follow the orders for registration with the Soviet Government rep
resentatives in China so as to be able to have some kind of identifica
tion card enabling them to receive employment and food -ration cards
and not face starvation .
Chinese refugees and refugees from China of European origin
born in Russia or China, have been a problem since the end of World
War II. The American Government has shown its .concern and
given support to the refugees, with funds for transportation and
maintenance through the Intergovernmental Committee for Euro
pean Migration , the United Nations High Commissioner for Re
fugees, the U.S. escapee program and the Far East refugee program .
The President's emergency program to bring several thousand Chin
ese refugees to this country, under the parolee provision of the law,
is a great contribution to therefugee problem and has raised the
sympathy and admiration of all those who work inthe refugee field.
The Tolstoy Foundation sincerely hopes that the European refugees
from China, manyof whom were born in that country, will also bene
fit from the President's emergency program , and that those people
who live under constant threat of deportation, who from month to
month survive on scanty ration cards, whose security is in danger
would also be worthy of consideration and would be given a chance
to start a new life in this country.
The Tolstoy Foundation stands ready to help those refugees.
Mr. Chairman, may I add tothis that the quota under the present
law for Europeans born in China is 105. The preference, the four
preferences are open , but we are concerned about thoserefugees who
are still in China and who are not eligible for any preference quota.
I call them refugees although they are still in China, because they
are refugees from the Russian revolution. They received asylum
in China. They went through the tribulations and all the hardships
of the Chinese people being together withthe Chineseunder the Japa
nese occupation, under the Soviet occupation of Manchuria until 1946 ,
and laterunder the Communist regime.
We feel that no distinction should be made between Chinese na
tional refugees and the Russian refugees in China. They are under
the same difficulties and the same dangers. If there is a possibility
to bring some of them to this country, especially those whocannot go
to Latin America for one reason or another, it would be a great im
provement and a great boost to the morale of the Russians in China .
Senator Fong. You are speaking primarily of the 200 Russian refu
gees in Hong Kong ; is that it ?
Mr. BAGRATION . No, sir, Mr. Chairman . There are 162 in Hong
Kong now. There are usually not over 300, because the crown col
onyaccepts refugees only in transit. They must show evidence of a
final destination , which at the present time is usually South America
or Australia. I am speaking of several thousand refugees who are
still in China. It is a very difficult thing to give a correct figure now .
It varies from the source . Some people say there are 10,000 people ;
others say there are6,000.
I just spoke with Mr. Brown today, who mentioned the figure of
6,000 people in China and 2,000 who are not registered, which makes
about 8,000 altogether.
84 REFUGEE PROBLEM IN HONG KONG AND MACAO
Senator Fong. Do you know whether they could get out of Com
munist China ?
Mr. BAGRATION. If they are able to secure an entry visa to some
country, which they are not always able to do, sometimes, because
they are afraid to approach or deal with foreign agencies, or foreign
consulates. The next question is if they are able to raise enough ran
som money for exit purposes. They have to sell property if they still
have it and usually they come out without a penny and on the border,
they are stripped from their clothes and sometimes they appear in
1
their underwear.
It is very difficult to say how the Chinese authorities operate when
they change their minds. Sometimes they let some 300 people at once,
sometimes nobody.
The most difficult question here is that the exit permit, which is
usually bought for a special price, because the Russians have to pay
a certain " donation," in quotes, to the Society of Soviet Citizens, also
to pay to Chinese authorities some " donation ” for specific plans of
the government. Then they wait only 1 year. The difficulty comes
when they are not able to leave the country, China, within 1 year,
they lose their permit and have to start all over again .
Senator FONG. Any questions, Mr. Johnson ?
Mr. JOHNSON. No.
Mr. DE HAAN . Mr. Chairman, I have a couple of questions. Mr.
Bagration, would you say the United Nations High Commissioner for?
Refugees has underestimated the number of Russians still in China
I believe he gives a figure of some 3,800 .
Mr. BAGRATION. Most official figures are in the report of the Special
Subcommittee of the House presented by Congressman Walter.
There is a figure here of, as of June 30, 1961. They give a figure of
16,459 White Russians that have been resettled from HongKong,
They mention that it is estimated that 7,104 White Russians are still
in China, of which 4,708 are visa holders and 2,461 are non visa holders,
Now, recently, Ilia Tolstoy, vice president of the Tolstoy Founda
tion was in Hong Kong. He gave three different figures, emanating
from three different sources, varying from 1,000 to 8,000.
So nobody knows how many there are .
There was a letter received 3 months ago from Archbishop Sava,
the Orthodox archbishop of Australia, who mentions a group of
White Russians, he mentions 1,000 families with many children. This
is only partof the group.
Mr. DE HAAN. I was not quoting figures from the report of Con
gressman Walter's House committee, but from the report of the High
Commissioner to the meeting of his executive committee last month
afar more recent report. Do you believe the program of the U.N.
High Commissioner can be closed out in 1963, as is planned at the
present time ?
Mr. BAGRATION. I doubt it very much, because the High Commis
sioner program is to give protection and assistance for those who
come out. It would not include those who are still in China, of course.
The program would still be continued , because they will be coming
all the time.
REFUGEE PROBLEM IN HONG KONG AND MACAO 85
Mr. DE HAAN. As I understand it, the High Commissioner has
indicated all the Russians, including those not currently possessing
exit permits, will have left the mainland, and will have been re
settled by the end of 1963.
Mr. BAGRATION. That was the program in 1959.
Mr. DE HAAN. I am referring here, to the report of the High Com
missioner, which I mentioned a moment ago. The facts would indi
cate steady progress is being made in the High Commissioner's pro
gram .
Mr. BAGRATION. I am not aware of that, but there was a program
proposed by the Intergovernmental Committee for European Migra
tion and by the High Commissioner . It depends on the money
available.
Senator Fong. I have a statement here from Paul Empie, executive
director of the National Lutheran Council . He is unable to be here.
His statement will be incorporated in the record .
( The statement referred to is as follows :)
STATEMENT OF DR. PAUL C. EMPIE
NATIONAL LUTHERAN COUNCIL,
New York , N.Y. , June 5 , 1962.
Senator PHILIP A. HART,
Chairman , Subcommittee on Refugees and Escapees of the Senate Judiciary
Committee, U.S. Senate, Washington , D.C.
DEAR MR. CHAIRMAN : I regret that prior obligations make it impossible for
me to appear in person before your subcommittee which is presently conducting
hearings on the adequacy of present relief programs for Chinese refugees, and
which is gathering information on the possibility of the resettlement of some
of these refugees in various parts of the world, including the United States.
Permit me to state that I am the executive director of the National Lutheran
Council ; the Chairinan of the Commission on World Service of the Lutheran
World Federation ; an officer of Lutheran World Relief ; and have acted as an
adviser to Lutheran Refugee Service, now known as Lutheran Immigration
Service. Represented in one or more of these agencies are seven Lutheran
Churches in America, with a combined membership of about 8 million souls, and
61 Lutheran Churches in 32 countries around the world. These churches have
long expressed a deep concern for Chinese refugees and have supported relief
programs for them in Hong Kong for a number of years.
In view of the close relationship I have had with the refugee problems in
Hong Kong, I would have welcomed an opportunity to discuss various aspects
of the present Chinese refugee program . Inasmuch as this is not appropriate
at these present hearings, I shall merely submit for your records a statement
released by Lutheran Immigration Service, an agency of the National Lutheran
Council and the Lutheran Church, Missouri Synod, which indicates our response
to the announcement of the President that the United States will admit several
thousand Chinese refugees.
Needless to say , we welcomed the forthright constructive action taken by the
President of the United States and trust that it signifies a continuing sense of re
sponsibility to help in this situation as the resources of our Nation permit.
The statement mentioned above reads as follows :
"The Lutheran churches have long exhibited a deep concern for Chinese
refugees and have maintained a broad and intensive relief program for these
refugees in Hong Kong. Since the beginning of this program in 1954, they have
been disturbed about the limitations within the Colony to reestablish these refu
gees as self -supporting individuals and family units. They have long recog
nized that resettlement outside of the Colony is a primary and urgent need . Thus,
in view of the reluctance of other nations to accept these refugees for resettle
ment within their borders, they have been sympathetic to the problems faced by
the Hong Kong Government in admitting new refugees. Lutheran Immigra
tion Service, therefore, was deeply gratified by the announcenient of the Presi
dent to admit several thousand Chinese refugees into the United States. This
86 REFUGEE PROBLEM IN HONG KONG AND MACAO
was a significant decision and it is hoped that other nations will follow this
lead taken by the United States, and also agree to accept Chinese refugees for
resettlement within their borders.
" As a result of the President's announcement, and in view of the heavy com
mitments of the Lutheran churches in relief programs within the Colony, LIS is
planning to cooperate in assisting with the resettlement of these refugees in the
United States. The extent of LIS participation will be determined after there
has been further consultation with the government, the LWF offices in Hong
Kong and Geneva, and the Lutheran church bodies in the United States.
“The Lutheran churches are presently maintaining a large-scale relief program
in Hong Kong for Chinese refugees which includes the distribution of food and
clothing, the maintenance of medical and dental facilities, a vocational training
program , and a program for the rehabilitation of handicapped and tubercular
cases . They also maintain a program of self -help which has made possible the
development of small handicraft industries, and a student-aid program , in ad
dition to other projects which are designed to assist the refugee become self
supporting .”
Sincerely yours,
PAUL C. EMPIE, Executive Director.
Senator FONG. We have concluded with our witness list. The sub M
committee stands recessed until tomorrow at 11.
Thereupon, at 4 p.m., the subcommittee recessed to resume Fri
day , June 8 , 1962,at 11 a.m. )
REFUGEE PROBLEM IN HONG KONG AND MACAO
FRIDAY, JUNE 8, 1962
U.S. SENATE,
SUBCOMMITTEE ON REFUGEES AND ESCAPEES,
COMMITTEE ON TWashington, D.C.
The subcommittee met , pursuant to recess, at 11 a.m., in room 318,
Old Senate Office Building, Senator Philip A. Hart ( chairman of
the subcommittee ) presiding.
Present: Senators Hart ( chairman of the subcommittee ), Wiley,
and Dirksen .
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 be in order.
This continues the taking of testimony on the problem of the Chi
nese refugee in Hong Kong.
Of all the refugee problems across the world to which this sub
committee has given some study, the problem in Hong Kong seems to
be the most difficult.
The enormity of its present proportion, and its potential for even
greater dimensions, tends to create an attitude of hopelessness, and
even despair, among many of those who have sought a solution . Then
the recent massive flight of Chinese into Hong Kong, and their invol
untary enforced return to Red China, shocked the free world . In
cluded in the stock was the realization that this was a problem in
which all of us have a share, including those millions here who never
anticipate the day that they shall ever see Hong Kong.
The responsibility to assist in relief and rehabilitation, and to
kindle the spark of hope again in the hearts of those people who fled
from China, lies with all of us in this world we like to call the free
half.
Today we have with us a native Chinese and a distinguished Ameri
can who can speak knowingly of the great tragedy of Chinese refu
gees. She does it in her capacity as the president of Chinese Refugee
Relief, an organization which I think has effectively as any drama
tized and brought to the concern and conscience of America this refu
gee problem .
It is my understanding that she will be presented to the committee
by Senator Miller -- and Senator Tower also.
I see Mrs. Chennault is accompanied by two distinguished Mem
bers of the Senate. Senator Dirksen is an old hand at making difficult
decisions seem easy. Senator, do you want to suggest that they join
us here, or that they decide between themselves who shall have the
great pleasure of presenting Mrs. Chennault ?
87
88 REFUGEE PROBLEM IN HONG KONG AND MACAO
Senator DIRKSEN. I have one of these decision meters. You flip it,
and that makes the decision .
But senioritywise, II suppose Senator Miller would have first call to
present Mrs. Chennault, if he so desires, and Senator Tower can make
a presentation at the sametime.
Mr. Chairman , I might say, of course, that Mr. Miller served with 8
the Flying Tigers, the 14th Air Force, under Lieutenant General
Chennault, and that is a high distinction indeed. So I am glad to see
him , as a great Senator and as a great warrior for his country .
Senator HART. I have a strongimpression that, notwithstanding his 1
war record, it wouldn't cut any bait if the seniority were not there.
STATEMENT OF HON. JACK MILLER, A U.S. SENATOR FROM THE
STATE OF IOWA
Senator MILLER . Mr. Chairman , members of the committee, I divine
that the members of the committee already know about the splendid
background and knowledge of this truly great lady. As the dis 4
A
tinguished Senator from Illinois pointed out, it wasmy privilege to
serve with General Chennault during World War II in China. I
know that General Chennault knew the dangers and the potential of 4
communism. As a matter of fact , one of the most memorable events
of my life was the day I stood in the compound in Chungking and
heard General Chennault give his farewell address to the Chinese
people before returning to the United States, during which address he
warned of the dangers of communism .
This great lady, the widow of the late distinguished General Chen 4
nault, will speak to this committee this morning with knowledge,
because she has lived with the Chinese people, she is of the Chinese
people, she has traveled extensively throughout China, and moreover ,
she has a deep and abiding intimate interest in the future of the
Chinese people.
It is with the greatest of pleasure that I present Mrs. Anna Chen
nault to the committee.
Senator Hart. The committee is delighted to have you. 1
1
STATEMENT OF MRS. CLAIRE L. CHENNAULT
Mrs. CHENNAULT. Mr. Chairman and members of the committee,
I am Anna Chennault. I am an author. I am also a newspaper
woman ; I worked as a war correspondent in the Second World War.
I am the widow of Lt. Gen. Claire Lee Chennault who led the Flying
Tigers and the 14th Air Force in China. Today I speak as a citizen
of the United States.
My grandmother was born an American in Washington, D.C. My
mother and sister were born in America. Although I was born in
Peiping, I became an American when I married General Chennault.
It is therefore as one with close ties to both the United States and
China that I come heretoday to ask your consideration of the plight
of the refugees from Communist China in Hong Kong. I worked
closely with my husband when he was the symbol of deliverance to the
Chinese people from the cruelty of the Japanese. In a personal way,
I feel that I am now engaged in his unfinished business of delivering
the Chinese people from the cruelty of the Communists.
REFUGEE PROBLEM IN HONG KONG AND MACAO 89
I can tell you about the heart and mind of the refugee, for I
myself and my four sisters were refugees from the Japanese terror
in China during World War II. We were in Hong Kong when Pearl
Harbor was bombed .
I know the misery of physical privation of the homeless and the
emotionalprivationof the forgotten . When I think of the refugee
in Hong Kong, I can only pray “ There but for the grace of God
go I.”
I appear today as president of Chinese Refugee Relief. This is
a private committee formed with the approval of President Kennedy
to implement the sympathy of the American people for these refugees,
Associated with me in this committee, which was organized to seek
private funds for refugee relief, are Mr. David Lee, a prominent
Chinese -American businessman of Washington , D.C., and Mr. Jack
Anderson, awell-known Washington correspondent who , during
World War II, spent many months traveling in China with National
ist guerrillas.
I am proud to report to this committee that the honorary cochair
men of Chinese Refugee Relief are former President Harry Truman
and former President Herbert Hoover. I have talked to President
Hoover many, many times and I have seen him in New York very
recently and talked to him on this problem of Chinese Refugee Relief.
He showed great interest and has given me his advice.
President Hoover, who has had years of experience in China and
who was administrator of World War I relief in Belgium and Poland ;
the Speaker of the House of Representatives, Mr. John McCormack
of Massachusetts, has consented to serve on our advisory committee.
Two days ago I also had the honor of talking to the Speaker of the
House, Mr. McCormack .
Our organization does not appear before the Congress to give advice
to Government. It would be presumptuous on our part to advocate
any specific policy in viewof the global implications the Hong Kong
refugee problem evokes. We completely understand that many im
portant decisions of Government policy must be made, based onspecial
sources of information not necessarily within our knowledge . We are
therefore not here to urge action by Government or to prejudice your
considerations. We know that there are limitations to what the
United States or any other government can do, that it is folly to over
crowd the lifeboats.
Our organization does feel, however, that it can appropriately offer
all assistance within its means in a number of areas after policies are
determined . The refugee problem in Hong Kong is not a pretty
one, despite the heroic effort of the colony to deal with the problem .
other witnesses have told you of their physical misery. But for me,,
who has been a refugee, their most terrible misery is in the heart, for
the most vital need of men is hope, and the refugee goes to sleep fear
ing that the world has no room for him and that his future holds no
hope. But more than food, more than shelter, these good people need
hope, the hope of tomorrow .
And I am afraid they are going to need more and more hope. Mr.
Lee, who is here with me today , has just returned from a personal
inspection of conditions in Hong Kong. He has returned with the
alarming information that many of the refugees who flooded into
90 REFUGEE PROBLEM IN HONG KONG AND MACAO
Hong Kong in the past few weeks, many of whom were turned back
to mainland China, are primarily farmers fleeing what they sense
is the prospect of another crop failure in Red China this year. His
talks with authorities and refugees in Hong Kong have convinced him
that these people were attempting to escape a worsening famine on
the mainland, and that with the crop failure they expect this year
could come another later mass effort to flee Red China.
It is against this background that Chinese Refugee Relief was
formed with the encouragement of President Kennedy, with whom I
met on June 2. Our purpose is to raise private funds by public
solicitation to help implement the ultimate decisions of the United
States and the many other governments which are or will be con
cerned. We want to add " people to people " to " government to gov
ernment."
We can foresee many important tasks to be done by private organ
izations such as ours in helping to implement the policies of the west
toward the Hong Kong refugee problem . These would include :
Giving directassistance to refugees from Hong Kong — and perhaps
from Macao - once they are in the United States under procedures
established by law and public policies formulated by you after weigh
ing all of the factors involved .
In cooperation with existing international refugee organizations,
church and social welfare organizations aiding in the handling of
Chinese orphan children to be brought here for adoption in accord
ance with the plan announced by Attorney General Robert Kennedy
this week .
If possible, playing a direct role in the feeding and medical care
of refugees while they are in Hong Kong in accordance with the
policies ofthe governments concerned .
Assisting in the resettlement of refugees in other countries which
may express a willingness to take them in .
I must emphasize that Chinese Refugee Relief does not see this
problem as one which can be successfully handled by any one organi
zation . There are many roles to be played together in this effort.
Therefore, Chinese Refugee Relief stands ready and willing, for the
common good, to cooperate fully with all recognized refugee agencies ;
the many experienced church organizations; and the social welfare
agencies, allof whom play primary parts in this program . But
Chinese Refugee Relief is, we believe,well qualified by its composition
to play an effective, realistic role as a private agency gearedto help
implement decisions you will make.
In your consideration I hope you will share our feelings on several
points webelieve are essential to public understanding of this problem .
1. The problem did not end when the Red Chinese again sealed the
border to the stream of refugees who saw in Hong Kong a new chance
for freedom and a better life. Almost all of the present refugees in
Hong Kong entered the crown colony during the past 10 years in little
noticed but, nevertheless, highly dramatic and dangerous flights to
freedom .
2. These refugees, desperate as their need for food and the common
necessities of life is, want more than anything two things— freedom
and hope. If the events of the past few weeks have done anything,
they have served to rip aside the bamboo curtain, letting the world
REFUGEE PROBLEM IN HONG KONG AND MACAO 91
see for the first time the desperate faces of men , women , and children
who have lived under Communist rule .
Believing in America as they did during World War II, when there
was nothing else to believe in, and only the Flying Tigers from far
off America somehow brought deliverance from the bombs of the
Japanese, the refugees now in Hong Kong still look to America with
the same belief and trust . And we of our organization believe that
in its own interest, the United States, within the limitations you ap
preciate of what it safely can do,must keep alive that hope and belief
in the good will and power of the United States.
3. The American public should be fully informed of the status of
refugees who are now being admitted under the stepped -up program
of immigration recently announced by President Kennedy. The
refugees now beginning to enter the United States are those who have
been in Hong Kong for as long as 10 years. They are not those who
have just come over the border. Those who are now coming to the
United States have been fully cleared as to security by agencies of
the U.S. Government.
They represent the top level refugee group - businessmen, techni
cians, engineers, and others possessing specific skills. None of these
refugees are coming here to be a burden on our reliefagencies or to take
jobs from American workers. They have guarantees of employment
and livelihood provided to them by their Chinese - American relatives in
this country who have long helped to support them in Hong Kong.
Nor will the children of refugees represent a problem to their com
munities. We Chinese-Americans can point with pride to the fact
that because of the strong family bonds that characterize the Chinese
people, juvenile delinquency is almost unknown in Chinese-American
communities, and that Chinese-American citizens are not found on
American relief rolls.
Once this is understood, we believe that the American public will
recognize that these people will make a. lasting, worthwhile contribu
tion to their communities and the Nation.
4. Above all, and most important, II hope that whatever aid this
Government and the American people feel they can give will be given
to the refugees and not to the Communist masters of Red China. I
know there are some well-meaning individuals who believe that we
can best help the hungry people by putting grain into the hands of
the Red Chinese Communist Government. They do not realize that
this will consolidate the power of Red China in denying freedom to
its people. As one who has lived in the shadow of Chinese communism ,
this I beg you, under no circumstances to do such a thing. The
Chinese people have endured much more than starvation in the many
years that the madmen of Chinese communism have used them as the
pawns of power. Indeed, they have always been subjected to starva
tion by their Communist overlords - calculated, systematic starvation
so that their Communist masters could export food to Cuba, and wage
hot and cold war on the sons of the free world in Vietnam and Laos.
I know how many pressures there are on the U.S. Government to
solve the problem of sending food to help the hungry people in China .
It is the hardest task of statesmen to find answers to the complicated
problems of refugees looking for hope. But as Americans surely we
canask that, if we are embarrassed by our wealth, we can find ways to
92 REFUGEE PROBLEM IN HONG KONG AND MACAO
give it away to friends rather than giving it to our enemies, and we
certainly want to help the hungry people in the free world , but cer
tainly not helping Red China, our enemy:
Ali it would do is to renew and reinforce the inhuman yoke of
communism over the helpless Chinese people.
And it would be madness from our American point of view. We
would be making the same mistake we made when, under the pressure
of scrap dealers, we shipped scrap iron to Japan before Pearl Harbor.
Such impossible appeasement would be shot back in our faces in
southeast Asia as it was shot back at Pearl Harbor and Korea. If I
speak out, it is because I have been a war correspondent during the
Second World War , and I was the wife of a serviceman . I lived
through war, and I lived through the killing of American boys by
the Chinese Communists. And please remember, we still have Åmer
icans as prisoners in Communist China.
I tell you that the people of China today, miserable as they are,
would rather face more starvation than to have America , in a mis
taken humanitarianism , add to the strength of their Communist
masters who hold them in a slavery from which they try to flee. I
note with bitterness that reports describing the situation at the Hong
Kong border inform us that Communist army guards are well fed ,
wellclothed, and well armed while they turn on and off like a faucet
the flow of refugees to serve the propaganda needs of the Communist
government in Peiping. Obviously, the Red Chinese Government
does not lack food for its own jailers .
What I am pleading for today is that my American people be real
istic in whom they help, that they concentrate their thoughts on
helping the refugees, not the Government of Red China ; that they
try to help human brothers who want to be free, not perpetuate their
slavery.
If I thought that we were only stirring the sympathies and the
warm heartsof the American people to take part in any program for
the Chinese people which would seduce this Nation into supporting
themastersof Chinese slavery, I would resign from any effort to help
in this problem .
I am sure President Hoover, with whom I have talked many times,
will agree with me.
5. Whatever is done to bring help from America to those without
hope should be accomplished as quickly and graciously as possible.
In thesimplest manner and with dignity show the sympathy and
understanding of the American people to fellow human beings in
distress who believe in you.
We have a saying in China that“ one picture is worth a thousand
>
words.” In place of words, I introduce to you the first refugee family
to come to the United States under the emergency program . They
are Mr. Eng Se-Suey, his wife,his two daughters Mee-Har, 15, and
Me-Wan , 13, and a son, Leung-Hing, 10. I will be glad to serve as
their interpreter as they tell you what it means to be a refugee. And
you can hear from their own lips what they think about supplying
food to Red China.
I would like also to point out that, serving as interpreter, I speak
five dialects of the Chinese language. Mr. Eng is from Taishan.
Actually his name could be spelled four or five ways. In Taishan
REFUGEE PROBLEM IN HONG KONG AND MACAO 93
dialect it is E-n-g. In Cantonese it is E-n. And in Mandarin, it is
Wooit could be spelled W-u, or W-0-0.
So there are many ways to pronounce his name. But I just want
to qualify myself as interpreter.
Senator HART. Mrs. Chennault, before we hear this family whose
presence in this country all of us welcome, I know the committee
would have me thank you for a forthright and helpful statement.
Your willingness and that of Mr. Lee, whom I understand you to
say is present here today, and Mr. Anderson - if either of them care
to come up and make any additional comment, we would be glad to
have them .
But for your willingness to organize and assist in this effort, we
want to thank you.
There were many points you made in this statement concerning
which , I am sure, members of the committee and other Members of
the Senate who are here today might want to pursue by way of
questioning
I wouldhope that followingthe opportunity to visit, through you ,
with the Eng family, you would remain, in order that any of uswho
desire may have the opportunity to ask questions.
May I suggest to the Eng family that America is better for their
adding to our cultural bloodstream . And I hope you will assure the
family that all of us feel that way about them.
Would you inquire of them how long they have been in Hong
Kong waiting to come to the United States?
Mrs. CHENNAULT. May I ask Mr. Eng to sit beside me ?
Senator Hart. Yes, please.
STATEMENT OF ENG SE -SUEY, INTERPRETED BY MRS. CLAIRE L.
CHENNAULT
Mrs. CHENNAULT. Mr. Eng wants to express his appreciation for
all the assistance this country hasgiven him , and these other organiza
tions who help him to come into America . He is very happy and
very grateful that he comes to America, a free country , and he feels
like a different person . It was wonderful to leave the misery as a
refugee and comeinto this country as a free citizen.
Senator Hart. I hope you will give him the assurance that I indi
cated earlier, that he and his family are most certainly welcome.
Senator DIRKSEN. Mrs. Chennault, his father lives in Park Ridge,
Ill., as I understand.
Mrs. CHENNAULT. Yes.
Senator DIRKSEN . We sought to be helpful in this matter, when
some difficulties were encountered, in cabling and doing all the neces
sary things to expedite the Eng 'case. As I understand, his father
had been a businessman in Park Ridge for nearly 35 years and is
presently the victim of cancer, and may not live very long.
We are grateful, indeed , that we could be of some service in bring
ing them over. And I think I should make some statement regard
ing an attorney in Chicago named Lowell Jacobson , who lives in
Park Ridge, who knows the father, Frank Eng, very well, and who
made some real effort in order to expedite action. I think he ought
87544-6247
94 REFUGEE PROBLEM IN HONG KONG AND MACAO
to be congratulated on his efforts and on his compassion and interest
in the matter.
Mrs. CHENNAULT. Mr. Eng wants to express that today he is in this
country, and still has the opportunity to see his ailing father with
cancer. It is all the good deed of this country, and all the great
friends, and of course Senator Dirksen, from Illinois, giving him all
the assistance, to enable him to come to this country and realize his
dream . And he will never forget. And he also wants to express that
his family and his children are growing up as Americans, and be good
citizens to this country .
Senator Hart. Now, Mrs. Chennault, would you inquire when he
first sought to come to this country ?
Mrs. CHENNAULT. He left Communist China in 1953.
Senator HART. And went to Hong Kong, I takeit.
Mrs. CHENNAULT. He left Canton, and went to Hong Kong.
Senator Hart. Now, when , after he got to Hong Kong, did he first
ask to come to the United States ?
Mrs. CHENNAULT. He started requesting to come into this country,
starting the procedure in 1955.
Senator Hart. In 1955 you made application .
Mrs. CHENNAULT. That is correct.
Senator Hart. It is now 1962.
Mrs. CHENNAULT. Yes, 7 years .
Senator Hart. And it is correct, is it not, the reason he was able to
come in now is because of the dramatic influx from Red China to
Hong Kong in May of this year ? It was because of this that the parole
method was developed, or applied, I should say, by the President.
Isn't it true that because of the dramatic flow of refugees into
Hong Kong last month, Mr. Eng now has been permitted to come here ?
Mrs. CHENNAULT. You are correct. He said if not because of the
emergency law , he still wouldn't be here today. And because of the
small quotas of allowing Chinese into this country, many, many
Chinese refugees are still waiting, and there is a long, long list of Chi
nese waitingto come into this country . I think he mentioned 100
being allowed to come into this country every year.
Senator HART. To be exact, for therecord, this country, under its
basic immigration laws, has concluded it has room on a regular basis
for only 105 Chinese a year.
Now,I think that the more people in this country see the Engs and
families like them , the greater the opportunity will develop for under
standing and appreciating the need to improve the immigration atti
tude inthis country.
A couple of weeks ago the President of the United States and
Mrs. Kennedy had as dinner guests at the White House the American
winners of the Nobel Prizes. I know Mrs. Chennault knows the event
to be a very dramatic incident. It just happens that 15 of the Presi
dent's guests were not born in America. But we need these people.
We are the better because they are here. I agree with your statement
that we cannot overcrowd the lifeboat. But we had better make sure
that our response to the hopes and the aspirations of the rest of the
world is consistent with what we preach and for what we stand.
I am sure your presence here serves to remind the conscience of
America about this point, and we are the richer for having you.
REFUGEE PROBLEM IN HONG KONG AND MACAO 95
Senator Wiley has joined us, and it is possible that Senator Wiley
would have a comment.
Senator WILEY. Thank you, Mr. Chairman. I have one or two
questions, that don't relate themselves so much to the matter of what
we are discussing here. But in view of the fact that the witness
escaped from Red China into Hong Kong in 1953, I presume that he
alsovisited back and forth into Red China, made contact with people
who kept coming into Hong Kong. So my question is what percentage
of the Chinese people are Communist ?
Mrs. CHENNAULT. The percentage of Communists is very , very
small. In fact he said most of the Chinese people, the simple Chinese
people, they only want to have enough food, enough clothes for the
family. But under the Communist control, they haveno choice but
do whatever the Communist regime wants them to do. But those who
have escaped , actually, they are all against the Communists, and those
many who remain in China that could not escape, they actually have
no free choice, but to life under communism .
Senator WILEY. How does Mao Tse -tung maintain the control that
he has over 500 million Chinese ?
Mrs. CHENNAULT. Mao Tse -tung controls the country with secret
police — by fear and suspicion. And each little village had a Com
munist worker to organize the people, and make them suspicious of
each other, and they all live in fear,and no one dared to say anything
because you might get killed.
Senator WILEY. Could you tell me how close Mao Tse-tung and
Khrushchev operate !
Mrs. CHENNAULT. The Chinese Communists actually need the sup
port and help from Khrushchev, from Russia. And they have to
cooperate and work together. He also mentioned that there wouldn't
be any way to dividethese two forces. They sort of lean on each
other, and they will always work together.
Senator WILEY. Are the Chinese under Mao Tse -tung investigating
the creation of modern weapons, such as bombs and the interconti
nental ballistic missiles ? Have they got scientists engaged in that ?
Mrs. CHENNAULT. The Russians help the Chinese Communists only
to a limitation . They don't give them too much, because they also are
suspicious of the Chinese, and they are afraid they will get too
powerful and too strong. So they help them in light industry and
machines and so on. But as faras atomic bombs and other things
like that, the Russians have not given the Chinese too much help, be
cause they are always sort of careful not to give them too much , so
they would turn against the Russians.
Senator Wiley. In other words, what the witness means, as I get it,
is that Russia has not been willing to give Mao Tse -tung the know
how, or give to Mao Tse -tung the weapons, is that right ?
Mrs. CHENNAULT . That is correct.
Senator WILEY. Is this immigration of Chinese confined to Hong
Kong, or is it pushing out in other directions, toward India, and
maybe into Siberia ?
Mrs. CHENNAULT. Most of—actually 100 percent of the refugees
are going to Hong Kong.
Senator WILEY. Would you repeat that !
96 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mrs. CHENNAULT. Most of the refugees, he said, almost 100 percent,
go to Hong Kong. He hasn't heardof any refugees going to India
or Siberia .
Senator WILEY. What about Chiang Kai-shek's offer to take some
into Formosa ?
Mrs. CHENNAULT. The Chinese Nationalist Government have been
very helpful to try to help some ofthe refugees togo toTaiwan. But
he feels that Taiwan is also a small area that will not be able to take
care of as many refugees as they want to do. And so he feels that
even the Taiwan Government will need help to solve the refugee
problem .
Senator WILEY. One concluding question.
What is the judgment of the witness as to how the Chinese feels
toward Chiang Kai-shek — that is, how the Chinese in China feel
toward Chiang Kai-shek.
Mrs. CHENNAULT. He said all the Chinese are for President Chiang,
especially, he said, in Hong Kong. The first of the yearthey celebrate
October 1, which is the national day for Communist China , and Octo
ber 10 is the celebration of the national day for Nationalist China.
And most of the Chinese in Hong Kong now, they always celebrate
October 10 ; in other words, to show theirsupport of Nationalist China.
Senator WILEY. I am sure, but I have another question which you
provoked by that answer.
Is it your judgment — and I might ask you , madam — is his judg
ment that if there should be an invasion of China, that the Chinese
would respond to the appeal of Chiang and fight on his side ?
Mrs. CHENNAULT ( speaking on her own behalf). I do think so. I
have been making trips back to the Far East every year, and my
husband started an airline in the Far East, and it is still operating:
I have talked to people of all classes. And the feeling is now for
the Nationalist Government to go back to mainland China.
Senator Wiley. Well, is it your judgment that this pushout, then,
is due to the lack of proper nourishment or food, that people want to
leave ?
Mrs. CHENNAULT. As I point out in my statement, I thinkpeople
not only want food, but freedom . In the earlyyears,many Chinese,
when the Communists first came in, they thought, well, they are just
Chinese — and I also point out most of the Chinese arefarmers, they
have no political ideas, as long as they are being left alone, have the
land to farm—if they are happy, theycan feed their family, they will
be all right.
But even to this basic thing, they do not get from communism .
And I think this is the reason that many Chinese refugees leave China.
The famine in China, of course, in a way is manmade. Most of the
farmers have the feeling, “ why shouldwe work so hard, when we don't
>
get anything in return ?” The food they produce will be used to buy
arms— and they do not have enough food to eat, and they are not able
to take care of their family. And most of all, they have no freedom .
And that is why I think many refugees risk their life to escape to Hong
Kong, even they know there will be no place for them, there will be no
food, no jobs, and no security, and no hope. And yet they try to
escape from communism , hoping they will be free and there will be
some hope for them to look for a brighter tomorrow .
REFUGEE PROBLEM IN HONG KONG AND MACAO 97
Senator WILEY. Is there any way to get that food to the people
withoutletting Mao Tse-tung handleit ?
Mrs. CHENNAULT. This isa question I think is really calling for
much serious study. I don't see how we could send food toRed
China, and yet not to let the food fall into the hands of the Communist
government. We are interested in helping the hungry people. But
we certainly do not want to help our enemy.
SenatorWILEY. Mr. Chairman, I wantto say that it has been a high
privilege for me to sit here this morning and see this fine American
citizen , Mrs. Chennault. We know what contribution she has made,
what contribution her husband has made. I will agree with your
sentiment that we are practically all of us sons of foreigners. And we
can use
th
more of this quality stuff in America.
I ank you .
Senator DIRKSEN. Well, Mrs. Chennault, I just want to say that
was an impressivestatement you made to the committee this morning,
and I am delighted to see you here.
Senator HART. Before we leave, Mrs. Chennault - I leafed through
your statement and got the impression you were cautioning us, that
although a bamboo curtain is up in Asia, and Hong Kong has closed
the door, so to speak, that nonetheless, we should anticipate new in
fluxes of people at anytime. Is thatcorrect ?
Mrs. CHENNAULT. I do think so . So this is not a problem just for
today. This is aa problem for many tomorrows to come. And this is a
job that no one agency can do alone. And I think it calls for lots of
help and study on this problem , and to help these people who escape
from Communist China .
Senator HART. Well, in view of the fact that this flood of refugees
may descend upon Hong Kong again at any moment, do you have any
suggestions as to what the government of the crown colony should be
doing, and what we should be doing to help them ?
Mrs. CHENNAULT. In my statements, of course, I have pointed out
that now that thereare over 11/2 million refugees in Hong Kong,
they need food, shelter, and clothes. When wintertime comes they
will need clothes. And also of course Mr. Eng was just telling me
there is a water shortage in Hong Kong, which I think many other
witnesses have mentioned, and so this is not just how to give food to
the refugees, but the resettlement of these refugees that calls for fur
ther study. And of course any help and assistance we give to the
refugees will need funds. This is the time to call for the public, the
more fortunate people, to help the less fortunate people . I think that
every organization doing relief work should now get together and
try to work together and help the people and work with the Hong
Kong Government to solve the problems, the best we know how.
This is a wonderful thing that this country has tried to admitmore
refugees. But this is just аa drop of water in the bucket, as the Presi
dent said .
The biggest problem is how to help the refugees in Hong Kong, to
give him a new life, andgive them work and self-support and not just
sending them food to feed them. This is my own opinion on this
problem .
Senator HART. Now, to put the question bluntly, if 50,000 or 100,000
Chinese seek freedom , should the door be closed at Hong Kong ?
98 REFUGEE PROBLEM IN HONG KONG AND MACAO
Should we, in effect, or should the crown colony Government, stop the
entry of these thousands of refugees ?
Mrs. CHENNAULT. Of course, you have heard reports that many
refugees were turned back to the mainland. And of course werealize
the problems that the Hong Kong Government have to face. That is
why many concerned have suggested that we should think of a way
to transfer these refugees to maybe some other countries who will
accept them , and maybe have a place for them . And have work for
them .
Certainly this is not a problem that the Hong Kong Government
could handle alone. Of course, the gate, shall we say, to freedom
should not be closed to the people who wish to be free.
Senator Hart. And if it is simply overwhelming the resources of
Hong Kong, and if the crown colony has done all that a man reason
ablycan be expected to do to permit the door to stay open , but it is
still not enough, then your message, I take it, is that we and other free
people must do more ?
Mrs. CHENNAULT. I do think so.
Senator Hart. Specifically to assist.
Mrs. CHENNAULT. Yes. Not just we Americans, but I think many
other free countries have the responsibility to show the people that
we, as free countries, want to help them and give them hope.
Senator Hart. Now, to a question that Senator Wiley asked , and
which you said presents an extremely difficult problem — the business
of food for the people of China, Red China .
You know , under our program, an American family cannot even
send a parcel of food to a family in Red China.
Now , would you object to that being changed ?
>
Mrs. CHENNAULT. No. As an American citizen, and many years
working with my husband, General Chennault, fighting communism ,
my feeling would be any food sent to Red China will not be delivered
to the hungry people, butto feed maybe the army and actually the
Communists who had killed our American boys and keep many Ameri
cans in prison .
In answering this question , Mr. Chairman,if you would permit me,
I would like to call my very close friends and my husband's associate,
Mr. Corcoran. I think he has dealt with this problem , and also
worked with my husband very closely. If you will permit me, I would
like to ask Mr. Corcoran to help me in answering this question. May I ?
Senator HART. The committee would welcome Mr. Corcoran now ,
or, if he would prefer, he may file a statement.
Many in the audience may wonder if this is the Tommy Corcoran
about whom they have read so long. I want to assure them he is.
The committee welcomes him .
STATEMENT OF THOMAS CORCORAN
Mr. CORCORAN . Mr. Chairman , I would be glad to tell you what I
think about this food to Red China problem .
It happened that after the war I was rather intimately associated
with General Chennault's attempt to help UNRRA provide relief
food and medicine to China, then under the Nationalist Government.
General Chennault formed his airline in the attempt to move inland
the food from the United States and the medicine from the United
REFUGEE PROBLEM IN HONG KONG AND MACAO 99
States that was piling on the docks of Shanghai, which was then the
port of entry, Canton was another port of entry, and to try to get it
through the redtape of the then local government bureaucracy, which
was then trying to play ball thebest it could, to the starving millions
in China, when after the war all transportation had been eliminated,
and people actually were starving and dying from lack of medicine
in the interior of China.
I worked intimately with that problem for several years, as an
associate of the general.
What always impressed me was that although the American Gov
ernment put its very best into that relief problem , it simply could
not manage the control of either the medicine or the food . Two citi
zens of such eminence as Fiorello LaGuardia , as the head ofUNRRA,
and Herbert Lehman , as the head of UNRRA, tried their best to see
that there was some kind of international control of this food , and
UNRRA, as you remember, was an international distribution.
Now, earlier President Hoover had faced this problem , after World
War I, in Poland. And even at that time the desperation of the
Communists was such that even Lenin permitted Hoover to move in
all -American relief teams, and a great many men of my generation
were in thoserelief teams,who actually in asense took over the coun
try territorially, as far as the distribution of American supplies were
concerned , and themselves made sure that Americans handed out the
food , handed out the medicine, and saw to it that the American Gov
ernment got credit for it. And it has always been amazing to me
that Lenin himself permitted that to be done.
Now , when we went into this international problem , in UNRRA,
where the food and the medicine were handled on an international
basis, we first found it inevitable that every other country had its own
problems with China, and in relationship to China. And it was in
escapable that as, in the situation that we found ourselves in in the
Congo, that everybody had his own motives in going into that inter
national effort, and unquestionably shading the disposition of the
material we gave them , inevitably, for their particular national
interest.
We had a great deal of trouble with UNRRA in Shanghai in par
ticular. And there was another associate of General Chennault, a
man named Whiting Willaver, who for many years has been an
Ambassador of the United States, who at thattime was the foreign
economic administrator for the United States in nonoccupied Asia ,
that is, the countries into which we did not send our troops of occupa
tion. He tried desperately to wrestle with the problem . And Chen
nault tried desperately to wrestle with the problem . So that you had ,
I would say , four of the ablest American servants who ever tried to
see to it that the American Government's purposes in distributing that
food and medicine were carried out. But they couldn't handle it in
China for very practical, concrete reasons.
You try yourself to conceive what happens when a shipload of food
or a shipload of medicine arrives at a dock in Shanghai. The food is
put into a godown. Who polices the godown ? You couldn't send
the U.S. Army to police the godown. You can't send American
troops to policethe godown.
100 REFUGEE PROBLEM IN HONG KONG AND MACAO
Even with a friendly government which was doing its best, in the
case of the Chinese Nationalist Government, there are elements in the
Chinese Nationalist Government who were playing their own game.
The food was simply stolen from the warehouse. How are you going
to prevent the food not being stolen from the warehouse. You can't
putour own Army in.
Then over territory as great as China is, you had enormous problems
of distribution from the importation to the interior. How does it get
into the interior? It gets into the interior over modes of transporta
tion like railroads — there were none in China in our day — or it gets in
on men's backs, or up the river on river boats, or in our case it gets in
over an airline. But who now controls the airline, who controls the
railroad ?
Now, suppose you are sitting in a country that is short of food .
Although in a good many cases, for the purpose of this deliberate
Communist Chinese effort,the food shortageisto some degree unreal,
you can't help but notice that the food is being exported all the time
from Communist China, as the only thing it has to send out into the
world, to buy foreign exchange, for instance, to get itself arms from
Russia, toget itself machinery partsfrom Russia. The Russians have
deliberately exported from the Chinese, at whatever cost of starvation
to the Chinese peasant, whatever was necessary, as you know they
have done with the Cubans. They have always got a bigger deal for
what they send in than any other trader ever got in thisworld . The
Russians have been taking food out of China regularly, despite the
food shortages, for years, as the price of their contribution .
Now , do you think that at the present time the desperation of the
Chinese Communist economy, that the Chinese Communist govern
ment, whose police will be around the godowns, whose police will con
trol the river boats, whose police will control the railroad transporta
tion, whose police will control the airlines, and whose agents will
necessarily control the distribution at any other points than the im
mediate point of disembarkation - because you haven't enough people
to send over theenormous territory of Chinato do the administrating.
Do you think that government isn't going to take that food , and in
substance say to the people who are atits mercy, " you play ball with
us, you eat and you have medicine. You don't play ball with us and
you don't eat and you don't have medicine .”
Now , you can put it down, out of our own experience, even with
the government that was not as ruthless as this one, we could not con
trol the swiping of the food, the management of the food for govern
ment purposes through what was alleged to be the black marketopera
tor, but he was often an agent of some portion of the government.
Even with the best men wehad to give inthe United States, with the
enormous power that we then had available, we couldn't manage it.
So that as far as putting food in in large quantities, by government
agencies, there is no question that you run a 99 percentrisk that this
would become an instrument of the power of the minority who, as this
witness has testified, control a majority of the people inChina today:
Now, then , President Hoover in a certain sense has understood and
has suggested that it might be possible, in order to show the world that
we meant to be humane, to propose that as nearly as possible the an
alogy to what he did in Poland might be recreated.
REFUGEE PROBLEM IN HONG KONG AND MACAO 101
That is, you might say — we do not try, because we know that over
the geographical vastness of China it isimpossible for us not to give
food to a government which will control it and make it an instrument
of policy. It might be possible that around the port areas, for in
stance, or at the Kowloon border, north of Hong Kong
you give us an area and you get out, and we will ourselves set up the administra
tion , as Hoover did in Poland, after the war, of a dispensing mechanism , that at
least for the people who can reach that area will have their food and their
medicine from American administrators, who will make it perfectly clear to the
world that America is being humane, but America is not being a “ patsy ” and hand
ing it to people who at the same time are keeping internal pressure on American
boys in Vietnam and Thailand and everywhere else and without breaking the
heart of those people in Asia , like Vietnam and Thailand, you are trying to hold
in line by saying America is being a “ chump " again, it is going to make the same
mistake it made about the agrarian reformers, it has not learned its lesson.
And we in Thailand and Vietnam now assume that the internal pressure on us
from the Chinese Communists is going to be fueled by America .
Now , if it were possible, Mr. Chairman, to say to the Chinese Com
munists , and to prove it, that “we will clear an enclave for you, and
we will feed, with obvious American administration , around Kowloon,
or around Shanghai, those who can reach it, and you will keep out,
and as far as we are concerned, this is like Hoover's Poland, our
show ” -then you could be sure whatyou would do.
But may I suggest another thing ! Just as in UNRRA , we ran into
this problem of the complication of the particular relati
that
ons of other
nations toward Communist China. I would not say do
you could
this internationally. After all, we learned in the Congo that in an in
ternational effort of this kind of scope, every nation has its own game
to play. And if you tried to do again, on an international basis, a
food relief job in China, and try to do it the same way you tried to
do it in the Congo, you would get into the same cross-purposes you got
into in the Congo.
Now, I come back to your specific question - sending food relief
parcels to individuals in China. I don't know how much could be
sent that way. I understand that there is some portion of the food
parcels that have been sent by refugees in Hong Kong back to their
relatives that get through. I would not assume, when there is a short
age, that the recipient of the parcel can get it all. You can't believe
that either. If a parcel of food addressed to a particular person
lands in a particular town, and lands through government instrumen
talities of transportation, which at least make it certain that every
body in the town knows that the recipient has received the parcel , I
don't believe you can assume that it isn't divided, nor that the govern
ment doesn't, for its purposes, see to it that a portion of the division
goes to the favored of the government in that town. Nevertheless,
they would have to give some portion of it or the transmission would
not continue. That is, you might get 5 percentof the parcel through
to the recipient of the parcel. Maybe you could do that as a humani
tarian gesture, but it couldn't amount to anything like the enormous
government grants of food. Some portion of the food might get
through . But you don't fool yourself, neither as to the quantity of it.
nor as to the percentage of anything that is of value.
And as to whether the Chinese Communist Government would ever
face up to letting you really be sure Americans control the distribu
tion, I don't know . I can't believe they would.
102 REFUGEE PROBLEM IN HONG KONG AND MACAO
But to look it square in the eye, Mr. Chairman , shipping food into
the territory of any strong government, particularly a government
carrying theterritorial strength of aa thing like China, cannot possibly
become but 99 percent the instrument of power of the government,
because on the experience of UNRRA , and the enormity of China, and
in the particular power of this Communist government over China,
the administrators are not available to the American Government to
do under these, circumstances what men of the stature of LaGuardia
and Herbert Lehman and Chennault and Willow could not do.
I think it is utterly unrealistic to think that there is any way of
guarding this thing so that 99 percent of the operable political value
of that food won't come under the control of whoever is the master
of territorial China.
Senator Hart. Let me raise this as a possibility down the road . If
there is, in fact, starvation on a massive scale in China, would it be
your judgment that except for energetic work on the part of the free
countries to find ways of establishing Chinese relief for those trying
to escape this starvation, that we would say, swell, the starvation
2
is on a scale never known to modern man, but we," for the reasons
you have described , "simply cannotpermit this food surplus of ours
to be used in a shipment of food to Red China ?" I am just trying to
test down the road.
Mr. CORCORAN. Well, Mr. Chairman, there are two things you have
to realize about these Communist countries that are trying to indus
trialize.
Starvation is a. deliberate policy. It is guns insteadof butter, with
all of these Communist countries. The Russians deliberately starve
their people in order to industrialize, and to acquire military power.
The Chinese Communists are doing it right now, and are going to
continue to do it right now. So starvation becomes to that degree an
instrument of policy. This is a guns rather than butter policy.
No matter how much you pourin, you understand thatinsofar as it
is under the control of the Government, it might just as well be sent
to Soviet Russia for atom bombs and machinery than given to the
people.
So as longas that policy exists in a Communist country, you can
not decide. I mean as long as they persist in that policy, all deuces
are wild.
Now , then, you get to the next problem .
In relation to this particular country, you do have a problem that
substantially you are in cold war with them right now. And it is
not so much what happens to you as what happens to people that you
aretrying to hold in an alliance with you.
Suppose, for instance, you have sent troops into Thailand, you have
sent troops into Thailand to tell them you are going to try to keep
them free - you have made that decision . Now , what do you think
the effect is — why did you send troops into Thailand ? You sent
troops into Thailand because they are worried about what is happen
ing in Laos, and so you had to send troops into Thailand, as I under
stand from what I read in the papers, in order to keep the Thai
determined to be free. The Thai know that the Chinese are after
them sooner or later anyway. So do the people of Vietnam.
REFUGEE PROBLEM IN HONG KONG AND MACAO 103
Now , suppose allof a sudden , in order to save your humanitarian
heart, the Thai and the Vietnamese understand that you are going,
in substance, to finance the Chinese in their ultimate aims of aggres
sion against Thailand and Vietnam — their reunion in the ancient
Chinese empire,in which the Chinese Communists regard them , as
they did with Tibet and Nepal. What do you think is going to bethe
effect on the Thai? In substance you are arming the Chinese Army.
And then what do you do in Thailand and Vietnam ?
Now, as I say, this is a problem , as somebody said, whether a gov
ernment with humanitarian intentions can be moral and political at
the same time.
There is no answer to your dilemma. You cannot afford to risk
your safety for the warmth of your heart.
There is a way in which you can prove to the world that you would
be willing to. And one of those is as has been suggested. Say
frankly to the Chinese Communist Government, " Wearewilling to
feed hungry people so long as we can keep the food for the hungry
people in ourown control, and not as an aid to youin your aggressive
purposes or your propaganda purposes to the south . Moreover, give
us a free area in Shanghai, don't make us trust an international com
mission whichyou can threaten if India is on it, or you can threaten
if someother European power is in on it, to play your game. Move
over, let us put another relief mission in ." And we say to the world,
and before the world opinion “ yes, we will help , prudently, Wewill
help if we are sure who is going to be helped . We will help if we
are sure this is not going to be used against people whom we have
urged to stand fast against this thing, and say to them , yes, move over,
give us a place to stand, give us 200 square miles north of the Kow
loon border, we will feed everyone who comes and give medicine to
those who come, but thereis none to go back. Give us this free part
around the area of Shanghai; we will do this.” And we say this to
the world and we mean it. But we are notgoing to be pious patsys.
Senator Hart. I am very glad Mrs. Chennault persuaded you to
give us theseviews, because they arevoiced against a background that
I know is full, and they certainly will be helpful.
Mr. CORCORAN . Mr. Chairman, I am very appreciative of the chance
to do it. I have been wrestling with these Chinese problems since
the year before Pearl Harbor. And I am afraid I never take my
sentries down when I am dealing with the Communist Chinese.
Senator HART. Mr. Johnson .
Mr. JOHNSON . No questions.
Senator HART. Are there any questions from the staff ?
Mrs. Chennault, again, we have enjoyed having you . We salute
you for the leadership you are giving in the effort to assist a prob
lem which is, I think, on the conscience of many more people today
than yesterday, and certainly that was on their conscience6 weeks ago
This committee is very grateful to you, and to those associated with
you , particularly Mr. Anderson and Mr. Lee .
Mrs. CHENNAULT. Thank you. I feel it is my duty as an American
citizen to do what I can for this country, and for the people who are
less fortunate than we are.
Senator HART. I think I ought to note for the record the contribu
tions that have been made, not alone in the effort to relieve human
104 REFUGEE PROBLEM IN HONG KONG AND MACAO
misery in Hong Kong, but across the world, by American voluntary
agencies is a chapter that would thrill every American and fill them
with pride. It is a chapter of which very few people are aware. It
is something that a person ought to look at when he feels that some
how or other America is not responding fully to humanity's needs
elsewhere.
Mrs. CHENNAULT. We certainly need everyone's help .
Mr. Eng has just presented me with a check of $ 20 to the Chinese
refugee relief. He just told me, even he himself, a refugee, and
they do not have much money. But he feels that he is now in this
country, he is more fortunate than the rest, and he wants to do what
ever he can. And he has presented a check of $ 20 in helping Chinese
Refugee Committee.
Senator Harr. Well, using that Chinese maxim that a picture is
better than words, I think that act is more eloquent than testimony.
Thank you very much.
Senator Tower, did you care to make any statement ?
Senator TOWER. No, thank you.
Senator HART. We are very glad you have spent the morning with
us. The committee is adjourned.
(Whereupon , at 12:30 p.m., the committee adjourned, subject to
the call of the Chair. )
REFUGEE PROBLEM IN HONG KONG AND MACAO
THURSDAY, JUNE 28, 1962
U.S. SENATE,
SUBCOMMITTEE ON REFUGEES AND ESCAPEES
OF THE COMMITTEE ON THE JUDICIARY ,
Washington, D.O.
The subcommittee met, pursuant to recess, at 2 p.m., in room 357,
Old Senate Office Building, Senator Philip A. Hart ( chairman of the
subcommittee ) presiding.
Present : Senators Hart (chairman of the subcommittee ), and
Fong.
Also present : Curtis E. Johnson , staff director ; Dale S. De Haan,
research consultant, and Earl Nishimura, minority counsel.
Senator HART. The committee will be in order.
We resume hearings today on the Chinese refugee problem in
Hong Kong
Already we have received testimony from State Department offi
cials concerned with this problem, and representatives of various vol
untary agencies which have programs in the crown colony.
As I pointed out to the Senate on June 18, the recent heavy influx of
refugees into Hong Kong, served to highlight an already serious
refugee problem in this sensitive area of the world . The subcom
mittee has been actively concerned with the Hong Kong refugees and
this problem for several months. Events over the past few weeks,
however, have pointed up the urgency of the subcommittee's inquiry .
Since 1953 our Government has supplied over $30 million worthof
surplus agricultural commodities to American voluntary agencies for
distribution among needy persons in Hong Kong. We have expended
some $ 8,350,000 through our Far East refugee program.
This latter expenditureincludes aspecial contribution of $1 million
during World Refugee Year for the construction of a community
center, a children's reception center, a secondary school, and aa rehabil
itation center. Additional funds and energies to help alleviate the
situation in Hong Kong have come in substantial quantities from
private Americansources.
The subcommittee's hearings are addressed to the overall extent of
America's responsibility in the Hong Kong situation, the adequacy
and propriety of ourpresent program there,and otherpossible avenues
of approach to the long-term needs of the crown colony.
The subcommittee's inability to meet this morning because of a
special meeting ofthe full Judiciary Committeehas brought a change
in our schedule of witnesses. Mr. Herbert J. Waters, Assistant Ad
ministrator, Office of Material Resources of the Agency for Interna
tional Development, will not be able to appear at this time but will
be heard at a later date.
105
106 REFUGEE PROBLEM IN HONG KONG AND MACAO
We are fortunate in having with us today representatives of the
Lutheran Immigration Service and several Chinese - American com
munities in the United States.
I regret the inconvenience caused by the cancellation of this morn
ing's meeting, and the subcommittee appreciates your appearing this
afternoon ,
Senator Fong was engaged in the same meeting this morning that
took the subcommittee off the tracks." I am very grateful that he
adjusted an already upset schedule to join the subcommittee this after
noon. He has not only a long-term interest in refugee problems, but
a sensitive understanding of the problem with whichthe subcommittee
is currently engaged.
Senator Fong . Thank you, Mr. Chairman. I am very happy to be
here to listen to the testimony.
Senator Hart. Mr. Donald Anderson, for the Lutheran Immigra
tion Service.
STATEMENT OF DONALD E. ANDERSON , DIRECTOR, LUTHERAN
IMMIGRATION SERVICE
Senator HART. I should indicate, both to Mr. Anderson and the
others who will follow—the prepared statements will be printed in full
and as submitted in the record. It is completely within the discretion
of the witness whether toread the statement or to summarize it, or to
read it and interpolate. So we hope all ofyou will feel free to present
your views to the committee in any style that you wish.
Mr. ANDERSON. Thank you, Mr. Chairman. I think I would like
to read the statement, and then possibly make a brief comment follow
ing the reading of the statement.
Mr. Chairman and distinguished members of the committee, my
name is Donald E. Anderson . I am the director of Lutheran Immi
gration Service .
Lutheran Immigration Service is a joint agency of the six Lutheran
Churches participating in the National Lutheran Council and also
for the Lutheran Church -Missouri Synod. The total membership of
these seven national church bodies numbers approximately 8 million
persons. Lutheran Immigration Service , as an agency, operates in
cooperation with the Lutheran World Federation, Department of
World Service, in Geneva. Represented in the Lutheran World Fed
eration are 61 Lutheran churches located in 32 countries with a com
bined membership of about 50 million persons.
Formerly I was the secretary for resettlement and material relief
for the Lutheran World Federation . While serving in this position,
I was an officer oftheInternational Committee forthe World Refugee
Year, and an officer of the standing Conference of Voluntary Agencies
Working for Refugees. In addition, I served as the chairman of a
working party for non-European migration created by the nongov
ernmental organizations interested in migration.
In these various capacities, I have had an opportunity, as well as an
obligation, to become acquainted with the problems of Chinese refu
gees and the various programs conducted on their behalf, especially
within the Hong Kong area. In view of this, and in view of the con
cern which the Lutheran churches have exhibited for Chinese refugees,
I both welcome and annreciate this opportunity to address this com
REFUGEE PROBLEM IN HONG KONG AND MACAO 107
mittee, as I understand that it is your purpose to compile information
on present programs in the Hong Kong area, and receive suggestions
for additional programs, in orderthat you may determine what action
the U.S. Government might, or should undertake in order to further
alleviate this serious situation .
I am sure that this committee is already fully aware of the com
plex and difficult problems involved in defining who is a Chinese
refugee in Hong Kong.
I will only state that we accept and give assistance to the limit of
our resources to all Chinese who would not, under circumstances, re
side in Hong Kong, as well as to those Chinese whose needs have de
veloped as the result of immigration into HongKong. Wehave found
that it is impossible to justly apply any traditional definition of the
term “refugee" inthe colony,andfor this reason sympathetically sup
port the stated policy of the Hong Kong Government,which has never
in any way madea distinction between the immigrantpopulation and
a
the population which hasits grassroots in Hong Kong.
It will be helpful, I believe, Mr. Chairman, if I describe for you the
typical Chinese refugee residing in Hong Kong as the Lutheran
churches have learned to know him since 1954. I can describe him
best, perhaps, by relating briefly the story of Mr. H.,as told by Pastor
Ludwig Stumpf, director of the Lutheran World Federation's pro
gram in Hong Kong.
Mr. H. in the year 1937 successfully graduated from the Sun Yat
sen University. He was called into the service of his country and for
10 years occupied the responsible post of a chief accountant of a pro
vincial government department. The fateful year 1949 arrived. As
millions of other human beings in the 20th century, he packed his few
possessions, locked the door of his home and joined the army of the
homeless men whose number seems to stretch into infinity . Ăn over
crowded little steamboat took him and his family down Pearl River
to the British Colony of Hong Kong .
Mr. H. did not let himself become downhearted nor confused by
this new exasperating life experience. He rented a little squatter hut
a
of 10 by 12 feet, repaired the leaking roof with tar paper and im
mediately went out to search for work. He was lucky . A quarry in
the new territories employed him as an accountant. But more diffi
culties were in store for him .
An economic depression resulted in the closing down of the quarry
and Mr. H. once again became one of the many jobless refugees in
Hong Kong. But this time he did not find employment. Hundreds
of bookkeepers from the mainland had entered the colony. The
meager savings of his family dwindled away quickly.
In order to cover the medical expenses for a sick child, the wrist
watch of Mr. H. found its way to the pawnshop. Other articles of
his household followed . It was then decided that Mrs. H. should take
over . With a small loan he bought a second -hand sewing machine and
Mrs. H., unafraid of losing face, installed herself on a busy pavement
in Kowloon withher sewing machine, offering her services as a seam
stress to the neighborhood . Thus a second -hand sewing machine be
came the sole breadwinner of a family of five persons.
It was only when the machine, after years of wear and tear, badly
needed repair, or rather, needed to be replaced, that Mr. H. asked for
108 REFUGEE PROBLEM IN HONG KONG AND MACAO
help and advice from the Lutheran churches. His hut was found to
be neat and tidy, and his children clean and orderly. He received
help and advice.
Multiply this story of Mr. H. by the thousands, and it becomes
possible to know the Chinese refugee as we have learned to know him.
His hardship, his poverty, and the almost insurmountable conditions
>
surrounding him have not destroyed his integrity and dignity as a
human being.
As in the case of Mr. H., all these refugees have asked us for is an
opportunity to help themselves work out their own solutions to their
own problems. I am sure that this is what they would also ask you
if they were sitting here today. This is how we have learned to know
theChinese refugee, and this is how we would have others know him.
With this understanding of the refugee as a background , then , per
mit me to briefly outline and discuss what we have observed to be some
of the fundamental problems which prevent and complicate the task
we all have in providing opportunities for these refugees to help
themselves.
As this committee is aware, there are only three possible solutions
to any refugee problem once the refugee has arrived in an area of first
asylum . He can be repatriated , emigrated, or absorbed.
Repatriation is only a solution for those who can return to their
homes without fear of persecution . The very nature of the present
political situation in the world today makes this a solution for the
minority - and even for them there is no certainty, in areas such as
Hong Kong, that repatriation will not result in persecution. There
fore, this is not a solution to the Chinese refugee problem .
We would suggest that any program of repatriation which is en
tered into be entered into withcare and a greatdeal ofcaution in order
that needless suffering is not incurred by any individual who simply
asks the right to live freely without compromising his dignity and
integrity as a human being.
The second possibility is emigration. Whenever applied, emigra
tion has proved to be an effective solution to refugee problems. The
theory is that if you disperse a given group within relatively stable
communities, even where there is an unemployment problem , they
adjust and become self-supporting.
Dispersion through emigration, in order to be effective, however,
must take into account countless factors such asthe potential economic
growth of a given area, the community's ability to absorb different
language groups, cultural values and traditions, and the refugee's
ability to adjust to thenew community, et cetera. Emigration, there
fore, is only an effective solution when it is carefully planned and
administered. We have learned since the last war that simply " dump
ing ” people into scattered communitiesis no solution, and therefore,
when we speak of emigration as a possible solution, I assume that we
agree this means carefully planned and administered programs of
emigration. Not all Chinese refugees in Hong Kong desire to emi
grate, but there are thousands who see no other alternative and will
emigrate.
Recently we received a report from Hong Kong which summarized
the present possibilities for the emigration of Chinese refugees. This
report only pointed out again, however, that it is virtuallyimpossible,
REFUGEE PROBLEM IN HONG KONG AND MACAO 109
or extremely difficult, for all except a limited few to obtain visas for
entry into any country as permanentresidents.
If, for example,Mr. H., whois a desirable immigrant in that he has
the will to work, the initiative to find ways to support himself and his
family, and the dignity and integrity to become a good citizen, wished
toemigrate, it would be almost impossible for him to do so.
We are convinced, however, that there are countries where Chinese
refugees would, if given the opportunity, find ways and means to
support themselves and their families without creating any difficulties
for the present population, and, if their emigration were properly
planned and administered , they would, we believe, contribute signifi
cantly to the general welfare and prosperity of these countriesas a
whole.
The recent decisions of the United States and Taiwan to admit
approximately 6,000 and 10,000 Chinese from Hong Kong, respec
tively, were made after this report wascompiled.
It is our hope - you recall we submitted a letter to this committee on
June 5 which gave our reaction to the President's decision.
Senator Hart. It is my impression that this letter has been made a
part of this record. Yes, it has.
Mr. ANDERSON . Thank you.
It is our hope, as we indicated in our letter of June 5, 1962, that
other countries will also agree to accept Chinese from Hong Kong for
resettlement within their borders, for it is this type of constructive
action which is needed in order to further alleviate the present
problem .
From past experience, however, we do not believe that many nations
will act until an intergovernmental agency is designated to develop,
plan, and administer emigration programs for Chinese refugees.
Voluntary groups, such as ourselves, cannot effectively help these
refugees emigrate in significant numbers.
I would like to add here that in another context we would use a
term “massive movements,” for this is what we really mean. There
are a limited number of persons whom we and others have assisted
in emigrating. But here we are saying that we, as agencies, cannot
effectively handle mass movements of people.
We do believe, however, that if anintergovernmental agency were
given responsibility for developing, planning, and administering an
emigration program ,refugees such as Mr.H. would find opportunities
and ways to solve their problems.
The third possibility is for Hong Kong to absorb the refugee. This
is the stated desire of the Hong Kong Government, as I believe this
committee is aware. The tools needed for this task were again clearly
outlined in a report made to the Hong Kong Legislative Council on
June 13, 1962, by the Colonial Secretary , the Honorable Claude
Burgess , when he stated that :
For us in Hong Kong today the necessary tools are the opportunity to travel
freely, a reasonable access to world markets, and a vigorous capital program .
Given these, we ( too ) will finish the job.
Even though we are not economists, we believe the tools mentioned
in this statement will enable Hong Kong to absorb a large number of
these refugees. Thus we question whether the recent trade restrictions
imposed upon Hong Kong are truly in keeping with our longstanding
desire to assist theChinese refugee find a more reasonable and con
87544-62-8
110 REFUGEE PROBLEM IN HONG KONG AND MACAO
structive life. If we limit the refugee's market,and prevent his move
ment to other areas, what alternative does the Chinese refugee have,
other than poverty and hardship ?
What I am attempting to underscore, Mr. Chairman, are some of the
problems which havemade it extremely difficult for Chinese refugees
to help themselves. The refugee cannot be repatriated nor return to
his former home; he cannot emigrate because of restrictive immigra
tion laws and policies, and he cannot fully develop opportunities to
support himself where he is as he cannot find enough markets for his
products. We know that all he wants is an opportunity to help him
self and for this opportunity he must look to his neighbor in the
world community.
Until something is done to provide opportunities for the refugee to
help himself, we believe that welfare and relief programs are
imperative.
What is of deep concern to us is that we see no end to these welfare
programs until something is done or initiated to solve the basic and
larger problems which I have mentioned. The program of the Lu
theran churches,, and others, have increased each year. Governmental
programs, as a result of the World Refugee Year, have also increased
and there is evidence that they should increase even more.
In order that this committee can have a picture of our Lutheran
program , I have attached as an exhibit to this statement a summary
report of the Lutheran World Federation program in Hong Kong for
the 6 -month period ending December 31, 1961. You will note in this
report various projects for helping the refugee help himself.
In addition , we have received countless suggestions for supporting
additional projects, such as primary schools, day nurseries, rehousing
of refugees, additional dental and medical clinics, rehabilitation of the
mentally affiicted and physically handicapped , vocational retraining,
et cetera . The possible number of welfare, relief, and self-help proj
ects are almost unlimited, and we hope that this committee will explore
possible additional assistance for supporting a greater number of
projects such as these.
In conclusion , Mr. Chairman, permit me to briefly summarize what
I have said as follows :
1. The Chinese refugee does desire to support himself and if given
this opportunity, he will solve his own problem ;
2. That repatriation is not a solution;
3. That emigration can be a possible solution for significant numbers
of refugees in Hong Kong if anintergovernmental body is created or
designated to develop, plan, and administer emigration programs;
4. That large numbers of these refugees can be absorbed into the
Hong Kong community if their products are given reasonable access
to world markets;
5. That, until programs can be developed for solving the basic
problems of Chinese refugees in Hong Kong, both government and
voluntary agency relief and welfare programswill have to continue on
an increasing scale for an indefinite period of time.
As a matter of information , I should also state that Lutheran Im
migration Service has decided to cooperate and assist with the move
ment of Chinese refugees to the United States, if needed. Our present
information indicates that only a few will need this assistance in
REFUGEE PROBLEM IN HONG KONG AND MACAO 111
view of the fact that most of those to be admitted will be assisted by
relatives and employers in the United States.
Also, I think that your committee would be interested in knowing
that the Lutheran Immigration Service Committee, which is our
governing board, adopted a resolution on June 12, 1962, relating to
the Senate bill S. 3043. This resolution states that Lutheran Immi
gration Service will —
actively support the principles and objectives implicit in this legislation in our
representation to the churches, Members of Congress, and other interested
organizations and bodies.
Lastly, Mr. Chairman,,we want to commend you and your committee
for your continuing sense of responsibility toward this problem in
Hong Kong and the problems of refugees throughout the world.
Thank you for this opportunity to appear here today.
Senator Hart. Mr. Anderson, thank you very much .
First, thankyou for the endorsement and your support for the en
actment of S. 3043, of which both Senator Fong and I are sponsors.
That suggests a long-term course that I think increasingly, or at least
I hope increasingly ,more and more people willsense is the right and
desirable thing to do, and that this is thetime to do it.
If it were on the books now,> we would have aa flexible 50,000 figure
for admission of refugees, come what may.
If it is appropriate to do it here, the committee would hope that you
would convey to all who are associated with the Lutheran World
• Federation our appreciation for the activity which they have been
engaged in for a long time, but specifically in Hong Kong.
I have not had a chance, and I doubt if any of us on the committee
have had a chance, carefully to study the program summary which
you have attached to the statement. I am sure that we and the readers
of the record will benefit from it. From the little I have seen, I am
struck by both the breadth of the program and the detail of experience
developed under it.
( The report referred to is as follows :)
SEMIANNUAL REPORT, JULY 1-DECEMBER 31 , 1961, OF THE LUTHERAN WORLD
FEDERATION , DEPARTMENT OF WORLD SERVICE, HONG KONG
I. MEDICAL AND HEALTH SERVICES
Since 1954, Lutheran World Service has devoted much of its energy and re
sources to the restoration of health , the promotion of physical and mental fitness,
and the prevention of disease. It maintans a 50-bed hospital, 3 out-patient clin
ics, and a mobile dental clinic.
( a ) Fanling Hospital
This is still one of only two general hospitals in the new territories mainland
with a rural population of 400,000 . The hospital has the following facilities :
Maternity ward, female medical and female surgical wards, male medical and
male surgical wards, children's ward, O.P.D. and tuberculosis clinics, dental sur
gery, operation theater, X - ray, diathermy, clinical laboratory, dispensary, and
social work department.
A new medical superintendent was appointed in September. A full -time sur
geon has also been on the staff since December 1 . The new tuberculosis clinic
was opened in October, and a new dispensary with up-to-date equipment is being
installed .
Inpatients 454
Outpatient attendances .. 7,464
( b ) Outpatient clinics
In Kowloon, Victoria, and Un Long. The two clinics serving the overcrowded
urban areas of Kowloon and Victoria have a monthly attendance of 4,000. The
112 REFUGEE PROBLEM IN HONG KONG AND MACAO
third clinic is situated in the largest satellite town of the new territories with a
population of about 100,000. Among the services provided in these clinics, we
have provided five artificial limbs or joints and three wheelchairs.
Patients treated .- 3,631
Hospitalized- 182
211
X -ray
( c ) Mobile dental clinic
Since April 1960, a well-equipped, air-conditioned mobile dental clinic has been
catering for the underprivileged children for whom no dental care is available
in Hong Kong. It serves eight different refugee resettlement areas daily.
Treatment is also given at the dental clinic in Fanling Hospital.
Patients treated -- 3, 434
II . VOCATIONAL TRAINING
The ultimate objective of our vocational training scheme is the economic inde
pendence of the trainee and his dependents. Our aim is to give him a basic
training in a trade or craft fitting to compete in the industrial employment
market or to set up his own small business. Two major advances have been
made in the administration of the department, the initiation of placement sur
veys on all graduated trainees and regular checks on employment. With the
information collected from these reviews the task of finding employment for
graduates of future classes is made easier. The information is also instru
mental in enabling us to evaluate the strong and weak points of the individual
classes.
The most successful class has been the cookery class. All the graduates of the
class ending in November are now employed. This is due to a number of factors.
There is an excellent teacher in charge ; the publicity has been good ; and the
need for trained employees in the hotel and catering business is increasing daily..
The work of the department was expanded in June when day and evening
classes in tailoring, carpentry, and mechanics began in the newly opened Prin
cess Alexandra Community Center at Tsun Wan. The appointment of a grad
uate of Hong Kong Technical College to the class for mechanics ( air-conditioner
repair and maintenance ) resulted in the improvement in the work and discipline
of students.
Plans for the future are centered on the four-story trade school to be built in :
Kwun Tong. On completion , this will accommodate approximately 1,000 students
engaged in courses planned in line with the industrial needs of the colony.
The figure for attendance at the classes which follow are for those classes be
ginning in November and December. The previous courses were attended by
over 230 students.
Wong Tai Sin :
Tailoring class-
9998899gs e97 % B8
23
Porcelain painting class --
Bookkeeping class .. 10
Basic accounting class.
Cost-accounting class_
Shorthand and typewriting class.
English class.-
Evening English class.. 12
Evening tailoring class.. 16
Tsun Wan :
Tailoring class .- 16
Mechanical class .. 19
Carpentry class .
Evening tailoring class.. 20
Evening mechanical class... 18
Evening carpentry class .
Lung Tao Street :
Mechanical class.-
14
吐 H97
Evening mechanical class. 11
Shaukiwan : Tailoring class. 10
Kimberly Road : Cookery class.
Total.
234
REFUGEE PROBLEM IN HONG KONG AND MACAO 113
III . SELF - SUPPORT
This department has undergone a number of changes during the last 6 months.
Under the direction of the casework supervisor, criteria were set up for deter
mining the type of help that could be given and the eligibility of applicants.
After a few months' experience of working with these criteria, it was found nec
essary to amend them; the revised criteria have since been circulated to all
concerned in welfare work in Hong Kong.
The sum allocated to an applicant may take the form of a grant or loan de
pending on the amount granted and the nature of the intended project. The
objective is to bring economic security to the client and his dependents on a
permanent basis. The aid given out by this department does not include material
relief, medical or educational assistance.
So far the work has been conducted on an experimental basis with one case
worker attached to the department. During the few months since the reorgani
zation of the department 49 families have been assisted. Most of these have
been for the establishing of small private enterprises.
Now as the number of applications received for this type of aid increases a sec
ond trained caseworker has been transferred to the department, and it is expected
that the work will expand considerably during the next few months.
IV . CRAFTS
From an original operation which purchased cottage-industry products brought
in by the maker, a wide field has opened. We have now come within sight of our
two major objectives. The first is to give our craftsmen more pay for better
work ; the second to add new products and so employ more workers.
Demand for the products is satisfactory and is increasing. Orders are waiting
when we can assure delivery, of jewelry boxes, dolls, brocade garments, and em
broidered and beaded sweaters. Our workers are kept occupied on actual rather
than potential shipments.
We have helped new and old workers to step up the quality of their goods by
attaching them to highly trained and experienced craftsmen at our own work
shops. After a few months they improve considerably and are able to continue
their handicrafts at home. It is intended that in time a high percentage of the
workers will prove capable of handling their own businesses or of forming coop
eratives among themselves .
With this end in view, we have concentrated on helping
( a ) Recently hospitalized and convalescent workers who cannot yet go
back to factory work.
( 0 ) Younger and older persons who are not desirable workers for
factories.
( C ) The physically handicapped who are generally ill-treated and
underpaid.
( d ) Those with unusual skills who do not fit into mass production work.
( e ) Those who must work at home because of family conditions.
( f ) The vocational school graduate who needs some experience before he
can command decent wages.
Once these people are sufficiently self-assured , physically recovered , or have
become truly skilled in making products suitable for today's market, the bar.
riers to private employment disappear. It is not proposed that we become perma
nent manufacturers of any certain types of goods but rather that we direct the
worker into paths which will lead to his independence.
V. RURAL RESETTLEMENT
From the experimental work done at Sai Kung and the experience derived
from Fu Le Tsun and Ma On Shan, the of he department has become
more closely associated with the overall aims of the New Territories Administra
tion Department of Government. The new projects at Cheung Chau and Ma
Cho Lung have reinforced the belief that still closer cooperative Development
and Fisheries Department of the Government enables us to play an even greater
part in the establishing of social communities on the islands and in the new
territories .
Two projects at Cheung Chau and Ma Cho Lung are aimed at rehousing the
people already in these districts living in unhealthy and substandard conditions.
In the rural new territories we are providing vitally needed housing, preparatory
114 REFUGEE PROBLEM IN HONG KONG AND MACAO
to the Cooperative Development Department building up the individual family
units into a coherent and self- supporting whole.
Sai Kung . - Thirty -two families now in residence, 12 of the clients are widows,
9 of the husbands in other families are ex -tuberculosis patients ; total population
201 , 142 being 16 years old or younger.
Ma On Shan.-Sixteen houses all occupied ; total population 108, 59 being
under 16. The majority work at the mines nearby and were living previously
in appalling conditions in makeshift shacks by the shore.
Fu Le Tsun .-All 19 houses have now been completed.
Ma Cho Lung.—This area has been occupied by 60 or 70 refugee families who
previously lived just across the frontier and crossed over to work their land in
British territory. These now occupy wooden structures built on piles which are
frequently isolated by rains and floods and threatened by the River Shan Chun .
It is planned to resettle these people on the slope of a hill nearby. The plans of
the houses have already been accepted by the village representative.
Cheung Chau Island. The scheme provides for the construction of resettle
ment blocks, each block consisting of 13 units. The purpose is to remove refugee
fishermen from their present squalid living conditions, to give them a new home
and so to provide the means to a new life.
Tsing Yi Island . — The proposal is to establish a small resettlement area to
rehouse families living in huts in Tsing Yi town. The huts have to be cleared
to make way for the development of the town . The Resettlement Department
of the Government will form the sites and the cost of site formation will be
borne by the New Territories Administration . The construction of the houses by
Lutheran World Service will begin in April or May.
VI . TBC REHABILITATION
This is a pilot project which began in July 1960. Its aim is to provide post
hospitalization aid and is designed to rehabilitate the breadwinner of the family
recovering from tuberculosis by assisting him to become self-supporting. Single
needy ex - tuberculosis patients are also eligible.
Rehabilitation does not simply mean that the patient is given some kind of
routine light employment, for the clinical, psychological and particularly the
social circumstances of the individual have a strong bearing on the course to
be taken in any one case . Four trained caseworkers are employed to conduct
the office interviews and home visits and assist in the planning for the individual .
( Five forms of rehabilitation are normally employed :
( a ) Industrial occupation
Efforts are made to get the client back into his old job , if this is not injurious
to his health, rather than to train him for a new one,
( 6 ) Home industries
The organization of handicrafts and other work in the client's home. Raw
materials often have to be provided and methods of selling the finished products
to be devised. This is worked out in cooperation with our crafts department.
( c ) Establishment in business or small holding
This involves an initial capital outlay to set up a small business that will have
some chance of providing a livelihood for the man and his family. For the first
year at least he usually needs a great deal of advice and encouragement from
this agency .
( d ) Rural resettlement
For families with a farming background. Assistance includes construction of
simple houses, pigsties, and chickenhouses ; terracing the land, provision of
free animal feed for the first 6 months, and a small care and maintenance allow
ance for the family for the first year.
( e ) Vocational training
For those who have to learn a trade or change their occupation, this is usually
provided by one of our vocational training classes. Financial assistance has to
be given for the trainee and his family during this period .
In all our activities we work very closely with the Government departments
concerned . There are frequent consultations between the senior Government
tuberculosis specialist, the senior tuberculosis almoner and the supervisor ; ac
cepted cases report regularly to the nearest chest clinics for observation and
followup treatment.
REFUGEE PROBLEM IN HONG KONG AND MACAO 115
A considerable step forward has been made by the setting up of the tuber
culosis rehabilitation advisory committee which has attempted to coordinate the
work of the medical and health services, the rehabilitating agency and the
Federation of Hong Kong Industries with a view to the employment of the ex
tuberculosis patients.
So far 79 cases have been rehabilitated and all are kept under supervision ; 66
cases are under investigation , but the rehabilitating process has not yet been
completed.
VII . CATEGORICAL AIR
This department was formed in May 1961, and it now provides both long and
short term help , acting to an extent as a clearinghouse in an attempt to meet
the needs of those for whom there are no other resources available in this
organization or the rest of the community .
Long-term assistance . - Cases which are thought to need continuous help for
more than 3 months come into this category. Where a family or an individual
will need help for more than 1 year, his case is submitted for sponsorship. The
majority of these are arranged through the Oxford Committee for Famine
Relief in England or through private groups and organizations in Germany.
The sponsors send regular contributions of money which is passed on to the
client through this office, in the form of cash grants or specific relief. The amount
of help given is not restricted and the cases are of great variety - rent, tuition
fees, hospital fees, grants toward maintenance , clothing, textbooks, special
medical treatment, etc. Often it is a case of tiding the family over until the
children have left school and can earn their own living, or while the main
breadwinner has to go into the hospital for a long course of treatment.
Short -term assistance . — This provides help of even more varied kinds. Its
chief purpose is to cater for any emergencies, e.g. , accidents or sudden illness,
birth or death, loss of employment. Help is given usually as a one-time grant
as an immediate measure of relief ; grants are not continued for more than
3 months as purely emergency measures, but such a case is considered as a
long -term one.
The department is under the supervision of a graduate of Hong Kong Uni
versity with a social work diploma assisted by two trained caseworkers. The
present caseload is 243. Over 50 new cases are being referred every month, an
indication of the need for these services in the community. Another case
worker is now being appointed to the department to help with the increasing
caseload.
As at December 31 :
Long -term cases.. 1148
Short -term cases . 38
Cases under investigation. 57
Total active cases . 243
1 Of these 114 are sponsored .
VIII . STUDENT AID
The object of this department is to give assistance to secondary or middle
school graduates to continue with postsecondary studies who would not other
wise be able to afford this. For the new academic year beginning October 1961,
we have concentrated our support on students in the four leading postsecondary
colleges in Hong Kong, Baptist, Chung Chi, New Asia and United Colleges.
But those students whose applications were accepted before September 1, 1961,
have not lost their grants . In December assistance was also given to 12 special
students at Hong Kong Technical College on the recommendation of the
principal.
We received over 200 applications for grants to study for the academic year
1961-62 and we were able to accept about half these, over twice the number
receiving grants from this department last year. The grants were made as
follows :
Students
Tuition fee grant ... 50
Work scholarship . 12
Technical college 12
Care and maintenance --- 23
Tuition fee grant and care and maintenance_ 10
Total 107
116 REFUGEE PROBLEM IN HONG KONG AND MACAO
IX . CHILD WELFARE
This department, now over 2 years old, derives its funds from sponsorships
arranged through the Lutheran World Federation in Sweden. The present basis
of its program is to provide tuition fees for children in primary school. Over
3,300 children receive grants to study in primary school. Pupils in middle,
technical and deaf and dumb schools have also been given assistance. Grants
are made for textbooks and uniforms in addition to the monthly tuition fees.
But it is not sufficient just to pay school bills. We try to insure that the
children we help receive education of a high standard, and that they are able
to absorb this, and make full use of all the activities of the school. Our hope
is that in the future they will be able to make a better contribution to the
development of their family, society , and culture.
With this aim a school-visiting program bas been started. A registered
school does not necessarily mean a good school, and by these visits we are able
to see that our students receive the best education available in their district.
By monthly contact with the children we try to find out where there is a special
need and make grants toward living expenses.
The instruction and treatment given in the child welfare treatment room
form a further part of this overall assistance. Over 650 children a month
recieve a biscuit and a weekly glass of milk — or Vita - vitamin if this is in short
supply. Mothers and children receive treatment for minor ailments there ;
for more extensive treatment they are referred to our medical treatment
center.
With the encouragement and assistance of continued and even larger support
from sponsors in Sweden, plans for the expansion of the program are being
discussed by a working committee drawn from the heads of departments.
The present figures are as follows :
Ohildren
Primary school.- 3, 152
Middle school.-- . 143
Maintenance to scholarship students.
Technical school.-- 2
O
Deaf-and -dumb school - 8
LWS resettlement village Sai Kung--- 65
Total.- 3 , 373
11,555 families.
X. MATERIAL RELIEF
The third milk bar operated by Lutheran World Service was opened at the
Tsun Wan resettlement estate in November, We now run 3 milk bars and 3
mobile canteens to provide extra nourishment for the poor children of Hong
Kong. About 2,000 children receive milk and crackers at Tsun Wan and the
total number of children now served daily reaches 12,000. In addition we
supply milk powder and crackers for two other operations. The new milk bar
is the first of such facilities that we have provided in the new territories ;
another one is being planned for the children at Yaumati.
In our distribution of foodstuffs we have completed the necessary changeover
from a mass selection of food recipients to a selection made on an individual
basis in accordance with agreed -upon standards. As a result of the more rigorous
examination the number of recipients has for the moment been reduced , but it
will increase again as new applicants are found eligible. The program was
disrupted when news was received that no more rice would be delivered and it
was not yet known if Bulgur wheat would be accepted by the Chinese. There
fore there was a period when no new applicants were accepted, but the expiries
of the ration cards continued , thus reducing still further the total number of
recipients.
It is felt that the clients presently holding ration cards are less likely to sell,
which may account for less buying actively near our centers. If no applications
are approved unless a home visit has been made there is likely to be a further
reduction in selling.
The needy persons who actually profit from the distribution of U.S. surplus
foods by Lutheran World Service is greater than is shown under the number of
persons served because of allocations made to institutions. The Mennonite Cen
tral Committee uses 800 pounds of noodles from Lutheran World Service each
REFUGEE PROBLEM IN HONG KONG AND MACAO 117
week in their hot lunch program for over 2,000 schoolchildren . The crackers dis
tributed by our milk bars and canteens contain U.S. surplus flour, cornmeal and
milk plus additional ingredients.
As the weather became colder, we began distribution of used clothing to all
food recipients and this was completed before the end of December. Clothing was
also distributed to the Russian refugees registered with the World Council of
Churches. Distribution has now started with 2,000 padded quilts which arrived
late from the factory in early December.
Quantities distributed
Pounds
Flour 609, 825.00
Noodle 92, 100.00
Noodles 106, 693.00
Milk powder 42, 882. 50
Milk bars 28 , 485. 50
Noodle 5 , 098.00
Corn Meal . 657, 233. 00
Noodle 6, 792.00
Rice 293 , 913.00
Bulgur wheat_ 104, 790.00
Crackers 41, 599.50
Number of persons served - total aggregate of period July 1 - Dec. 31, 1961
Milk bars and mobile canteens ( children ) -- 895, 503
Distribution centers new territories and fishermen (persons ) 124, 127
Feeding station (noodles ) ( persons ) 12, 720
L. STUMPF, Director.
JANUARY 29, 1962.
Senator HART. If you were asked to name one program above allelse
which you think would serve best the needs of the people in Hong
Kong, and reflect best the concern of this country for them , what would
it be ?
Mr. ANDERSON. Well, let me answer in this way . One of the real
problems that we have faced is that we have notbeen able to find
and I do not think anybody else has either on a governmental level or
a nongovernmental level - to find along-range policy or strategy which
would lead to a solution of this problem .
I think that if we could name one program which would best serve
these people, we would certainly do so . But I think we would be
very hesitant to settle on any single program . What we would really
like to see, I think , is an intergovernmental body to start consultations
which would lead to the development of a long-range strategy and
plan for the solution of this problem .
Until a long-range plan is developed we have no alternative, I be
lieve, but to continue a welfare and relief program which really does
no solve problems at all.
I read numerous case histories before selecting the story of Mr. H. I
selected Mr. H.'s story because Pastor Stumpf indicated that this
story --in many ways - was a perfect and typical example of a Chinese
refugee.
But there was another story which may help make my point that
present programs are not leading to permanent solutions for these
refugees. This is the story of a refugee who arrived in Hong Kong
in 1951 or 1952. Upon arrival in the colony, he moved into a hut,
which was among 10,000 huts later destroyed by fire. He then moved
on to the street, ate at Government kitchens. Finally he was helped
118 REFUGEE PROBLEM IN HONG KONG AND MACAO
and rehoused in a new Government building, in an apartment which
was 9 by 12 feet. As this space had to be occupied by five people,
and there were only three in his family, he had to live with another
family of three in the same apartment. And one of the three had
active tuberculosis.
This man thencontracted TB, and again he had to be helped for
the third time. It is not unusual that each time we help a person to
help himself, a new need develops. It seems as if we can never really
solve individual problems permanently. As the solution to one prob
lem simply leads to another.
We would say that immigration must be seriously considered.
There is not enough space for everyone in Hong Kong. Overcrowding
has created manyproblems. Economic growth can help considerably
as well as can additional housing.
But II do not think that we would dare say that anyone single pro
gram can lead to a solution of this problem .
I hope I have conveyed my point, as this is a very complex problem .
If we had any single program to recommend we would certainly share
it with you .
Senator HART. Senator Fong ?
Senator Fong. Mr. Anderson, I am very impressed with the varied
programs your Lutheran Council hasbeen carryingout in Hong Kong.
How long have you been engaged in that work, as far as the Lutheran
Church is concerned ?
Mr. ANDERSON. We really started in a serious way about 1954,
maybe late 1953.
Senator Fong. Are you in a position totell us approximately how
much the Lutheran Church is spending in Hong Kong, how much has
it spent ?
If you do not wish to answer that, it is perfectly all right.
Mr. ANDERSON. Well, it was considerably more than a quarter of
a million dollars, but I cannot tell you how much more. I have been
away from the administrationof this program for about 2 years. I
would be hesitant to give you a figure now.
We also receive, as you know, support through various govern
mental agencies, both in Hong Kong and from theUnited States, and
this strengthens our programconsiderably. I am sure that you have
access to Government records which will show the extent of the sup
port we are receiving from U.S. Government agencies.
We are spending well over $250,000 of church money a year.
Senator Fong. A year ?
Mr. ANDERSON. Yes.
Senator Fong . Now, in your work in the colony of Hong Kong,
how do you find the cooperation of the British authorities ?
Mr. ANDERSON . We have found close cooperation.
In the summary report for the 6 -month period ending December 31,
1961, you will find that we are trying in various areas to increase this
cooperation and coordination. In general, however, I think that we
have aa very favorable relationship and a cordial relationship.
Senator" Fong. You have stated that the Hong Kong Government
does not call these refugees "refugees” but, rather, treats them as
part of the residents of the colony. And you suggested that an inter
governmental agency be set up .
REFUGEE PROBLEM IN HONG KONG AND MACAO 119
Now , due tothe fact that the Hong Kong Government looks at this
as a local problem and not as a problem in which it is asking for
help — it has not asked for help — I think the general feeling we have
is that it is trying to keep it within its boundaries — how would an
intergovernmental agencydevelop under these circumstances ?
Mr. ANDERSON. This is a very difficult question to answer .
I must say that we support the policy of the Hong Kong Govern
ment which treats refugees and the indigenous population alike, be
cause we ourselves are faced with a problem when two people come to
us who are in desperate need. We cannot say to one person , you are
a refugee and therefore we will help you, but you are not and therefore
we cannot help you. This position , we could not face as an agency.
We must treat all as individuals in need. And certainly the influx of
refugees has developed needs for many of the indigenous population.
Now , how would refugees be defined, if an intergovernmental
agency entered into the picture? This I do not know , but I think this
is one of the things that an intergovernmental body could decide.
Possibly the best approach is to consider this as a population problem
and look for a solution to the refugee problem in this way.
Senator Fong. As soon as you talk about government, the Hong
Kong Government must necessarily be a party. It would be probably
presumptuous for us as a government tonegotiate with another gov
ernment for the emigration of refugees when the Hong Kong Govern
ment is not in the picture.
Mr. ANDERSON . I think this is true. It would be presumptuous.
But we have never been convinced that this problem is not a responsi
bility of the international community.
Senator Fong. On the governmental level, it would be a very diffi
cult problem , if the Hong Kong Government does not want to be a
party to it.
Mr. ANDERSON . I believe it would be a difficult problem if the Hong
Kong government does not want to be a party to it.
Senator Fong. Under those circumstances, then , private organiza
tions, like the Lutheran Church for example, may be able to work out
someplan for the emigration of these people.
Mr. ANDERSON. We, ourselves, have not concentrated on emigration
programs as the possibilities have been so limited .
If emigration were to take place in sufficient numbers or through
mass movements, there must be some investigation of economic poten
tial of areas where these people can move; access to information
which will enable this potential to be analyzed by qualified experts;
housing and immediate employment upon arrival must also be con
sidered as well as funds to move them . I cannot visualize, as an
individual, having been involved in movement programs, that a
voluntary agency can effectively initiate this type of program on a
large scale.
Senator Fong. You feel this program is too big, too expensive, for
a private agency to undertake, is that right?
Mr. ANDERSON . Yes. I should also add that immigration laws are
involved as well. Possible areas into which these people can move,
I think, must be investigated and then negotiated. Agencies can
play a role once a program is established. But I do not think such
agencies have the ability to plan, develop and administer large pro
grams such as this on a nongovernmental level.
120 REFUGEE PROBLEM IN HONG KONG AND MACAO
Senator Fong. So to make a program like that effective, it would
have to be between governments ?
Mr. ANDERSON. Yes, this is definitely my opinion. An emigration
program , to beeffective, mustbe between governments.
Senator Fong. I agree with you there, because I think the program
once carried out would be a very, very big one, involving many, many
problems, and large sums of money . And it would be very difficult
for a privateagency to carry that out.
I have no further questions, Mr. Chairman .
Senator HART. This makes more important the point you were de
veloping about the difficulties of intergovernmental relations in con
nection with such a program , if, in fact, the crown colony is not a
willing partner to it.
Mr.Johnson .
Mr. JOHNSON. Mr. Chairman, I think it might be very appropriate,
in view of Senator Fong's exchange with Mr. Anderson, to insert in
the appendix of this record the Hong Kong government policy state
menton emigration from China, and offers of help from overseas.
I would like to call attention to two statements.
One is that the first way in which the outside world can help this
colony with its burdens is to
assure reasonable access to oversea markets for the limited range of goods we
can produce efficiently .
And the second statement is that :
Secondly, we have a limitless need for assistance in our construction program .
Senator Hart. The statement will be made a part of the record.
Mr. JOHNSON . Mr. Anderson, inasmuch as your work has been
predominantly in the field of immigration, and in view of the diffi
culties which have already commenced with respect to how an inter
national agency could function, do you think, for example, that the
Intergovernmental Committee for European Migration,or a similar
organization,might possibly be organized in this area such as has
been done in Europe ?
Mr. ANDERSON. Well, I think that we are going to be faced with
population pressures in that area of the world formany yearsto come,
and there is going to have to be some way of relating population to
resources . I have always felt that the Intergovernmental Committee
for European Migration has been aa highly effective unit for handling
population problems in Europe.
It would seem to me that the ideal would be for the Far Eastern
area of the world to have a similar unit. This would be the ideal.
Short of that, which would be difficult, if not impossible to initiate,
I think that presently, right now, that if ICEM were brought into the
picture, at least to facilitate movements, that this would be a very
constructive move, and certainly enable additional emigration out of
Hong Kong.
ICEM , in my opinion, is the only intergovernmental agency which
can handle this type program effectively at the present time and they
do an exceptional job. We regard very highly the work done by
ICEM.
Mr. JOHNSON. One other question presents itself in having migra
tion become a meaningful aspect of the program .
REFUGEE PROBLEM IN HONG KONG AND MACAO 121
From the information we have received to date, a substantial num
ber of people who have emigrated from mainland China to Hong Kong
have become reasonably well established either in business or occupa
tion and have reasonably decent housing,but that probably somewhere
between 350,000 and half aa million are living in pretty miserable con
ditions with a very chancy situation in the matter of employment.
Obviously, these are the people most in need of emigration opportu
nity. And yet I would assume that other governments take an attitude
very similar to our own, and that is that they want people with special
skills — at least they would prefer this type.
Can you conceive of any way in which wecan bring assistance to this
particular group, which is most in need, and which is the least firmly
resettled of the people already in Hong Kong ?
Mr. ANDERSON. Well, as in all emigration programs, this is a major
problem — the countries of immigration desire certain types of people
whichare needed for their economy. The same people are also usually
needed in the country of emigration. Therefore,, I think this is some
thing which can only be negotiated. We use the term " seeding ??
which has been used in several different ways. What I mean isthat
if a group of people are moved from an overpopulated area and suc
cessfully resettled in a new locationthrough well-planned and admin
istered 'programs, additional people will follow at a later date in
significant numbers. I think it is in thissecond unplanned movement
that you reach the people who most need help.
Mr. Johnson. Time, then , in the sense, is the essence of this sort or
movement ?
I have no further questions.
Mr. DE HAAN. I have a question or two, Mr. Chairman.
Mr. Anderson, would you have any comment with respect to the Far
East refugee program as it is now constituted ? Would you suggest
any change in the program, for example ? Is it a currently useful
program ?
Mr. ANDERSON. Well, our experience — you are speaking about the
Far Eastern program of the U.S. Government ?
Mr. DE HAAN . That is right ; the one administered by the State
Department.
Mr. ANDERSON. I am not now responsible for administering this
part of the Lutheran program , and so I can only refer back to the time
>
I was in Geneva. But I can state that in myopinion we have had a
very favorable, constructive relationship. And I think thatthe people
who administer this program, their caliber, their quality, their imag
ination , their inventiveness, is what has made it effective.We have
found them extremely helpful. They have been very good to work
with. I, myself, would have nothing but compliments .
There are problems, certainly, but in all these programs we are going
to ve problems, but not fundamental problems which prevent con
structive programing.
So, I can say thatmy relationship to the Far Eastern program has
been positive.
Negotiations and discussions have taken place for finding ways to
improve the Far Eastern program. I am not now prepared, however,
to discuss specific suggestions for improving this program .
122 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mr. DE HAAN. Are you acquainted with the educational system in
Hong Kong ?
Mr. ANDERSON . No ; this I am not.
Mr. DE HAAN. The reason I askis that you mention primary schools
in your list of possible projects. Now , ina recent report by the Hong
Kong and British authorities it is claimed that for the most part the
goal of universal primary education has been achieved in Hong Kong,
and that the stress should now be on secondary education . I was just
curious whether this was also your impression — that the goal of uni
versal primary education has been , in the main, achieved in Hong
Kong
Mr. ANDERSON. I have not brought with me the document in which
this is mentioned .
I would be hesitant to comment on this right now except to state that
we have received requests foradditional assistance to primary schools.
Mr. DE HAAN . For the building of new schools, or the maintenance
of schools already in operation ?
Mr. ANDERSON. I would have to refer to our project requests.
May I communicate this to you at a later date ?
Mr. DE HAAN. Yes.
I have a couple of general questions here,which, in your answer, you
might relate to the situation in Hong Kong.
Mr. Anderson, how would you view the position of American vol
untary agencies in the overall pattern of American foreign policy ?
What relationship is there between voluntary agenciesand Ameri
can foreign policy in Hong Kong, for example ?
Mr. ANDERSON . Well, first of all, I think there must be close coop
eration between governmental and nongovernmental programs for
the same group of people. There is an area where the interests of
Government and the interests of agencies overlap. We have referred
to these areas as "areas of mutual interest.” In these areas of mutual
interest there can be an effective working relationship between the
Government and voluntary agencies. However, if voluntary agencies
assume responsibility for that which rightly belongs to Government,
for
and if the Government seeks to use agencies as an instrument of then
eign policy and thus determine the policy of a voluntary agency,
I believe there will be problems. The key is to define " areas of com
mon interest” and then work together without compromising the
integrity and purpose of either the Government or the voluntary
agency .
Mr. DE HAAN. Do you believe thisarea of common interest at the
present time is adequately defined in Hong Kong ?
Mr. ANDERSON . Yes. I believe, however, that any refugee problem
must beprimarily a responsibility of Governmen
can be effective where the Government is limited . t,but that agencies
Agencies can oper
ate simply because a human being needs assistance, and for purely
humanitarian reasons .
Does that answer your question ?
Mr. DE HAAN. Yes, somewhat.
I have one final question.
Are you satisfied with the present governmental system of audits and
controls in the Public Law 280 program ?
REFUGEE PROBLEM IN HONG KONG AND MACAO 123
Mr. ANDERSON. As you perhaps are aware, Lutheran churches have
various agencies, and I think that is a question which somebody from
Lutheran World Relief would be more competent to answer than I.
Mr. DE HAAN. Would you be willing to submit a statement in
answer to the question !
Mr. ANDERSON. I will pass it on to Lutheran World Relief and have
them contact you .
Mr. DE HAAN. We would appreciatethat very much.
That is all the questions I have, Mr. Charmian.
Senator Hart. Again, Mr. Anderson, thank you very much .
I am sure those who read the record will understand better the scope
and extent of the Lutheran contribution in this field .
Mr. ANDERSON . Thank you.
Senator HART. Our next witness is David Lee.
Mr. Lee, we welcome you. We heard about you a couple of weeks
ago from Mrs. Chennault.
I note you have a statement here, butthere is no biography on it. I
know how reluctant everyone is, or at least everyone who is a politi
cian , to talk about himself. But if you would be good enough for the
record to indicate where you were born and any community activities
that you may now engage in — before you proceed with yourstatement.
STATEMENT OF DAVID LEE, OF CHINESE REFUGEE RELIEF
Mr. LEE . Mr. Chairman , Senator Fong, distinguished members of
the committee, my name is David Lee. I was born in China, in Pei
ping ; that is north China. I have been here in the United States
about 22 years. I am a builder now for 12 years in Washington. I
am an officer of the Chinese Refugee Relief.
Senator Hart. May I ask under what circumstances you were re
ceived in this country ? That is, was it on a visa quota number ?
Mr. LEE. Yes, I was naturalized under the displaced persons bill,
1955 .
Senator Fong. Came here originally as a student ?
Mr. LEE. I originally came as a representative of Nationalist China
during the Second World War, withChinese Defense and Supplies.
(Mr. Lee subsequently submitted biographical information as
follows :)
BIOGRAPHICAL INFORMATION OF DAVID LEE
David Lee was born in 1914, in Tientsin, China. He attended college at Nankai
University, Tientsin, and graduated from the Central Military Academy, Nan
king. In 1939, he came to the United States as a student officer and graduated
from the following schools :
Command and General Staff College, Fort Leavenworth, Kans.
Infantry School, Fort Benning, Ga .
Cavalry School, Fort Riley, Kans.
Quartermaster Motor Transport School, Camp Holabird, Md.
Armored Force School, Fort Knox, Ky.
During World War II he also served as a representative of the Ministry of
Military Affairs and Training in Chinese Defense Supplies, Washington, D.C.
In 1947, he became Director of Foreign Affairs in the Tientsin municipality .
After the Chinese National Government moved to Formosa in 1950, he served
as Deputy Chief of Staff of Armored Force Command, with the rank of colonel.
Mr. Lee married Jeanne Scott of Louisville, Ky., in 1945. He became a U.S.
citizen in 1955. Mr. and Mrs. Lee have four sons, David, 16, Kelly 14, Stephen
124 REFUGEE PROBLEM IN HONG KONG AND MACAO
10, and Wade 7. They now reside at 7030 Radnor Road, Kenwood Park, Md.
Since 1952, Mr. Lee has been a builder in Washington, D.C. and Bethesda .
Mr. LEE. I returned recently from Hong Kong where most of the
refugees are congregated . The city is beautiful,the skyline modern.
But behind the beauty is also ugliness.
I saw little shacks built with a few boards; families living in small
sampans on the river ; the pitiful faces of children in torn clothing .
In the night, thousands sleep on the sidewalks or wherever they can
find a place to lie down. These are the refugees. You have read about
them , and you have seen them on television. But to see them in the
flesh , to look into their wretched faces is a scene that cannot be shut
off like television. I cannot close my eyes and forget.
I stayed in Hong Kong almost 2 months. I talked to the refugees
to find out the trueconditions in Communist China. I was told that
conditions were bad, caused in part by flood and drought, in part by
the Communist system .
In 1959, “ the great leap forward” moved the people to the factories.
Butthereare no longer enoughrawmaterials to keep the factories in
production and famine now stalks the land. So the forward leap has
been reversed ; the factory workers have now been ordered to the
farms. Since 1959, the harvest has been bad. Now in their fourth
year of famine, the people sense the worst may be yet to come. They
have lost hope. This is the reason for the exodus in May. Many
refugees believe there will be a bigger stampede for the border before
the harvest next fall.
We in the United States require about 3,000 calories per day. The
average diet of the Chinese people, before the Communist occupation,
was about 2,300 calories per day. In 1959, their average dropped
below 1,500 calories. No one knows how many calories their meager
ration now contains, but I was told a person eats only two meals a
day. Each meal consists of a few pitiful ingredients,weighing about
two and one-half ounces. Half of this is grain ; the other half a
mixture of leaves, roots, bark, and sometimes sawdust. Meat is a
rarity; cooking oil is extremely scarce. Housewives wrap a piece of
fat in cloth and rub it over the skillet again and again - long after
it has become merely a dirty, greasy rag . Clothing is also rationed
drastically. Patches appear over patches. The average person works
12 hours daily, then isobliged to spend 2 hours in the evening attend
ing Communist indoctrination sessions. In the communes, husbands
and wives meet once a month. There is little privacy, with a curtain
separating the bunks. There is no human dignity left. Refugees
told me they came to Hong Kong seeking not only food but freedom
and dignityand decency.
Of course, hunger is not equally shared in the so -called people's
paradise. The army and party members are privileged and pam F
pered. Technical personnel and intellectuals are next ir priority.
There are revolts from below, but the army still can control them .
However, the soldiers have families and may not wish to see them
hungry. Many refugees hope that the soldiers some day will join
the revolts instead of stopping them . Of the 600 million people
living under these intolerable conditions, less than 2 percent are reg
istered Chinese Communist Party members.
REFUGEE PROBLEM IN HONG KONG AND MACAO 125
The central purpose of Chinese Refugee Relief is simply to help the
refugees. They need food, clothing and medical care . We also be
lieve it is importantto have Chinese representation in this relief work,
people who not only know Chinese customs and habits, but truly
understand the Chinese way of thinking. We would like to empha
size the resettlement phaseto accomplish the aims of our slogan“ to
help the refugee to help himself." There are no Chinese on public
relief in this country. These refugees are industrious people, who
want to be independent and regain their dignity. >
We have begun plans for an “Island of Hope," a new haven for
homeless refugees. We have several places under consideration out
side of the United States, where we feel these refugees, if given a
chance and properly organized , could build a community . The near
est one is Lan Tao Island near Hong Kong. It can be developed to
accommodate from 50,000 to 100,000refugees. It also can be used as
a way station for refugeesheading elsewhere in the free world. With
these facilities, we could take down the barbed wire wall.
We also are offering our assistance to the Chinese refugees coming
to this country. Most of them have sponsors, but many need help in
finding proper employment.
We would like to conceive of the refugees in a new light- not just as
people needing help, but people who can help us fight this cold war.
Our plans also call for a Refugee Information Center to gather all the
data and information on the refugee problem .
I would like to stress that we are all volunteers, givingfreely of our
time. We need a lot of help from dedicated people, and we need the
cooperation of other charitable agencies to accomplishour goals.
The flow of refugees has temporarily slowed down. I pray that we
do noi treat the problem lightly and assume that it is ended . The
free world must be prepared to help these people seeking freedom .
We must not be caught unprepared, therebymaking it necessary for
the free world to erect a barbed wire wall and deny these people their
right to liberty. These Chinese people have alwayslooked to Amer
ica for hope. Our help to the refugees keeps the light of freedom
burning. Only this light of hope can give those who are still enslaved
the courage to revolt against the Communist tyranny. These streams
of revolt will form a river of revolution. I believe this hope could
become a realty and is not too far away. It is the only solution to
save 600 million people from slavery. This is also the prayer of the
Hong Kong refugees.
Senator Hart. Thank you, Mr. Lee, fora very eloquent statement.
Senator Fong. Mr. Lee, could you tell us something about the
Chinese Refugee Relief Organization that you represent?
When was it formed, where is its headquarters?
Mr. LEE. We were formed June 1 this year, right after this mass
refugee exodus in the middle of May.
Senator Fong. You have only begun your work .
Mr. LEE. Yes.
Now , we have an office on K Street, 1612 K Street.
Mrs. Chenault is the president, Mr. Anderson is the secretary , my
self is treasurer .
Senator Fong. You said you have just returned from Hong Kong,
Mr. Lee. Could you tell us whether there is enough food for the peo
87544-62
126 REFUGEE PROBLEM IN HONG KONG AND MACAO
ple in Hong Kong, for those who are termed refugees ; food, clothing,
shelter ?
Mr. LEE. From my observation, I do not believe they had enough ,
because I personally saw a lot of people suffering from malnutrition.
I was told by a doctor that the most part of them may lose their eye
sight if nothingis done inthe near future.
Apparently the food did not have enough vitamins to sustain their
health .
Senator Fong. Did you make inquiry as to whether the amount of
assistance that the U.Š. Government is giving to the government of
Hong Kong would take care ofthese people sufficiently ?
Mr. LEE . I asked about assistance, and I found out we gave a lot 1
of money. There could be more. It could be handled in a better
form .
I appreciatedafter I came backand learned that a lot of work has
been done. But I think more food, more different kinds of food , and
medical supplies, should be given to them . And above all, I believe
there should be some kind of_better organized on the refugee part.
Right now, if you are in Hong Kong you will see they are all over
in different places. There could be more housing, better environment
for the refugees. After all, they have been there over 10 years, alot
of them . Some of them , after a few years, are still living in that
condition .
I think there is room for improvement.
Senator Fong. I have no further questions, Mr. Chairman.
Senator HART. Again, Mr. Lee, our thanks. And I do hope that as
the weeks go on , your organization's efforts will find a hearty public
response .
Mr. LEE . Thank you.
Senator Hart . Now we will hear from Mr. Samuel E. Yee .
STATEMENT OF SAMUEL E. YEE, CHINESE -AMERICAN CITIZENS
ALLIANCE , SAN FRANCISCO, CALIF .; ACCOMPANIED BY NGAI
HO HONG AND EARL LOUIE
Mr. YEE. Mr. Chairman , members of the subcommittee, as back
ground for my presentation, my name is Samuel E.Yee. I'have been
a practicing attorney for 16 or 17 years. For the past decade I have
been assistant city attorney for the city and countyof San Francisco.
I have had considerable activity with the Optimist Club and the
Lions Club in San Francisco, which , as all of you know, is popularly
known as the largest Chinatown outside of China. I have been presi
dent of those two organizations.
I have also been president of the golf club there, and various other
organizations. I have served as director on various community com
mittees, including two terms as director of the American Cancer Soc
iety in San Francisco, and also of the American Red Cross.
Myappearancehere today,however,is as the grand secretary of the
Chinese -American Citizens Alliance .
Senator Fong. Mr. Chairman, I can vouch for Mr. Yee. I have
known him for quite a few years now. He is a very, very respected
member of the community in San Francisco. He is widely known.
He is a very able lawyer .
REFUGEE PROBLEM IN HONG KONG AND MACAO 127
We are very happy to have you with us.
Mr. YEE.Thank you, Senator.
Senator Hart. I am very grateful to have this kind of introduction.
Mr. YEE. I regret only I am not from Hawaii, Mr. Chairman .
For the record, Mr. Chairman , I would like to introduce and read
into the record a letter I have here from theHonorable George Chris
topher, mayor of the city and county of San Francisco ..
To the Chairman and Members of the Refugee and Escapee Subcommittee of the
Senate Judiciary Committee :
Mr. Chairman and members of this subcommittee, owing to the fact that San
Francisco has the largest Chinese population of any city in the Nation , the matter
of being of assistance to Chinese escapee refugees now residing in Hong Kong,
British Colony, is a matter of particular interest to the city and county of San
Francisco. Because of budgetary limitations, charter and other statutory pro
visions, Chinese refugees must of necessity be voluntary.
Following a recent meeting which I held on this meeting with leading citizens
of the Chinese community of San Francisco, including my own Chinese Advisory
Committee, San Francisco Chinese people now are consulting further among
themselves to develop a voluntary program which might help in alleviating the
plight of refugees still in Hong Kong, and in facilitating the relocation of any
such Chinese immigrant that might come to our city.
We assure you that any Chinese refugees who may be legally admitted to the
United States will be welcomed by the San Franciscans, with our traditional
friendship for the Chinese people.
Sincerely yours,
GEORGE CHRISTOPHER , Mayor.
Senator Hart. Mr. Yee, we do thank Mayor Christopher for that
kind of reaction. It is not surprising. I am sure it is typical of the
tradition of San Francisco . But it is wonderful to have itspelled out
for us, and put into the record here.
Mr. YEE. Thank you, Mr. Chairman .
Senator Fong. Mr. Yee, when Mayor Christopher said the Chinese
refugees would be welcome in San Francisco, did he imply that the
Chinese community would be able to take care of them ?
Mr. YEE. No, he didnot imply that, but I think he was" under the
gun” in this matter, Mr. Chairman, because, as you recall, when the
New York Giants first came to San Francisco, Willy Mays had trou
ble getting accommodations, and the mayor offered him accommoda
tions . And I think the mayor certainly will stretch a point here, and
do the best he can for any refugee.
Senator Fong. In San Francisco, there are many Chinese residing
there ?
Mr. YEE . That is correct.
Senator Fong. And almost every surname has a society, and these
societies do take care of their people ?
Mr. YEE. That is correct .
Senator Fong. Help them in every way, tosee that they find employ
ment, help them in every way to keep off of the public welfare rolls ?
Mr. YEE. That is true .
Senator Fong. See that they keep their dignity and self -respect ?
Mr. YEE. That is right, Senator Fong.
For the record, as I have already indicated, I am making a state
ment here on behalf of the Chinese-American Citizens Alliance.
At the outset may we state that the Chinese -American Citizens Al
liance is an organization of American citizens of Chinese descent with
the grand lodge situated and located in San Francisco, Calif., and
128 REFUGEE PROBLEM IN HONG KONG AND MACAO
various local lodges in thecities of San Francisco , Los Angeles, Oak
land, Portland,Chicago, Salinas, Fresno, Houston, San Antonio and
Albuquerque. This organization has a long and continued history
of more than 50 years activity and work in promoting the general
welfare and status of its members and the Chinese communities
throughout the country .
In addition, the concerted and unified program of the grand lodge
and its local lodges are geared to the quickening of the spirit of Ameri
can patriotism ,to insure not only the legal rights of all Chinese
American citizens but to secure to them equal economical and political
opportunities and concurrently to continually reaffirm to them their
correlative rights, duties and obligations as such citizens.
The recentinflux of Chinese escapee-refugees from the Chinese
mainland into the British Crown Colony of Hong Kong and the re
sultant attempts andefforts by the British authorities therein to cope
with the various problems confronting them have resulted in world
wide publicity, not only as to the political ideologies involved , but as
to the present responsibilities for alleviating the economic andsocial
problems faced by these escapee-refugees presently in Hong Kong.
Various groups and organizations in the Metropolitan San Francisco
Bay Area, both Chinese and otherwise, are presently vitally interested
and concerned in rendering aid and sustenance to these unfortunate
displaced persons, many of whom are relatives and loved ones.
As partially stated in the preamble to the Senate resolution now
pending before this honorable subcommitteee, political considerations
demand that we apply the most liberal and generous doctrine and
criteria in granting refuge and asylum to these unfortunates from the
mainland of China.
In addition, any consideration or refuge you may recommend after
this hearing will be entirely consistent and in full accord with the
purpose and policy of the United States in joining with all member
nations of the United Nations in promoting the World Refugee Year
program during the period from July 1, 1959, to June 30, 1960.
A favorable recommendation on the resolution before you is called
for by this country's traditional principles of humanity, sympathy,
and interest in the welfare of other peoples of the world. The World
Refugee Year was the initial step in aworldwide effort to aid in re
solving the world refugee problem . The results under that pilot
program are both gratifying and enlightening, but much remains to
be done. Much can be accomplished here by you.
The provisions of Senate Resolution 346 will serve to focus at
tentionand interest, not only on the refugee situation now existing
in Hong Kong, but throughout the world t, hey will encourage addi
tional opportunities by both governmental, private and voluntary
agencies for the summary solution of the various facets of the refugee
situation on a purely humanitarian, moral and charitable basis, and
of prime import, with the freely expressed wishes of the displaced
refugees themselves. Your resolution as presently drafted represents
a conscientious and well-planned effort to alleviate, not only the im
mediate, but the long-termed, problems created by the Hong Kong
situation.
The opportunities for immediate and permanent refugee solutions,
through parole and voluntary repatriation, resettlement or integra
REFUGEE PROBLEM IN HONG KONG AND MACAO 129
tion, with due regard for humanitarian and moral considerations and
the wishes of the refugees themselves and the encouragement of addi
tional financial and other material contributions from other sources
engendered by your favorable action here are all clearly within the
statement of purpose behind the promotion of the recent World
Refugee Year.
Your action here will stand forth as the brilliant and shining ex
emplar for others to follow . It should bring home to all nations and
thepeoples of the world that the principlesthat motivated ourpart
in the World Refugee Year did not end there but are brought forth
again and again when the situationdemands as in the present instance .
The urgency of the situation in Hong Kong coupled with the pub
licity surrounding this hearing resulted recently in a meeting of lead
ing members of the Chinese community, the press and the mayor of
the city and county of San Francisco . As a result of that meeting,
Hon . George Christopher, chief executive officer of that great city by
the Golden Gate will presently recommend to the board of super
visors the immediate passage of a resolution memorializing the Presi
dent and Congress for favorable action on the resolution before you.
I might state parenthetically that the Chinese community have
formulated plans calling for public donation of financial aid, food,
and other material aid for the benefit of the organizations in Hong
Kong.
Atthe same time, the mayor will issue a public proclamation calling
on all the people of the city and county of San Francisco for these
donations.
However, the mayor has indicated , and I will so advise the China
town Committee, that any work or any contribution that will be made
by this committee in Chinatown will be made within legal limitation,
and will not violate the jurisdiction of any State, Federal or foreign
government.
Before any of these donations, whether it is money or other material
goods, is sent to Hong Kong, we will have proper clearance from the
authorities in Hong Kong.
Now , directing our attention to the provisions of the resolution :
This organization is in full and hearty accord with each particular
section of the same for the reasons expressedabove. However, we do
wish to comment briefly on the provisions of section 2 relativeto the
parole provisions under Public Law 86–648. As presently worded the
Tatter act provides that ,
the Attorney General shall discontinue paroling refugee -escapees pursuant to
section 1 of this act on July 1, 1962.
We strongly recommend an extension of the cutoff date for the
paroling of such refugee -escapees. Section 2 , Resolution 346, further
provides that preference in paroling refugees should be given
to family reunion cases, to those who have already applied for admission to
the United States, and to professionals, specialists and skilled workers who can
make a significant contribution to American society .
Under ordinary conditions we have no objection to the further
paroling of those refugees who ( 1 ) have already applied for admission,
and (2 ) professionals,specialists and skilled workers.
130 REFUGEE PROBLEM IN HONG KONG AND MACAO
The feeling of this organization, however, is that these two groups
have been the chief beneficiaries in the past. Due to the urgency of
the present situation and in line with recent administrative and legis
lativepolicies as they relate to the provisions of the Immigration
and Nationality Act we feel that preference at this time should be
given solely to family reunion cases and to those who are relatives of
citizens and permanent residents in this country,
Several other cogentfactors compel this preference. Paroled refu
gees with family ties in this country will be assured of temporary
financial and material aid without the danger of becoming public
charges. In addition, existence of family ties will create less security
risk problems. Assistance and job opportunities, where necessary,
will be created by relatives and friends without competition to local
job-seekers. Such refugees will find it easier to be assimilated into
the proverbial“ melting-pot of America."
Finally, many, if notmost, of these refugees have been supported
by funds sent to them by local resident citizens, friends and relatives.
Termination of this huge outgo of funds will result in great benefit to
this country in line with our recent efforts to obtain a more favorable
monetary balance.
We further recommend that after a proper security check that
documentation for qualification as a refugee be kept at a minimum ,
and that an administrative ruling be made establishing a maximum
charge or fee, where such is permitted, by those individuals or organi
zations assisting in the processing of an application on behalf of a
refugee or a sponsor for arefugee.
Now I know, members of the committee, that various solutions have
been offered to you here prior to my appearance, and probably by other
speakers after me.
Our organization realized that the refugee problem is a continuing
one . And the other speakers probably will be more cognizant of
conditions as they exist in Hong Kongat the present time. But we
do feel that your resolution at this time, 346,is a stopgap measure.
It pertains to the immediate crisis that is in Hong Kong.
We have not endeavored to advise you or make any recommenda
tion to this committee relative to any long-term program , as far as the
immigration law is concerned . We feel that, as I have already indi
cated , it is a stopgap measure to relieve the refugee problem in Hong
Kong.
However, our organization has made a continued study of the
immigration law and the naturalization law since the date of the
present act, back in 1952.
Now, we have studied the provisions of various acts introduced
in both Houses of Congress. And we find at the present time that
Senate bill 3043, I think introduced by the chairman himself here,
meets the requirements for amending, revising, and deleting certain
portions of the present Immigration Act, which has great merit.
Our committee on immigration of our organization, the grand
lodge, has concluded that this represents one of the most conscientious
efforts up to the present time. As a result of that, approximately a
month ago we had passed a resolution endorsing this particular act,
and we recommended to all our local lodges that this act be passed ,
and we have asked all the local lodges to contact their individual
REFUGEE PROBLEM IN HONG KONG AND MACAO 131
House of Representatives Members, and also their Senators, in sup
port of Senate bill 3043.
However, I realize that this is no place to consider Senate bill 3043,
although we do personally feel that this is the act that is called for,
not only as President Eisenhower did some years ago, but also as
part of President Kennedy's program for the revision of the Immi
gration Act, which certainly is needed .
I thank the members of this committee for making it possible for
me to be here today.
Senator HART. We thank you very much , Mr. Yee. Thank you
forthe added comment with respect to this basic immigration bili.
Having made your determination that the proposal is, at least on
its face, adesirable one, I congratulateyou on thepractical steps you
have now initiated to try and bring it into being.
Mr. YEE.. Thank you, Mr. Chairman.
Senator Fong. You know there are 25 cosponsors on this Immigra
tion Act, with Senator Hart ?
Mr. YEE. Yes, Senator Fong.
Senator HART. Including Senator Fong.
Senator Fong. I am quite sure that the act should not have too
much trouble in the Senate. But I think there should be a lot of
work inthe House. Maybe your lodge could help us.
Mr. YEE . Yes, we have been warned of that, and we shall make
every effort, Senator, toward the House part, too.
Senator Fong. I am very happythat you have brought to our at
tention that the parole provision of the immigration law will termi
nate - on July1 did you say ?
Mr. YEE. Yes. That is the cutoff date under the law as it is pres
ently worded. I have not heard of any extension of that date.
Senator Fong. So if that goes into effect, there will be no more
paroling of any refugees in the country. So there is only a month
more for the parole of refugees in this country.
You made a point of paroling people who have relatives in this
country ,and that is a very fine point.
I think your reasons for having the parole system extend preferen
tially tothesepeople have a lot ofmerit.
Mr. YEE . We feel this way , Senator: Since we have before us at
the present time the consideration of a resolution 346, which I have
indicated is a stopgap thing, on that basis we do not feel, and we do
not advocate, theopen -doorpolicy ofpermitting refugees to come in.
I thinkthat is developingsomething for along -rangeprogram , some
thing that might be added on to Senator Hart's bill in the Senate.
For the present time, we should only consider the admission of a
few thousand refugees at most. And that is not meant as a permanent
solution to the refugee problem in Hong Kong, but more as an ex
emplar, and as an example for other nations and other people, to
show that this country is cognizant of the condition there , and that
at least if we do not offer a permanent solution, we are atleast offer
ing a temporary one, to show that our heart is in the right place.
Senator Fong. That is a very fine place.
The American Government should take the leadership in showing
to the world that we do believe in human dignity, and we do feel that
a man who hopes for freedom and liberty should have an opportunity.
You did refer here in your statement to the fact that 1960 was
132 REFUGEE PROBLEM IN HONG KONG AND MACAO
WorldRefugee Year. Probably you did not rememberthat, although
we took the initial step in having it named as World Refugee Year.
We took the lead by words, but not by action .
Mr. YEE. I think the statistics would indicate that, too .
Senator FONG . By action , we were followers, rather than leaders.
We did saythat if other nations would take three refugees, we would
take aa fourth one.
Mr. YEE . That is right. We are supported to take 25 percent, but
we did not follow on that.
Senator Fong. Yes. And then we closed our eyes to the refugees in
the Middle East and the Far East. And Senator Hart will remember
our fight to give the Attorney General the authority to bring in 4,500
refugees from the Middle East and the Far East.
We prevailed in the Senate by an amendment to the immigration
bill that was before us,but in conference we lost that.
So World Refugee Year does not stand out as a beacon of American
leadership, but rather more as an example of followship.
Senator Hart. I shall never forget that debate on the Senate floor
when Senator Fong spoke to the conscience of the Senate and affected
emotions very strongly. That is why the bill won in the Senate. Too
bad you could not have made the same speech in the House.
Mr. Johnson ?
Mr. JOHNSON . Well, I only wanted to call attention to what Senator
Fong hasalready noted that for Public Law 86-648 to be applicable
to the refugees in Hong Kong, it would not only need an extension
beyond June 30, but would also need the amendment which Senator
Fong offered on the Senate floor 2 years ago.
Senator HART. This is not - I doubt if I can frame it as a question.
And itis a dangerousthing to put on a record, II suspect . But you
speak, I take it, for all of the Chinese-American community, young
as well as old, when you state that you have absolute confidence that
Chinese refugees would be received and welcomed in the Chinese
American community in San Francisco.
Is it your impression that the young Chinese-American feels just
as strongly about this as the man of 70 who has spent the first 30 or
40 yearsof his life on the mainland of China ?
Mr. YEE. I would say this, Mr. Chairman : The feeling for accept
ance of these refugees, without any qualification, would come gen
erally from the older Chinese and the middle-aged Chinese of the
community, and also those who arein business. I am afraid that with
the second- or third -generation Chinese, who were born and raised
here, and who are removed one or two generations from the first
Chinese that came over here, I think their interests are not so closely
allied with the people in Hong Kong, because of the fact that they
have little or no family relationshipwith those people, and by the
fact that the younger generation, the second, third, andeven the fourth
generation, are mostly those who are highly educated, working for
civil service, and who have no difficulty in finding work, and are not
cognizant of the problem that is existing in Hong Kong.
So that is whyI say it is purely withthe first and second generation,
probably, and those who do have relatives in China, who will accept
them , and not the younger generation.
Now, my organization that I represent is the leading Chinese
organization of American citizens. But they do — and they have
REFUGEE PROBLEM IN HONG KONG AND MACAO 133
worked for more than 50 years on this problem . And they are the
ones that are taking an interest.
Now , prior to my coming out here, with my colleagues Mr. Louie
and Mr. Hong, I was approached by the president of two large Chinese
corporations out there, chainstores, a market, and another organiza
tion, and they were very interested in getting these refugees over here,
because they felt that they could give an opportunity for work to
those people.
And, as a matter of fact, one of the presidents of a chainstore,
grocery, in particular, asked me whether it was possible if they can
sponsor so many refugees over here.
I wonder if that would answer your question.
Senator HART. I should explain , I am sure, why I asked it as I did.
I think it is pretty evident that across America the concern of the
younger generation in our large ethnic groups is not as sharp — the
sympathy which you find with the olderman or woman is not there.
Indeed, you get a generation or two removed, and the reaction to
immigration would suggest the fellow had been here to greet the
pilgrims. I was just wondering whether it was different in the
Chinese community .
Mr. YEE . Some people might disagree with me, but I do not think
it is any different from anyother racial group .
Thank you again, Mr. Chairman and members of the committee.
Senator HART. Thank you very much .
Next we will hear fromMr. Irving S. K. Chin.
Mr. Chin, we welcome you, sir.
STATEMENT OF IRVING SHEU KEE CHIN , ATTORNEY OF
HOLTZMANN , WISE & SHEPARD, NEW YORK , N.Y.
Mr. CHIN. Mr. Chairman, Senator Fong, and members of the com
mittee, at the outset,I would like to express my profound appreciation
to this committee for the opportunity to speak on behalf of the
Chinese community of the United States regarding the Chinese
refugee situation.
I am Irving Sheu Kee Chin, an American born inChicago , Ill.,
whose parents originally came from Canton, China. I received my
B.A. in history from Yale University. Upon graduation, I was com
missioned into the U.S. Air Force and served as an intelligence officer.
Upon separation from service, I entered Harvard Law School and
graduated in 1958. I am associated with Holtzmann, Wise & Shep
ard , a Wall Street type firm in the general practice of law.
It is with a great sense of responsibility that I undertake the im
mense task of speaking for the Chinese community on this vital issue
confronting us. My contacts with the Chinese community have been
close anddeeply-rooted through civic organizations, business associa
tions, and student groups. From my experience as president of the
Chinatown Junior Chamber of Commerce, dean of the Chinese Chris
tian Youth Conference of the East Coast, and legal counsel to the
Chinatown Trade Association of New York, I feel confident that most
of the statements contained herein represent the heartfelt convictions
of the Chinese people though I would not have the temerity to sug
gest that all the opinions are universally shared .
134 REFUGEE PROBLEM IN HONG KONG AND MACAO
CHINESE COMMUNITY REACTION
We in the Chinese community warmly endorse and feel fresh en
couragement from President Kennedy's humanitarian position .
Furthermore, we are, indeed , most grateful to this committee for its
sincere and diligent efforts to deal with this most serious problem .
All Chinese in the United States, whether born here or in China,
share a common feeling toward the Chinese refugees in Hong Kong,
to wit, sympathy mixed with grave concern crystallized into a firm
desire to help their less fortunate brethren . The flood of refugees
manifests the utter failure of the " great leap forward" and the
"communes" system as the attempt to accelerateindustrialization has
been at the tragic price of human lives. The victims of such policies,
i.e., the refugees in Hong Kong, deserve the combined aid of the U.S.
Government and the Chinese community.
The Chinese here are in universal agreement as to the necessity of
increasing the number of refugees permitted into this country by
emergency legislation . The suffering masses crying for help merit
an answering call of aid from us, not only for humanitarian reasons,
but also because it would constitute demonstrative proof to the non
Communist world and those nations presently Red enslaved, that the
United States stands ready to help her friends against Communist
oppression .
While the final decision on admission of refugees must naturally be
based on these hearings and rest on the recommendations of this com
mittee, the hope shared by all is that the number of refugees per
mitted entry be a liberal one, after properly weighing all the deter
minating factors concerned . Not only will the Chinese in the United
States and overseas watch the legislation carefully , but also all
orientals throughouttheworld. The reason is that the United States
opened her doors to the Hungarian freedom fighters after their valient
effort failed . Furthermore , the Cuban refugees who have numbered
over 100,000 thus far are still migrating to the United States fleeing
Castro's megalomaniac rule. We both warmly support the entry of
the Hungarian and Cubans and thoroughly endorse this action by
America which still remains a haven and a beacon light for the op
pressed. Similarly, we hope that the Chinese will be accorded a liberal
number for entry to destroy, once and for all, the charge from some
parts ofthe world that the U.S. relegates the orientals on a different
standard, namely, "second class people ". The soundest refutation of
these charges would be a generous number of refugees admitted. Then
the prestige of the United Statesas a truly democratic leader of the
free world would be strengthened and solidified, particularly among
the nonwhite areas of the world . Such action would prove beyond
the shadow of aa doubt that the United States displays equal treatment
to all peoples regardless of race, color or creed.
Concomitant with emergency legislation for refugee entry should
be a thorough revision and more liberal increase in the annual Chinese
immigration quota. Outof the 154,657 immigrants allowed bystatute
to enter these shores each year, only 105 are allotted to the Chinese.
Some quotas from other countries are as high as 65,361 from Great
Britain and Northern Ireland which quota at times passes unfilled.
REFUGEE PROBLEM IN HONG KONG AND MACAO 135
One discriminatory feature contained in the present immigration laws
leads to an anomalous and illogical result. A Chinese born in London,
England, as a bona fide British subjectwhen he applies for immigra
tion to the United States is placed not in the largeBritish quota,but
rather is added to the already small 105 Chinese quota, just because
he is Chinese. Essential changes remedying such inequitable results
are strongly advocated.
THE CHINESE CONTRIBUTION TO THE AMERICAN WAY OF LIFE
The Chinese people have contributed to the American way of life
by being professionally useful citizens, and by being a model for both
family structure as well as a close -knit community group . We, who
are children of two cultures, feel indebted to both. In addition we
can readily see how the people have added the best of the Chinese
culture to the "melting pot” knownas America.
Once given the advantages of education and the freedom of oppor
tunity as it exists in America, the modern Chinese integrates well into
the American society while simultaneously contributing his talents
toward American growth and progress. Thus, the professions of
medicine, law , psychiatry, teaching, engineering, and science are
staffed with Chinese who are making their markin the professional
world. Engineers of Chinese ancestry now work in perfecting elec
tronic defense projects and missiles for the protection of America as
well as being involved on the space satellite program .
The presentation of the highly coveted Nobel Prize award to two
young Chinese here in America for their contributions in the field of
physics illustrates how well the Chinese are integrating into the society
and contributing to America's progress. It should be noted that many
of the refugees on the proposed first preference quota have professional
skills and qualifications and will eventually be of service to the
community.
In the area of sociology, the strong family ties, inner control and
discipline found in the Chinese family have been repeatedly hailed
and cited for the nonexistence of juvenile delinquency. The respect
for law and order coupled with the high degree of family pride and
training are factors derived from the Chinese culture. The industri
ous family working together will also be characterized in the new
refugees.
Another proud record set by the Chinese people is the absence of a
need for public welfare or for the care of the aged where the Chinese
community is concerned .
Once again , the Confucian filial piety and respect for the elders as
practiced in the community eliminatesthe need for welfare workers.
The aged , the sick, the less fortunate — all their wants are satisfied.
Thus,whatever the needs of the new refugees may be, we anticipate
that the Chinese community will once again rise to the task of helping
our neighbors if any unforeseen exigencies should occur.
We are quite confident that there will be no public charges, no juve
nile delinquency , no unemployment problem as these new immigrant
Americans eagerly await the richestblessing of all — a new life .
136 REFUGEE PROBLEM IN HONG KONG AND MACAO
PROPOSALS FOR U.S. GOVERNMENT AID
The following suggestions are offered only as possible recommenda
tions to this committee and are made in that spirit. I fully realize
that the committee has access to facts, data and Government policies
which the public does not have available. In the final analysis, the
committee is the best judge of which proposals are feasible of accom
plishment. Itis, therefore, respectfully requested that the U.S. Gov
ernment consider the following:
1. Increase the number of refugees from Hong Kong permitted
entry into the United States by emergency powers and legislation to
a reasonable number after weighing the human needs of the refugees
versus the responsibilities of the U.S. Government toward its citizens.
2. Increase the annual immigration quota over the present 105
figure and eliminate certain discriminatory features of the present
laws.
3. Initiate through the UnitedNationsa program whereby all coun
a
tries throughout the world would relax their immigration restrictions
to permit Chinese refugees.
4. Direct assistance by the U.S. Government to the Hong Kong
refugees when the situation so demands for food, clothing, and hous
ing ; supplying transportation to refugees for resettlement or entry
into the United States.
5. Investigate thefeasibilityof resettlement of Chinese refugees on
islands over which the United Nations has Trusteeship responsibility.
6. Propose to the Inter -American Organization the desirability of
allowing more Chinese workers in, particularly in countries which
already had an active program to obtain Hong Kong labor even prior
to the recent Hong Kongheadlines.
7. Establishment of rehabilitation centers similar to the Hungarian
Reception Center which would be staffed primarily with Chinese lin
guists. These centers will serve as processing centers on entry.
8. Elimination of the requirements for citizenship in some nonsen
sitive area work where the individual would be eligible except for said
requirement.
9. Coordinating with Taiwan to see that refugees desiring to be re
settled there be given the opportunity to do so .
10. Propose through the United Nations or by multilateral agree
ments for joint effort to build additional housing units, hospitals, and
schools either in Hong Kong, if possible, or outside.
THE SUPPORTING ROLE OF THE CHINESE COMMUNITY IN THE REFUGEE
PROGRAM
The Chinese community has an important role to play in the ad
mission and adjustment of refugees. It is incumbent that we orga
nize all our skills and talents to assist these cold war victims who will
be living in a completely new environment with the expectant inci
dental problems connected thereto.
A genuine aroused interest and enthusiasm permeates the various
organizations with whom I have talked and themutual feeling is to
help the incoming refugees. We welcome the challenge and possess
the ability and capability of accomplishing our goals. In addition,
we feel that not only is there an opportunity to actively help those
REFUGEE PROBLEM IN HONG KONG AND MACAO 137
refugees in Hong Kong with material needs as food, clothing and
housing, but as equally important, to work on a nationally coordi
nated effort to help the newcomers adjust as smoothly and as quickly
as possible.
We are cooperating with the Chinese refugee relief which has the
endorsement of President Kennedy. Mrs. Claire Chennault, its
president, met with us in New York City last Sunday to discuss with
various Chinese and non- Chinese groups and individuals the possi
bility of such a coordinated effort with regional committees. We
hope to have an effective New York committee organized soon .
Speaking as the president of the Chinatown Junior Chamber of
Commerce , we anticipate working with the Chinese refugee relief
as wellas with church groups and international organizations in
( a) Fund-raising campaigns to finance projects in Hong Kong and
to be used on entering refugees.
( 6 ) Offering our bilingualcapabilities from the community in the
rehabilitation centers, guidance seminars, and vocational training
centers where interpreters may be needed .
( c) Organizing a clearinghouse for information as to work needs of
the employers and employees, immigration bottlenecks, et cetera .
It is my wish to propose that both the State and National levels of
the junior chamber of commerce adopt “HongKongRefugees” as its
community project. Thus,each Chinese family might be assisted by
the local junior chamber of commerce group whichwould take on a
. >
sustained " welcome wagon " approach. It is perhaps fitting that this
year's World Congress of the Junior Chamber ofCommerce Inter
national will be held in Hong Kong. It is to be desired that those
young men throughout the world, meeting in Hong Kongmight make
their presence felt in their respective governments to aid this cause.
These organizational plans to help the new incoming refugee to
the United States can only be accomplished after legislation is pro
mulgated from this committee. This matter, gentlemen , lies in your
capable hands. It is my earnest appeal to this committee on behalf
of the Chinese community of the United States to heed the humani
tarian call ; to show that America continues its long friendship with
the Chinese people in contradistinction to the Red regime now in
power ; to give the opportunity to those refugees to produce someday
another Albert Einstein or another Nobel Prize winning Chinese ; to
demonstrate beyond a doubt that the United States practices what it
preaches about equality by putting democracy into action ; to show that
the melting pot theory is fact, not fantasy ; and to prove that America
is still the land of opportunity .
Let these new immigrants feel the thrill of coming to the " land of
the free and the home of the brave." Let them experience the hope
and joy pounding in their breasts as they view the Statue of Liberty
and hear these immortal wordsechoingonce again :
“Give me your tired, your poor,
Your huddled masses yearning to breathe free,
The wretched refuse of your teeming shore,
Send these, the homeless, tempest-tossed to me
I lift my lamp beside the golden door.”
Gentlemen , I thank you for your kind attention.
Senator HART. Mr. Chin , thank you .
138 REFUGEE PROBLEM IN HONG KONG AND MACAO
That is a statement which, for many reasons, bears reading and re
reading by many, many people.
The record will include also the summary biography which you have
attached .
( The biographical sketch follows :)
IRVING SHEU KEE CHIN
Born : Chicago , Ill.
Yale University, B.A. History, 1953 :
1. S. Wells Williams Scholarship holder.
2. Scholar of the second rank ( Dean's list ) .
3. Undergraduate Deacon.
4. Yale Chinese Students Club .
5. Yale Glee Club .
6. Distinguished Military Student USAF ROTC.
7. Dwight Hall Christian Association ; Inter -Church Council.
8. Far Eastern Club .
USAF, Intelligence Office, 1953–55 :
1. 4602d Air Intelligence Service Squadron under Headquarters ADC
whose mission was the interrogation of enemy crewmen in the event of
enemy attack ; training in area studies, languages, Morse code, mountain
climbing, swamp survival, communications, airborne operations, and tech
nical intelligence.
2. Briefing officer to General Agee of the 9th Air Division .
3. Third prizewinner in all -service national and international essay contest
in 1954 on “ What America Means to Me ” sponsored by the Freedom Founda
tion of Valley Forge.
4. Citation from Secretary of the U.S. Air Force on this award .
Harvard Law School, 1955-58 :
1. Elected by the Class of 1958 to Class Committee.
2. Appointed by the Harvard Corporation to the Board of Freshman
Advisers of Harvard College.
3. Freshman Proctor of Haryard College.
4. Member of the Faculty Club.
5. Chairman of the Chinese Christian Youth Conference of the East
Coast.
( a ) Delegates from New York, Boston, Washington , Cleveland, Balti
more, Toronto, and Philadelphia .
( 6 ) Sponsoring Churches (New York, Washington, Boston , Phila
delphia ) .
Holtzmann, Wise & Shepard, New York , N.Y.
1. President of the Chinatown Junior Chamber of Commerce.
2. Dean of the Chinese Christian Youth Conference of the East Coast.
3. Legal Counsel to the Chinatown Trade Association of New York .
4. Member of the Chinese Lawyers Association, American Bar Associa
tion , New York County Bar Association, and New York State Bar
Association .
5. Reserve officer of USAFR .
Senator HART. I note that you were born in Illinois, but your
parents were born in China.
Mr. CHIN. That is correct.
Senator Hart. The record earlier I think may have indicated this
if not, it is a statement that might be repeated in any event, for the
understanding of the witnesses, and the others who read it.
It is quite true that the Committee on the Judiciary in the Senate
is responsible for the development and the handling of legislation
which would direct the admission of refugees, and which would
change the basic immigration laws.
This subcommittee of the Committee on the Judiciary, however,
does not have the responsibility or authority to process the legislation
itself. This is the responsibility of the Subcommittee on Immigration.
REFUGEE PROBLEM IN HONG KONG AND MACAO 139
The responsibility of this subcommittee is to advise the Senate and
the Committee on the Judiciary with respect to problems across the
world involving refugees from communism .
I say that before responding to some of the specific points that you
make in this excellent paper .
Senator Fong and I certainly agree with you that there is need for
change in the basic immigration admission policy. You have spelled
it out here.
You cite as one aspect a Chinese born in England, a bona fide
British subject, who must find his place in the long line of the tiny
Chinese quota, instead of the lineof the much larger and not totally
used British quota . This is a problem I see personally .
Just across the river from Detroit in Windsor, Ontario, a 10 - cent
bus ride from downtown Detroit-- the same rules apply to a Chinese
born there.
There are so many of these basic features about our immigration
policy that must raise a question in the minds of others elsewhere in
the world about the sincerity of our proclamation that we do measure
every man as an individual .
Your statement of it is wonderfully well done. I end up as I be
gan — I hope many, many people will read it and think about it.
Senator Fong ?
Senator FONG . Mr. Chairman , I thank you for a very, very fine,
comprehensive statement on this whole problem . I note that you did
things in reverse from President Kennedy. You went to Yale and
then you wentto Harvard. I note he went to Harvard first, and got
a degree from Yale the other day.
Relative to the problem of the Chinese born in London , who is
regarded as a Chinese and cannot come as a Britisher, that reminds
me of the bill I introduced for the wife of a Spanish professor who
was teaching in a school in Honolulu . He was of Spanish ancestry,
but his wife was of Chinese ancestry. He was allowed to come to the
school in Honolulu to teach, but his wife was not allowed to come,
because she was of Chinese ancestry. So I had to introduce a bill
here, and had her charged to theSpanish quota.. By doing that she
was allowed to come under the Spanish quota, and she finally was
admitted .
.. Now , Mr. Chin , you urge the admission ofChinese refugees, and you
feel that the 105 quota is a very , very small quota in relation to the
156,000 refugees that are admitted to the United States.
There are quite a number of people in theUnited States who will
disagree withyou as to whetherwe should allow any more Orientals
to come into the country.
Proponents of the larger immigration quota have neglected to use
one argument which I think will do much to soften opposition. The
argument that has been advanced most strongly as to why we should
limit the Oriental quota is that we do not want our mores and cus
toms, and things we are accustomed to, influenced by Oriental cul
ture. But when you look at the census of the United States, the last
census, and I had a chance to examine it, and relate the number of
Oriental people and non -Caucasian people in the United States in
relation to the population of the United States, you will find it is a
very revealing picture.
140 REFUGEE PROBLEM IN HONG KONG AND MACAO
Of the 180 million people in the United States, 10 percent, or ap
proximately 18 million, have some Negro blood. And of the non
Caucasian people, outside of the Negro people, there are approxi
mately 500,000 American Indians. And whenyou look at the figures,
as they pertain to the Japanese, Chinese, Koreans, Filipinos, Indo
nesians, and the Polynesians, and they are all grouped as non -Cauca
sians, you find a very, very revealing story, that it is such a small
infinitesimal group on the American scene. This group comprises less
than one-halfof 1 percentof the total population of the United States.
The United States has 180 millionpeople, and there are approxi
mately 800,000 to 900,000 non -Caucasians -- that is, excluding the
Negroes and excluding the American Indian . - And of this 800,000
people, approximately one-half of them are found in the State of
Hawaii; that is, the census shows there are approximately 450,000
persons of Japanese ancestry. There are approximately 237,000 of
Chinese ancestry, approximately 177,000 of Filipino ancestry, a few
of Korean, Indonesian, and East Indian ancestry, and approximately
100,000 ofPolynesian ancestry.
All these, when added together, constitute approximately one- half
of 1 percent of the whole American population.
So to those who cry that you are going to orientalize America, that
you are going to bring in a foreign culture, and foreign customs that
will be determental to our culture, you can see that the argument does
not hold any water, because this is so small.
And I think once the American people realize how insignificant
the group is, that even if you doubled the whole number of double the
number of people of non-Caucasian ancestry here, you will increase
it to only 1 percentof the whole population.
Senator Hart. These figures I did not know. They are interesting.
Senator Fong. Theyare very interesting.
Senator HART. It will serve as an alibi for the Caucasians when we
are asked why is it that we have so many juvenile delinquents and the
non -Caucasians have so few . The alibi will be, there are so very few
non -Caucasians.
Senator Fong. That isvery true.
Mr. Chin. Could I add a point here ?
It would seem your last statement is true. However, I think it
might be interesting to evaluate the percentage of juvenile delinquents
byethnic groups,to show that the Chinese really have lived an
exemplary life, because I think that the numbers that are involved that
you ever read about are probably less than an iota of 1 percent.
I would like to stress apoint Imade in the talk which is in regard to
our position vis-a - vis the worldtoday.
Here we have let in many Hungarian fighters and Cuban refugees.
I believe the Cubans have numbered about 150,000. Now, I think
no one in the United States, whether he is Caucasian or Chinese, has
any qualms about this. We are very happy that these unfortunate
Cubans have been able to get into the United States. But when it
comes to the Chinese, I think it is very important that we make thisa
liberal number because the world, which is predominantly nonwhite
as you look at the number of colored people throughout the world
really does look at the way we practice our democracy and says, “Well,
how is it that you open the door a little ways for the Chinese, whereas
REFUGEE PROBLEM IN HONG KONG AND MACAO 141
for someone that you get involved with politically and closer to home,
>
likeCuba, you allow more to come in ."
We think that equality in treatment in granting equal rights to im
migrants similar to the 14th amendment of the Constitution should
be applied inprinciple at this juncture.
Secondly, I would like to comment on the statement made by Mr.
Yee from San Francisco in reply to your question ; namely, "What is
the younger Chinese -American people's attitude toward allowing
these refugees from Hong Kong in ?”
I have had a great deal of contact with the Chinese young people.
I have worked with them in the Chinese Christian Youth Conference,
which is a religious group, nondenominational, extending throughout
the east coast of theUnited States. We have been in operation for
about 17 years. We have a sister conference in California, which
has been going for 25 years . We have delegatesfrom Toronto, Boston,
New York, Washington , Philadelphia and Cleveland. They come
from all over, so that we have a fairly fine representation there.
From our discussions with them , as well as with the many groups in
the New York area, I can state unequivocally that the young people
are just as concerned as the older people that the Hong Kong refugees
get the opportunity of freedom to come over here.
In spite of the fact that we of the younger generation who are first
born here in the United States have not lived in the old country,
nevertheless, we have, vicariously, experienced it, since our family
>
training has taught us the Chinese culture as well as the family re
sponsibility and respect to the elders. Furthermore, many of us are
conversant in Chinese and are intimately acquainted with Chinese
problems. For example, IІ speak two dialects in Chinese in addition
to English, and have a knowledge of French . So I feel that the
younger generation is attuned tothe older generation in wanting to
help the refugees. It is particularly in the province of the young
generation wherein lies the hope, I feel, for the future. The older
generation was denied the rights to education which limited their
work opportunity. I think we are in a veryunique situation where we
have had the opportunity of education and have gone into all these
various fields. We have the power now to emphasize to the American
public the feeling that many of these Chinese in the past have felt of
discriminatory practices in excluding them , of being denied equal
rights to comeinto the United States.
On this point, I think that we are equally as concerned as the first
generation, or the man who is in his seventies, as to helping these peo
ple in Hong Kong. I just want to state for the record that the young
people are as strongly for the proposals as the older generation.
Senator Fong. Let meask you another question.
In San Francisco there are quite a numberof these societies, district
societies and clan societies. I presume in New York you have the
same number of societies.
Mr. CHIN. Well, I will not compare the actual numbers in the re
spective cities.
I know there are approximately 60 family associations in New York
City. We have the Chinese Benevolent Association as well as the
Chinese Chamber of Commerce, which represents many of the business
men . We have restaurant associations, and laundry associations.
We have approximately, I would say, 25 young people's groups.
87544-62-10
142 REFUGEE PROBLEM IN HONG KONG AND MACAO
We have a Long Island circle, which contacted me just yesterday
about what they can do. I have been contacted by, I would say, at
least five or six different organizations very recently. And here I
found this universal feeling “What can we do to help the people ,
we want to either help them financially or help them adjust." And
I think this is where we in the younger group can work with the
older group in helping them , because once your committee and once the
United States does allow these refugees in, then comes the problem of
adjustment.
I think that we have this capability, in that we have the linguistic
background, including the knowledge of what problems a Chinese
faces in adjustment to America .
We think we can help them to get jobs. We are acquainted with
people who are in need for employment. The Junior Chamber of
Commerce sponsored this year a vocational guidance course running
for 3 weeks consecutively. We were able to bring in professionals
from each type of career that we could imagine. And we feel that
perhaps we can organize this across the board in every occupation,
both throughout this area and nationally, so that these people will be
able to work into the American scene much smoother than ifthey were
left to their own problems.
Senator Fong. What you are really saying is that your organiza
tion will do everything to see that they are taken careof, that they will
become good American citizens, and that they will not be public
charges.
Mr. CHIN . Yes.
As you mentioned quite well before, Senator Fong, the Chinese
associations have a splendid record in taking care of the old people,
and any problems which come up.
I know personally in New York there are cases where a husband
died and the widow was helped financially and in every other way
they could. The people are usually taken care of bythe association.
So that in practical numbers, I feel that there will be no public
charges. The United States can be assured we will do our utmost to
take care of any problems which arise .
Of course, this takes a lot of work by community-minded people.
I think that the expressions that have been made to me have indicated
that there is a universality of interest in this, and that many people
will work on these commitments.
Senator Fong. Was it not a characteristic of the old Chinese people
who first came to this country, first they would buy a cemetery to bury
their dead ?
Second, they would contribute for a clubhouse so that they could
meet, and when they get old they can live there !
Is that not characteristic of the Chinese people ?
Mr. CHIN . I suppose that is correct.
You are much older and therefore much wiser than I in that respect.
Senator Fong. You must have several Chinese cemeteries in New
York.
Mr. Chin . I think there are cemeteries in Brooklyn.
Senator Fong. Thank you.
Senator HART. Mr. Johnson ?
Mr. De Haan ?
REFUGEE PROBLEM IN HONG KONG AND MACAO 143
Mr. CHIN. I thank you.
Senator HART. Mr. Chin, we are very grateful to you.
Now, Mr. Ross I. Dixon, Shanghai Tiffin Club, New York City.
STATEMENT OF ROSS I. DIXON, PRESIDENT , SHANGHAI TIFFIN
CLUB, NEW YORK , N.Y.
Mr. Dixon . Mr. Chairman, I am Ross Dixon. I speak as a citizen
of the United States who lived in China and taught in a Chinese
school from 1943 to 1947, and as one who has maintained a deep and
active interest in China and the Chinese over the intervening years.
I am president of the Shanghai Tiffin Club, an organization composed
of over 300 Chinese and American members, nearly all of whom have
lived and worked in China. It was established in 1924. I am also
a trustee of the Yale- in- China Association which currently assists in
the support of New Asia College in Hong Kong.
Through the long dark days and years of World War II, one thing
alone sustained the Chinese in their agony. This was hope, their hope
for the future. It is around this concept, hope, this powerful, sus
taining, and activating idea that I wish to organize mybriefremarks.
This committee has heard much expert testimony delineating the
magnitude of the Chinese refugee problem which has recently been
brought into focus so forcefully in southeast Asia, particularly in
Hong Kong and to some extent, at least, similarly in Macao. The
thrust of large numbers of persons across the borders with the threat
of even vaster numbers lying behind have presented both a frighten
ing picture and have challenged the ingenuity and resources of the
free world .
The heroic efforts of the Government of Hong Kong to meet a
critical situation have been noted in the statements of several of the
representatives of the major professional organizations dealing with
refugees and their problems in the crown colony. It has been sug
gested before this committee and elsewhere that the Hong Kong au
thorities had little choice but to attempt to turn back the human tide
trying to breach their gates.
It is well known that within Hong Kong, itself, there is a con
tinuing and growing problem of staggering proportions. The testi
.
mony of the representatives of the major international refugee
agencies seems to indicate, however, that adequate supplies of food
exist and are being distributed cooperatively with crown colony au
thorities. Other items such as clothing, medical supplies, blankets,
and the like also appear to be available in sufficient quantity for all
but the most violently critical situation .
The essential problem defined by the facts presented to this com
mittee appears not to be one of the compelling need for more adequate
direct relief in terms of food, clothing, and medical supplies to sustain
human lives at the survival level. What is suggested is the need for
ạ carefully prepared long-range resettlement plan involving a co
operative international effort.
Supporting the lives of fellow human beings in their time of need
is, of course , a first necessity. But international welfare and relief
agency workers are , I am told, all too familiar with the grinding
human misery contained in refugee camps and depots which has con
144 REFUGEE PROBLEM IN HONG KONG AND MACAO
tinued for years on end until hope for the future is all but snuffed
out.
I should like to present for the consideration of this committee the
concept that almost more important than the need to sustain life,
itself, is the need to sustain hope, the hope of a better life to come.
I believe that mankind is happiest when productive and useful. If
this is true, it would appear, therefore, that the nations of the free
world might undertaketoaccept the responsibility of creating those
conditions necessary to rehabilitate and train and resettle at least a
substantial portion of those refugees which cling to the hillsides of
Hong Kong.
There is no easy solution to this refugee problem in Hong Kong and
Macao. There is no easy solution to any refugee problem when there
are large numbers of refugees fleeing from poverty, famine, or
tyranny. It is not suggested here that the countries of the free world
can absorb millions of refugees and thus solve the refugee problem .
It is suggested that a positive program can and should be undertaken
to demonstrate that free world citizens are interested in what happens
to their fellow human beings and are able to do something constructive
on their behalf. In this way hope is kept alive.
The refugee problem we are discussing cannot be considered a prob
lem for Hong Kong to solve. Nor should it be considered a problem
for the Republic of China (Taiwan ) to solve. These two areas are
already among the most highly populated in the world today. The
refugee problem is a free world problem and a free world challenge.
The United States is the leader of the free world and it provides
hope to men everywhere. I believe it can and should provide the
necessary leadership so that the entire free world can respond to a
critical problem in a constructive and positive way. This in itself
will give hope to peoples everywhere.
A fruitful avenue of approach might well be the exploration of
areas — and by this I mean world areas — where refugee farmers can
be resettled and productively used. Mutual benefits might accrue to
other areas and to refugees alike with the resettlement of fishermen
or workers where the labor supply is short. The United States, itself,
as evidence of a personal concern, could undoubtedly usefully admit a
larger number than the present immigration quota provides.
Other countries mightwell be more willingto admit Chinese refu
gees if assistance were givenwith the initial problems of resettlement
and adjustment. I should like to suggest at this point that the United
States is perhaps in a unique position to give assistance of this nature.
We have in thepublic sector and in our privateorganizations the pro
fessional personnel to give necessary guidance, should it be calledupon.
The enthusiastic response of our Nation's youth to the challenge
and opportunities provided by the Peace Corps for sustained periods
of direct service is well known. In this connection it should be noted
that there are nearly 5,000 Chinese students studying in the United
States. After careful consideration and negotiation it is possible that
a creativeand imaginative step might be taken by inviting a certain
number of these Chinese students to work with young Americans on
resettlement and its attendant problem in those areas where it would
be requested and appropriate.
REFUGEE PROBLEM IN HONG KONG AND MACAO 145
My remarks are intended to be suggestive only. I believe they may
be worthy of review by those chargedwith the responsibility of formu
lating and implementing our policies with respect to the refugee prob
lems we havebeen considering.
I should like to thank thiscommittee for the opportunity of pre
senting my views.
Senator Hart. Mr. Dixon, we do appreciate your expression of
views.
The point you suggest — that one of the basic, and really one of the
only long- term effective measures, is the easing of pressure through
resettlement across the world — the more we talk about this, and the
more people talk to us about it, the more persuasive it seems to me.
Some of these immediate, short -term , occasionally dramatic assists
are fine, but they do not get the nub of the problem by a long shot.
Mr. Dixon. Yes, sir.
Senator HART. You sketch very ably a direction about which I think
we should , as a people and as a government, have concern about.
May I inquire a little more about your own activities ?
You identify yourself in connection with your interest in China ?
Mr. Dixon. Professionally, I am a deputy director at the Institute
of International Education , which is a private organization dealing
with the exchange of students - sending Americans abroad and bring
ing foreign students to the United States.
As I say, we are a private organization, but we do hold certain
Government contracts, including administration of the Fulbright and
Smith -Mundt students, and so on .
I have all my life been connected with young people, either as a
teacher or in camp work, or in China. And I would like to perhaps
emphasize informally that I think that young people can beuseful
in this. There area great number of Chinese students in theUnited
States with whom I have considerable relationship. In a problem of
this nature, where Chinese refugees are involved, I think that they
might be enlisted, or invited, to serve in a kind of Peace Corps idea,
perhaps along with American young people, to provide the legwork
and this sort of thing.
I have here, if the chairman will permit me, an eyewitnessreport,
which I have excerpted violently, from one of our staff, Mr. Timothy
Light, who is a Yali bachelor at the New Asia College, who himself
went into the hills.
Would you like to hear a few sentences from this report ?
Senator HART. By all means. I think we would benefit by having
them made a part of the record, if there is nothing that is
embarrassing.
Mr. Dixon. No, and I think it would be very interesting.
It is by Timothy Light, a Yali bachelor at the New Asia College.
It was written in May 1962:
I have wanted to put down on paper what I have seen of the refugee flood
into Hong Kong, and now I have the time. A week ago Monday, that is,
May 13, Gregg Prince and I went to the new territories near one of the border
areas where many were coming in. Over the previous weekend, the numbers
had grown to large proportions, into the hundreds, and it was becoming a
fact, and not just rumor, that the Communist guards were for some reason not
hindering people from leaving the mainland .
146 REFUGEE PROBLEM IN HONG KONG AND MACAO
So we went to find a place to sleep and found one facing a hill that we later
learned was covered with newly escaped people, and continued to be so for
several days on end. Early in the morning we saw moving lights and fires at
either end of the ridge that crowned the hill. Soldiers had spent the night, too,
and they were getting the jump on the refugees sleeping in bushes before they
awoke.
When it was time to hurry back to town for class, we rode down in one of the
jeeps with a group of refugees being taken to the camp. They showed us their
mainland food coupons which they wanted to give the foreigners as souvenirs.
It seemed that they did not realize that they would be back in the mainland
that very evening, and were thinking that they no longer needed them.
At the bottom of the hill we got out of the jeep and with us got out a police
man, who had rather nervously told us not to take picturesat the top, and not
to meddle. Now, he being highly nervous, he asked us for our names and
addresses. He did not like his job one bit, and promised that he would not
turn the names in unless asked to by his superiors. I have heard since that on
occasion policemen who were sure they were not being watched very often helped
refugees escape through the lines, and get into the urban area. Certainly it is
no pleasant position to be in for a Chinese enforcing a British Government's
order to throw other Chinese out, and the only determined police I have seen
have been the British themselves.
There was much confusion . People were ready to do something, but no one
was sure what to do. Following different instructions, we started off in half
a dozen different directions to find small, hidden groups of people who needed
food .
The last time we went out was the date I began this letter, and then most
things were pretty much calmed down. The mainland had announced the 25th
of May was a deadline for free escaping, and there were already reports of
Communist guards shooting the people who attempted to cross . The papers
say there is still some crossing, but not much, for 4 years of forced labor have
been threatened for any who are returned now .
Senator HART. In full, I am sure the report would be very useful .
Mr. Dixon. I can make copies available to the committee by mail.
Senator Hart. We would appreciate that, yes.
Senator Fong. Mr. Dixon , I cannot agree with you more than the
two points made in your statement. It is so necessary that we keep
hope in the hearts of the refugees, and the question of resettling around
various places in the world .
That recalls to mind the other day a Mr. Ishuu, an Okinawan liaison
officer who came to my office. Hehad been working in Bolivia .
There is an intergovernmental agreement among the Okinawan
government, Bolivia , and our Government, to relocate some of the
Okinawan people who were displaced from their homes on Okinawa
because of the use of their lands by our military.
Mr. Ishuu came to my office, and he wanted to know as to what he
should do to secure the appropriation that had been made for the
resettlement of these people. He told me and he told Mr. Nishimura
also that there were approximately 6,000 Okinawans in Bolivia.
There are about a thousand Japanese in Bolivia . And that they had
been given around 500,000 hectares of land — which would be about a
million and a half acres of land to work as their resettlement area.
In this area they were putting up their homes. They were planting
rice and soybeans. And now they were looking for some help to build
a factory to extractoil from the soybeans.
It seems that this project is going along very, very well. It is an
indication what intergovernmental agreement can do in this type of
work. And I think that is what you are referring to ; is that right?
Mr. Dixon . Yes. Ithink many of the less powerful governments,
perhaps, might say, “Yes, we could, but we donot have the personnel
REFUGEE PROBLEM IN HONG KONG AND MACAO 147
to handle this kind of situation . We have the land, we have things
that need doing. And if we could get assistance in doing this, even
personnel, young people who speak Chinese” —and that sort of thing.
Senat FONG Thank you.
or .
Senator HART. Mr. Dixon, thank you .
Mr. Dixon . Thank you.
Senator Hart. I may have omitted this when Mr. Yee was on the
stand. I know he was accompanied by Mr. Hong and Mr. Louie.
Committee counsel has received a statement from Mr. Hong. May
I inquire, Mr. Hong, if you wanted to supplement this by any state
ment from the stand?
It was not our intention not to hear you. Come on up.
STATEMENT OF NGAI HO HONG , SAN FRANCISCO, CALIF.
Mr. Hong. Mr. Chairman and honorable members of the committee,
this statement, although I have not had it printed, I wish to more or
less supplement the statement of our association, the Chinese-Ameri
can Citizens Alliance.
Briefly speaking
Senator Fong. Mr. Hong, the three of you are from San Francisco ?
Mr. Hong . That is correct.
Senator HART. Is Mr. Louie still here ?
Mr. LOUIE. Yes, I am right here.
Senator HART. Would you care to come up, Mr.Louie—in case you
would like to add anything before the record closes ?
Senator Fong. Chinese -American Citizens Alliance .
Mr. LOUIE. They are the spokesmen . I know the Senator very well.
To say I know everything is impossible, but I can say this : I am the
only one from San Francisco that has served as a past president of
three groups that arefrom the oldgeneration to theyoung.
I am a past president of the Chinese Consolidated Benevolent As
sociation, a past presidentofthe Chinese Chamber of Commerce, and
a past president of the Chinese -American Citizens Alliance. And
besides that, I have been a past vice president of the Council of the
Chinese Communityof San Francisco ,and a lieutenantgovernor of the
Optimists Club, and so many other titles people say I devote all my
time to civic work, and not do any of my ownwork , which is correct.
Because my wife thinks SO, too .
So I will let the lawyers do the talking, and thanks for asking me to
come up here.
Senator HART. Thank you for coming. That maxim of letting your
lawyer do the talking is heard in other committees around here too ..
Senator Fong. Mr. Chairman, I know Mr. Louie very, very well.
He is a very respected citizen in the city of San Francisco, in fact,
in all of California. He is known as a very hard worker, and a very
civic -minded person. As he said , his wife complains he spends too
much time in civic work. I think many of his friends feel he is
devoting more time to civic work than to his private business. For
that we like to commend him.
Senator Hart. Yes. We want right now to commend all three who
traveled this great distance to express before the committee their
ideas and theiraspirations. I am sure we will be much the better for
having them.
148 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mr. Hong. Mr. Chairman, if I can indulge the committee, a little
of your time, I would like to have read into the record what I have
stated here.
Firstly, my name is NgaiHo Hong. I am a practicing attorney in
San Francisco. Presently I am serving as the vice grand president
of the Chinese-American Citizens Alliance.
As has been stated earlier, this problem created by the mass migra
tion of Chinese refugees from mainland China to Hong Kong is begin
ning to take on the aspect of an international problem .
The way in which this problem is met and the means by which the
solution is brought into beingwill have worldwide significance. In
fact, the determination as to whether the Communistic ideologies will
be building to a new high or whether it will start their long -overdue de
scent may very well be based at this turningpoint. The problem is
one of the gravest order. It is one which will merit and demand our
most sincere and concentrated effort.
According to statistics made available to me, there are about 2,000
pending cases of first preference, 813 pending cases of second prefer
ence, 569 pending cases of third preference, and 1,500 pending cases
of fourth preference, giving us à rough total of about 5,000 cases.
It is hoped that section 212 ( d ) ( 5 ) of the Immigration and Naturaliza
tion Act would be applied to these cases.
At the present time, it is my understanding that as to the nonpref
erence cases, thetotal numberamounted to about 27,241. These cases
have previously been placed in the files of the American consulate.
The people involved in these nonpreference cases are not recent es
capees from the China mainland, but they are the ones who escaped
toHong Kong and to other countries at the time of the establishment
of thecommunistic regimeon themainland .
These are the people who had early indicated their preference to
live in exile and away from Communist domination . Therefore,
greater consideration should be given for these early refugees.
Out of these 27,000 refugees, about 25,000 are now residing in Hong
Kong . It is our belief thatthese people have had the opportunity of
assimilating some degree of Western culture and could more easily
adapt themselves to our way of living if they were to be admitted to
the United States. It is also most probable that many of them have
relatives in this country who are already established .
By the enactment of suitable legislation, these 27,000 refugees
could be granted a conditional admission to this country at a gradual
rate of, say, 5,000 or 6,000 per year for a period of 5 or 6 years in
duration .
Then at the end of the second year, after date of entry, and after
their ability to assimilate and become a useful member of the com
munity has been proven , permanent resident status may then be
granted to them .
In this way, there would not be a mass migration ofa great number
of people whose ability to live by our standards and to work with us
are still an unknown factor.
It would also be less of a burden upon the relatives who may wish
to do their part in giving assistance to these displaced persons.
REFUGEE PROBLEM IN HONG KONG AND MACAO 149
The Chinese -American Citizens Alliance could serve as a clearing
house for sponsorship arrangements :
1. Our organization could assist in the collection of affidavits
of sponsorship ;
2. Could work out a format with the Immigration Service, as
to the most suitable form to use ;
3. The CACA could render the same assistance to these refu
gees that the church groups have done in the past. The churches
rendered assistance on the basis of religious affiliation. Our
group would be participating on the basis of ethnic
considerations.
It is our contentionthat pending the enactment of suitable legisla
tion for the relief of these refugees, ordinary deportation cases which
do not involve the securityof the country should be suspended .
The United States should make a strenuous representation to the
United Nations to have that organization participate in the handling
of the refugee problem .
The refugee problem should be a common problem of the free
world , and the United States should notbe made to assume it alone.
The Ú.N. Committee on Refugees should include the Hong Kong
refugees within itsscope.
Finally, the United States should not ignore or overlook the pos
sibility of utilizing some of the Pacific islands, now under U.N.
trusteeship, as possible places for resettlement of refugees.
Therefore, inconclusion, let me state that, as an organized group of
Chinese- Americans, we stand ready to do our part as American citi
zens to assist our country in meeting the present challenge and in
counteracting that whichcould very well be an indirect communistic
onslaught against the free world .
Theproblem is great, gentlemen, but it is believed that, with the
right spirit, the difficulties involved will not be insurmountable.
Again, I wish to thank the committee for your kind attention in
allowing me to come before you.
Senator HART. Mr. Hong, from everything we have heard , and
from the reputation that preceded the hearings with respect to the
Americans of Chinese descent, I think we are all convincedthat to the
extent new admissions of Chinese occur in the country, the Chinese
American community will respond. There is no doubt about that, I
think, in the minds of anybody.
Senator Fong. You make reference, Mr. Hong, to 5,000 cases in San
Francisco alone ?
Mr. Hong . These 5,000 cases I believe are throughout the country,
Senator Fong. Throughout the country. And they are now pend
ing in the consulate general in Hong Kong ?
Mr. Hong. That is correct.
Senator Fong. These are preference quotas ?
Mr. Hong. Yes.
Senator Fong. So, therefore, the sponsors of these petitions are rela
tives, living in the United States ?
Mr. Hong. That is right.
Senator Fong. And naturally they would be responsible, and they
have filed an affidavit of responsibility ?
150 REFUGEE PROBLEM IN HONG KONG AND MACAO
Mr. Hong. I think the only problem now is to get the affidavit of
sponsorship up to date.
Senator FONG. Yes.
What I am trying to find out is, these people are related , so therefore
they have somebody who will stand responsible for them
Mr. Hong. That is correct.
Senator Fong. Of the 27,000 applicants who are applying under
the refugee or under the quota status, someone has made application
for them ; is that correct ?
Mr. Hong. I believe they are similarly situated,Senator.
Senator Fong. In other words, someone in the United States has
alreadystatedthat he would be responsible for his well-being ?
Mr. Hong. I believe these are the cases where the aliens, if admitted,
do have places to go , and have families sponsor them .
Senator Fong. Thank you .
Senator HART. This concludes the witnesses scheduled to be heard
today .
We will adjourn to the call of the Chair.
I have indicated Mr. Waters of the Agency for International De
velopment will be included in our witnesses at the next hearing.
(Whereupon, at 4:45 p.m., the committee recessed, subject to the call
of the Chair.)
REFUGEE PROBLEM IN HONG KONG AND MACAO
TUESDAY, JULY 10, 1962
U.S. SENATE ,
SUBCOMMITTEE ON REFUGEES AND ESCAPEES
OF THE COMMITTEE ON THE JUDICIARY ,
Washington, D.C.
The subcommittee met, pursuant to recess, at 11:15 p.m., in room
357, Old SenateeeOffice Building, Senator Philip A. Hart (chairman of
the subcommitt ) presiding:
Present: Senators Hart ( chairman of the subcommittee) and Fong.
Also present: Curtis E. Johnson, staff director; Dale S. De Haan,
research consultant; and Earl Nishimura, minority counsel .
Senator HART. The committee will be in order.
Today we resume our hearings on the Chinese refugee problem in
Hong Kong.
Our witness is Mr. Herbert J. Waters, Assistant Administrator for
Material Resources in the Agency for International Development,
AID. Mr. Waters returned recently from Hong Kong and Taiwan,
and will testify particularly regarding the distribution ofour surplus
agricultural commodities under Public Law 480. Originally, he was
>
scheduled to be .a witness about 2 weeks ago. Circumstances prevented
this. But Senator Fong and I are glad that he could appear at this
time andcontribute his expert knowledge to the record .
Mr. Waters is an old hand around here, and we are grateful to have
him back. And without consulting Senator Humphrey , I will say I
wish he were here on a more permanent basis. He brings to us, I
think, knowledge and experience that is most useful.
Mr. Waters.
STATEMENT OF HERBERT J. WATERS, ASSISTANT ADMINISTRATOR
FOR MATERIAL RESOURCES, AGENCY FOR INTERNATIONAL
DEVELOPMENT
Mr. WATERS. Thank you, Senator Hart and Senator Fong.
I appreciate the opportunity to meet with your committee to discuss
some of the aspects of the problem in Hong Kong, which has been
aggravated by the recent influx of refugees from Red China.
Let me explain at theoutset my relationship to refugee activities.
Most of the direct U.S. Government responsibility with regard to
refugee matters rest, of course, with the Office of Refugees and Migra
tion in the Department of State. The Agency for International De
velopment cooperates closely with our refugee programs, however,
primarily through providing food supplies underPublic Law 480, thé
food -for- peace program ,and paying shipping costs of other supplies
for accredited U.S.voluntary organizations.
151
152 REFUGEE PROBLEM IN HONG KONG AND MACAO
Included among my responsibilities in AID are operations of fooď
for peace, for which agricultural commodities are provided by the
Department of Agriculture, and coordination and supervision of vol
untary aid efforts.
When the Chinese refugee problem appeared to be growing more
acute later in May, I went to Îaiwan andHongKong for a personal
inspection tour to reappraise assistance that might be required .
In Taiwan, I held discussions with U.S. AID officials, officers of
the American Embassy, officials of the Government of the Republic
of China, and representatives of voluntary relief agencies. I visited
a number of the projects being carried on by the Chinese Govern
ment and by the private voluntary agencies.
In Hong Kong, I had the opportunity to meet with officials of the
American consulate, the Hong Kong Government, and the private
voluntary relief agencies. I was also able to visit a number of proj
ects providing assistance to refugees from the China mainland .
While I did not personally get to Macao, I sent a staff aid accom
panying me to that Portuguese colony to get another firsthand report
on the present situation there .
During my discussions with officials in both Taiwan and Hong
Kong, I was joined by Seymour Janow, AID's Assistant Admin
istrator for the Far East.
I have returned considerably heartened and reassured by what is
already being done - despite the tragic circumstances in which hun
dreds of thousands of fellow human beings are still compelled to live.
I was impressed with the outstanding job done, and the financial
support which the British authorities in Hong Kong have provided
over the past decade, inattempting to cope with the complex problem
of assimilating morethan 1 million refugees approximately one
third of the total population in HongKong.
At the same time, I could not help but be impressed with, and proud
of, what the U.S. Government andthe American people through their
voluntary agencies have been doing and are continuing to do in behalf
of the overall refugee problem , in providing many kinds of assistance
to supplement the effortsof the Hong Kong Government.
Underlying any consideration of what further external assistance
can be given most of these refugees is the basic fact that overall
determinations of this kind rest with the governing authorities in
Hong Kong. While I believe it is understandable and right that
new effortsare being made to explore immigration possibilities as
one means of relieving population pressures in Hong Kong, I am
forced to conclude that themajor efforts of assistance will need to be
concentrated in Hong Kong for some time to come.
Your committee has gathered considerable evidence on this general
subject.
From earlier witnesses you are aware that the U.S. Government, in
keeping with its traditional concern for the plight of refugees, has
dispensed in excess of $ 8 million since 1953 in an effort to improve the
lot of refugees in Hong Kong.
These programs of assistance have been carried forward in co
operationwith accredited U.S. voluntary agencies including projects
in the fields of housing, medical care, vocational training, nutrition,
resettlement abroad and similar projects.
REFUGEE PROBLEM IN HONG KONG AND MACAO 153
In addition , substantial supplemental feeding programs have been
underway during the same period. These programs are made possi
ble by donations of U.S. agricultural commodities to the American
voluntary agencies under our food -for -peace program . Since 1953,
approximately $30 million worth of these commodities have been dis
tributed to refugees and other needy persons in Hong Kong. The
level ofdistribution ofthese foods during the current fiscal year is
41,844,000 pounds to 438,000 recipients. These food commodities in
cluded dry milk , flour, corn meal, Bulgur wheat, vegetable oils, beans,
and rice.
Concentration in these food distribution programs is now being
placed on school and child feeding programs- a very needy segment
of the population . This becomes more significant when it is under
stood that according to a March 1961 census 40 percent of the total
population of Hong Kong is under the age of 15 years..
Beyond the help which American voluntary agencies are giving with
U.S. Government support, these same agencies are now sending to
Hong Kong from their own private resources contributions in cash,
relief supplies and self-help items totaling roughly $3million per year.
These groups, with whom we in AID work so closely and on whose
skillful performance we rely to such a great extent, are certainly en
titled to be highly commended. I think, Mr. Chairman, it is appro
priate that the names of these agenciesbe placed in the record at this
point. They are: Aid Refugee Chinese Intellectuals, American
Friends Service Committee, CARE, Catholic Relief Services, Chris
tian Children's Fund, Church World Service, Foster Parents' Plan,
International Rescue Committee, International Social Service,
Lutheran World Relief, Mennonite Central Committee, YMCA .
Senator HART. Iam glad you did enumerate them specifically. We
have acknowledged for the record the significance of their contribu
tion. But to have this point come from you, in the light of the fact
that you saw the agencies' operations on the ground ,I think, adds
appropriate emphasis.
Mr. WATERS.Thank you, Mr. Chairman.
These agencies, representing the people of America, have been
quietly and efficiently carrying on direct aid in one form or another
to theneedy people of Hong Kong, refugee or native born. There can
no longer be any real distinction , for the influx over the years has cre
ated a totalsocial welfare problem in the crown colony.
In partnership with our Government, these voluntary agencies have
been impressively expressing the friendship and concern of the people
of the United States for the vast masses of Chinese who have aban
doned their homeland to escape Communist rule. Supplementing
their own personnel resources, money, clothing, and medicine, they
have effectively and efficiently utilized America's available agricul
tural abundance in a continuing demonstration of people -to -people
friendship that has made and is continuing to make a significant
impact.
Food statistics alone, no matter how impressive in size, cannot begin
to convey the impression one gets from personal observation.
In Hong Kong this morning, thousands of young children are
lining up at scores of distribution centers to receive a large cup of
milk and a couple of freshly baked biscuits. In thousands of small
154 REFUGEE PROBLEM IN HONG KONG AND MACAO
shacks and shanties and in the countless multistoried cement housing
blocks, thousands are sitting down to a meal of hot noodle soup or
Bulgar wheat congee. In the overcrowded tenement areas of Hong
Kong and Kowloon, thousands of eager handsarereaching for freshly
baked steamed bread, a favorite Chinese staple made from American
flour.
I have seen the looks of appreciation on faces filled with hope. As
I observed one distribution of food in Kowloon, I was surprised when
elderly women with children strapped to their backs nodded to me in
an expression of gratitude. Without possibly being able to know
who I was or why I was there, they somehow equated the foreign
American face with the source of the foods.
The sharing of our food abundance is providing amarked contrast
as to the success of American agriculture, compared to the growing
awareness among the Chinese of the failure of Communist China's
agricultural production.
Should the need arise for additional food , already existing pro
cedures are adequate to permit speedy processing of requests. Àt a
giventime, there is normally a 50- or 60-day supply of title III, Public
Law 480 food on hand in the warehouses of Hong Kong. This should
be more than sufficient to provide for emergency needs, should this
become necessary . Barring any interferences in normal shipping
there would be sufficient time toship additional foods to replenish that
borrowed from these stocks without any interference with ongoing
programs.
I want to emphasize that the Hong Kong Government is cooperat
ing fully with the food - for-peace programsby providing warehousing
and inland transportationcosts for these foods after they arrive. It
is gratifying, however, to be able to report that today no known need
for food amongst needy Chinese in Hong Kong is going unmet.
I should like to emphasize this point. In Hong Kong, we met in
dividually with representatives of each of the major American volun
tary relief agencies who have been carrying on relief work among
ar the
refugees. We asked them three questions:
( 1) Have you noticed any appreciable increase in your regular
caseload as a result of the recent new influx of refugees into Hong
Kong ?
( 2) Do you have sufficient resources on hand at the present time to
provide relief assistance to the new refugees who have entered Hong
Kong ?
( 3) If a situation should arise in the future in which additional
large numbers of refugees should enter Hong Kong, would your agency
be willing to cooperate in a large coordinated project toprovide as
sistance to them ?
In the case of each agency, the answers were the same. It was re
ported to us that the agencies had not noticed any appreciable differ
ence in their caseloads. This, they said, was due to the fact that the
refugees were remaining under cover, at the homes of relatives and
friends. The agencies reported that they expected the refugees to
emerge little by little over the next few weeks. This was already
beginning to happen over the weekend of June 9 and 10 when the
Hong Kong Government announced that refugees could come forward
to register without fear of prosecution or deportation .
REFUGEE PROBLEM IN HONG KONG AND MACAO 155
The agencies reported that they had sufficient Public Law 480 title
III food on hand to feed any of these refugees in need. It was
pointed out that an extra 10,000 or 20,000 people, when added to the
more than 400,000 already on relief rolls, would mean only a small per
cent increase .
The voluntary agencies also pledged that they stood ready, if called
upon, to take part in any future large-scale refugee relief program
which might be required - alone, in cooperation with other voluntary
agencies, or in cooperation with the U.S.Government.
It is for these reasons that I am able to say with gratification that no
known need for food amongst the Hong Kong refugee population is
going unmet.
The same situation exists at Macao , as far as food is concerned.
We have also assured Taiwan of adequate food assistance for any
refugeesthey may be able to absorb, including commodities to beused
in food - for -wages work projects in which refugees could be quickly
given jobs.
Mr. Chairman, I want to add just briefly to that statement that no
known food need is going unmet . This is to the extent of the basic
food assistance supplementing what they can obtain on their own, and
it certainly does not mean that the dietis adequate, it is not based on
nutritional standards, but noknown food need is going unmet,
Perhaps the committee will be interested in some of my observa
tions regarding attitudes of the refugees, and why they are fleeing
their home areas.
Between the staff member accompanying me and myself, we inter
viewed, through interpreters, about 100 of these refugees, sometimes
individually, and sometimes in small groups.
They all gave the same reasons for leaving the mainland — insufi
cient food, fear of even worse shortages in the future, and resentment
at having to work long hours on farms when this was not their chosei
pursuit.
This last point - rebellion against compulsory labor — seems signifi
cant . These were all essentially “city people," from around Canton,
who had been ordered to work on farm communes by the Communist
regime, in the continuing attempt to overcome food shortages. Ap
parently, this forced relocation of workers is a major factor behind
many recent disturbances leading to increased attempts to flee from
the country.
I emphasize this because it has a direct bearing on any future re
settlement ideas. These people showed littleinterest in going any.
where other than Hong Kong. They have fled farm work, to get
back into city life with which they are familiar.
From my observations, there will be little voluntary desire to emi
grate further. While by our standards circumstances under which
most of them will now have to live in Hong Kong seem extremely un
fortunate, bytheirs it is fortunate compared with what they left be
hind them . They feel that food is available in Hong Kong and a
better chance to work and earn a living than they left behind . They
are not anxious to trade their new freedom for what they feel might
be an unknown fate somewhere else in the world.
156 REFUGEE PROBLEM IN HONG KONG AND MACAO
If the chairman or members of the committee so desire, I shall be
glad to respond to questions or to furnish additional information for
the record
I do have one further comment, Mr. Chairman . Since preparing 1
this statement for your committee, your staff and others may have
been informed that the State Department Office of Refugees has made
available $ 250,000 for use in assisting the technical schools in Hong
Kong with the objective of training many more people for skilled
work, particularly in the housing field . All of us who have been on
the scene and discussed this problem feel that this particular project
will have the dual benefit of upgrading the skills of many of these
refugees to enable them to obtain employment, and also, quite frankly,
meet the need for skilled labor required for the vast housing projects.
Senator HART. I am glad you added that point; because I was going
to ask of you what one thing, in addition, of course, to the food pro
gram that you are administering, would make the most sense forthis L
country to undertake in responseto this Hong Kong situation ?
Mr. WATERS. I feel our overall purpose must be to identify our
selves and our continuing friendship with the Chinese people. This
has been a historical fact . And Hong Kong is aa showcase place where
a
this can be done with effect.. In my observations, any projectthat
touches upon young people is most effective. I' think vocational
training is very significant, or increased medical care for children,
either in clinics or children's hospitals or things
of that kind.
I mentioned the population figures. These refugees have come in
over a period of time, and thereis a whole new generation growing
up , and any attention shown in the care of youngsters is deeply ap
preciated by the parents. Watching the children come to the milk
bars and watching the school feeding programs that are going on has
convinced me that we can best display our friendship and actually
contribute to the health of future generations by taking care of the
children .
Senator HART. Senator Fong.
Senator Fong . Mr. Waters, I have been to Hong Kong, and I have
seen the distribution of these milk supplies. And I have seen the
faces of these people who received them. I have also seen the distri
bution of the various noodles that were made from corn meal plus
wheat flour. And I think the administration is doing a very fine job
over there .
Is ityour testimony thatfrom 1953 to the present approximately
$ 60 million has gone into aid for the refugees from American sources,
Government and private ?
Mr. WATERS. Food and money .
Senator Fong. $30 million in food and $8 million in money , and
about $3 million from the various agencies each year ?
Mr. WATERS. Yes.
Senator Fong. And outside of the problem of food, you stated that
there is need for a medical program for the children ?
Mr. WATERS. Yes .
Senator Fong. And education for the youngsters ?
Mr. WATERS. That is right.
CE
Senator Fong. What are we doing along that line ?
REFUGEE PROBLEM IN HONG KONG AND MACAO 157
Mr. WATERS. So far the voluntary agencies are themselves carrying
on, in connectionwith their food programs, a rather substantial distri
bution of medical supplies that have been contributed from this coun
try, and are trying toidentify and locate health cases that need to be
referred to the Hong Kong authorities. The basic direction of health
activities in the welfare field there is in the hands of the Hong Kong
Government, and it is getting to be a little more than they can cope
with .
Our voluntary agencies as well as other groups have indicated that
they do feel a need for additional help inhaving clinics or medical
supplies. I am meeting tomorrow on other subjects with the Amer
ican Council of Voluntary Agencies in New York, and I intend to
discuss with CARE representatives the role that Medico might play
in this area .
Senator Fong. Do you find the Hong Kong authorities cooperative !
Mr. WATERS. I find they were cooperative. They have a very
serious problem , we recognize, and they feel it is a question of the
allocation of the resources they have available. They are perfectly
willing to accept outside help, and are willing to have it identified as
coming from the donor. They have indicated that if we wanted to
help with a clinic or school they would be perfectly happy to designate
it by any name we chose, or have a plaque or something of that kind.
1 And this is true of any other country in the world thatwants to pro
vide some assistance there. They did feel that the assistance could
be more profitably put into permanent institutions of that type rather
than devoting funds solely to attempts to help with immigration.
Senator Fong. Now, relative to that thought, Hong Kong is pri
marily a textile producing territory, isn't it ?
* Mr. WATERS. That is right.
Senator Fong. And many of the refugees find work in textile mills
due to the fact that there have been a tremendous amount of exports
of textiles. What have you to say relative to our help along that line
in giving them a quota, for example, of the textiles that are produced
over there? There has been quite a lot of discussion as to the limita
tion of the various textilegoods that have been coming in from Hong
Kong and other parts of the world , and we have entered into an
agreement with many of the countries relative to the importation of
textiles.
Mr. WATERS. Senator, as you know , this is a worldwide problem ,
and I think it is a little out of my area of responsibility to speak with
any authority on it . It is under the direction of other areas in the
State Department, and I think the previous witnesses have touched
upon it . Although serious consideration is being given to waysthat
Hong Kong can be helped through encouragement of trade, † think
most consideration is looking in other directions than textiles.
The officials in Hong Kong did make a very strong point of this.
They felt anything the rest of the world coulddo to assist with ab
sorbing some of their production in the trade line would mean more
jobs for these people in Hong Kong. We have pledged them serious
consideration of this. Assistant Secretary Harriman has indicated
he concurs that we have to give special consideration to Hong Kong
from a trade standpoint as part of our effort to meet this problem .
875442 11
158 REFUGEE PROBLEM IN HONG KONG AND MACAO
Senator Fong. You state that most of the people that come to Hong
Kong are city people.
Mr. WATERS. Most are from city areas . A smaller number came
out of rural areas.
Senator Fong. And did most of them come with families or alone ?
Mr. WATERS. The ones I talked with did not have families with
them. These were the ones that did not come in during the period the
border was open , but fled across the border, or through Macao, and
had been 4 or5 days in the process of getting in. They includedmen
and women, and some young people inthe teenage group, but not little
children .
Senator Fong. Would you say that a substantial portion of them
came to seek a living and also be able to lend a helping hand to the
people who were back in Communist China ?
Mr. WATERS. I think that is true. I think obviously the economic
motivation was behind their move, although they either sincerely felt
that they were trying to get away from Communist rule, or thought
this was the right thing to say when they were being questioned . They
brought this into their discussions, and they objected to forced labor.
All of them seemed to have a consistent line of feeling that the food
situation, as bad as it was, was going to get worse , and they would
like to get somewhere else where foodwas more readily available.
Senator Fong. What I was trying to get at, did you feel that this
was a migration of specific individuals in a family going out so that
they could contribute something to support back home, or did you see
whole families migrating ?
Mr. WATERS. No, these were individuals within families rather than
families that I saw .
Senator FONG. I have no further questions.
Senator HART. Mr. Johnson.
Mr. Johnson . Mr. Waters,I have the Hong Kong policy statement
here of Mr. Claude Burgess, theColonial Secretary, and I think you
are familiar with it. One thing he notes is that the shortage of food
or clothing has not been a basic problem in Hong Kong, and he gen
erally seems to be fearful about the creation of a relief mentality
amongthe people. Inconnection with our food distribution program ,
is there any incompatible area here in terms of American relief activ
ities and the objectives of the Hong Kong Government.
Mr. WATERS . I don't think so. I think the Hong Kong Government
is aa little concerned over the fact that as we expand the food programs
we are expecting them to expand their contribution in storage and
the other part they play in this, and it is some drain on their resources.
When he said that there is not a food problem I believe he is thinking
of the current situation . However, without the food now being put in
it, there would be a very serious problem. I think the Hong Kong
Government would not like to see it expanded to a great extent. Their
main concern would be the drain on their own resources in handling
it .
Now , this question of relief mentality — these people are not solely
living on the relief supplies, the food being distributed, though in
many instances that is all they have until they get a start. But most
of them are looking for workand getting somework, earning at least
something in part-time work. It is a gradual process beforethey can
actually take care of themselves or get families reunited.
REFUGEE PROBLEM IN HONG KONG AND MACAO 159
In some instances, in regard to the family question you raised earlier,
Senator Fong, there is evidence of individuals coming across one at a
time and then trying to reunite as families. Many of them are search
ing for relatives that came over earlier, looking through these housing
projects that have been developed. I feel the British Government has
made aa real contribution in these housing projects, because they bring
some order out of the chaos and give you an opportunity to atleast
count heads and do some health checks and things of that kind. They
still have terribly crowded conditions, yet these people are paying for
these apartments, and their earnings are largely eaten up in paying
for this rent. Without our supplemental feeding, they would have a
very, very meager diet.
>
Mr. JOHNSON . The policy statement goes on to mention that the
Hong Kong authorities feel that the supplemental food program is
exceedingly valuable for those that are in the transitional period of
early arrival. But the other aspect of it is the frank admission now
that they will accept almost limitless assistance in their construction
program .
One thought comes to mind. In Tunisia, and perhaps other areas,
AID has supported construction programs, I believe on roads prin
cipally, in which wages were paid partially in food and kind. And it
worked out quite successfully. Do you think that there is any reason
able opportunity for application of this principle here in Hong
Kong ?
Mr. WATERS. I do. I have looked for such opportunities, because
as a general policy we are trying to encourage this shift from direct
reliefhandouts to work relief type of assistance in many areas of the
world . We are doing it very successfully in Taiwan on work proj
ects financed with food. They did explore this in Hong Kong. The
opportunities are more limited because of the limited land available.
However, we have approved, since my return, one project jointly with
CARE and the Kadvorie Foundation for a hog- raising project which
will make use of grants of our surplus corn to enable the establish
ment of cooperative hog -producing farms in the area outside of
Kowloon. That will put many of these people to work in the limited
land area available, raising hogs for the Hong Kong market to dis
place hogs now being purchased from the mainland.
To do this,however, and get the approval of the Hong Kong Gov
ernment, we did not want to develop a group of farmers in an enter
prise that was uneconomic, that was dependent solely upon the corn
we gave them and would collapse when the time came that we with
drew this assistance. So we developed a formula where corn is used
as feed capital in the project ; it is sold to the farmers at the start at a
low cost compared with what they would have to pay in the normal
market, but with a gradually increasing price until they get up to the
market price, whichthey will be able to pay as they sell their hogs.
The earnings retained out of this original capitalof donated corn
will be used in technical assistance tohelp other people enter farming,
and improve their hog production. We feel thatthis is aa work proj
ect thatwill permanently improve the lot of some 5,000, as we estimate
that 5,000 farmers will be involved in this one project. Many of the
work projects that use mass labor require available land. We have
had great success in Taiwain in reforestration and dike building and
160 REFUGEE PROBLEM IN HONG KONG AND MACAO
conservation work. But land is very limited in Hong Kong. It is a
question there of whether we can develop work projects for construc
tion of housing, still so urgently needed .
I explored that one. The Hong Kong Government did not seem
particularly interested, although we still feel there is a possibility that
laborers on housing projects could be paid partly in food wages.
Mr. Johnson . I notice the construction projects they listinclude
water supplies and roads, both of which involve a lot of common
labor. Conceivably, food for wages might be applicable in these
areas.
Mr. WATERS. Yes.
Mr. JOHNSON. Just one technical question. You already mentioned
the contribution of $ 250,000 for the construction of a technical school.
This, I understand, was made available through the Far Eastern
refugee program ,
Mr. WATERS. Yes.
Mr. JOHNSON . Is this the administrative channel under which such
a contribution would go to Hong Kong inasmuch as it is a British
colony, and we have no aid program there, so our contribution would
go through specifically on a refugee basis ?
Mr. WATERS. Yes, sir.
Mr. Johnson. I have no further questions.
Senator HART. Mr. De Haan.
Mr. DE HAAN. I have a couple of questions.
Mr. Waters, would you say that the recent refugee influx adversely
affected the public health conditions in Hong Kong ? I ask the ques
tion because we read reports of widespread disease and epidemics on
mainland China. Now last year, I believe, the cholera epidemic in
Hong Kong and the rest of Asia originated in Red China. I was won
dering if any of the epidemics and diseases on the mainland about
which we read have come into the crown colony causing new public
problemsthere ?
health
Mr. WATERS I was unable to identify any diseased condition brought
in as such . The crowded conditions, the sudden absorption of more
people with the added taxing of water supplies at a time when the
water was very low, and the troubles of water supply generally in
Hong Kong, was creating some health problems. There was a very
demic goingon
serious dysentery epidemic going on in this area . But this wasblamed
primarily on the fact that the lack ofwater supply compelled shutting
down the mains entirely in the different areas of the colony from
time to time. Any area of the city only had water 4 hours out of the
24 hours.. Lack of pressure in the mains resulted in seepage into the
mains from open sewage, andthis has complicated the health problems.
But it was more of the crowded social conditions that was creating the
health problem , rather than any disease assuch that was brought in.
Perhaps one comment on thecondition of these refugees coming in
might be of interest. This was a report to me from the man I sent
to Macao, describing the differencebetween new arrivals that had
just got in and those that had been there 5 or 6 days:
The refugees of 5 or 6 days before presented a decided contrast to those who
had arrived on the same or the day preceding. They wore clean white shirts
and new short blue pants provided by the Center, while the new arrivals were
clad in very ragged clothing. The newarrivals were of wan and pale complexion
and bad yellowish eyeballs. The underside of the eye fold had lost its color.
REFUGEE PROBLEM IN HONG KONG AND MACAO 161
Those who had spent a week or so at the Center were considerably healthier
looking in every way. Father Ruiz said that a few days of receiving proper
meals brings about a noticeable difference.
Mr. DE HAAN . May we have that report in full for the record, Mr.
Waters ?
Mr. WATERS. Yes, sir.
And I haveaа few pictures typical of the feeding at one of the relief
stations outside of Kowloon if the staff would like to have those.
( The report referred to is in the appendix of this record. )
Senator Hart. Thank you verymuch, Mr. Waters.
This concludes the committee's current series of hearing on the
problem of Chinese refugees in Hong Kong. The hearings havebeen
addressed tothe overall extent of America'sresponsibilityin the Hong
Kong situation, the adequacy and propriety of our present program
there, and other possible avenues of approach to the long-term needs of
the crown colony.
Testimony in open and executive session has been received from
appropriate officials in the Department of State. Representatives
from the voluntary agencies working in Hong Kong, and leaders from
the American -Chinese community, have also expressed their views.
This testimony, together with other information which has come to
the subcommittee's attention , has helped to make a rather compre
hensive record of the situation in Hong Kong. And, again, I thank
the witnesses for their valuable contribution. The subcommittee will
now study this record, and shortly file with the Senate a report of its
conclusions and recommendations.
Hong Kong is the West Berlin of Asia. So I trust that America's
actions for Chinese refugees will be sufficient and appropriate, and
commensurate with the political realities of the international arena.
In conclusion, I should like to quote from the concluding paragraphs
of my remarks to the Senate on June 18 :
Our response to the needs of Chinese refugees is being observed by a waiting
world. They want to see if we practice what we preach. But this waiting
world must also be made keenly aware of the reasons for the flight of the Chinese
refugees : An oppressive and intolerable political, economic, and social system .
Too often in the past our genuine humanitarian concern for refugees from com
munism has beclouded this reality, and thus blunted the persuasive ideological
force of our compassion.
But today, I trust that our informational facilities at home and abroad are
giving maximum attention to the agony of mainland China and the failure of
the Communist regime to provide even a tolerable life for its people. This,
coupled with positive efforts by the free nations to give effective asylum to
Chinese refugees, unquestionably will further the cause of freedom in Asia and
throughout the world.
If there are no further questions, thank you very much.
Mr. JOHNSON. I would like to request that the record be kept open
fora period of 2 weeks.
Senator HART. That will be done.
(Whereupon, at 12 o'clock noon, the hearing was concluded. )
APPENDIX
HONG KONG GOVERNMENT POLICY STATEMENT ON IMMIGRATION FROM CHINA AND
OFFERS OF HELP FROM OVERSEAS, JUNE 13, 1962
Mr. Claude Burgess, colonial secretary, today, June 13, outlined to Hong
Kong's legislative council the crown colony's policy on immigration from China
and recent offers of help from overseas. He was replying to a question by
Mr. C. Y. Kwan, Chinese unofficial member of the council, who asked , “ In recent
weeks Hong Kong's immigration problem has given rise to many and varied
offers of help, particularly from overseas. What is Government's policy in this
matter ?"
Mr. Burgess replied :
“ This question touches on matters of major policy and I will reply at some
length. The honorable member referred to the problem of immigration . I think
that I must first make it clear that, so far as Hong Kong is concerned, this
is not a new problem, but a problem which the people of this colony have been
living with for the last 12 years. What is new in the situation ( and this is
attested by many well-qualified observers who have visited the colony or written
about it in the last few weeks ) is that the problem is newly apparent to the
conscience of the outside world. The events of the past 2 months have opened
the eyes of the world to Hong Kong's predicament ( and to a less extent its
achievement ) in a way that the World Refugee Year, for all its high inspiration
and generous response, failed to do.
“The present situation can be analyzed only in relation to the facts and
achievements of the last 12 years. As to facts, these are clearly set out in a
concise booklet called 'A Problem of People ,' first published in 1957 and brought
up to date in 1960. This is still the classic account of the nature of the problem
and the way in which we met it and are still meeting it. A very large number
of copies of this booklet have been sold or issued free and copies are still
readily available in Hong Kong. As to our achievements in this sphere, details
of these have been reported to this council from time to time and I do not wish
to burden members with a repetition of detailed figures on this occasion .
“ As I said in this council nearly 2 months ago, we expect that in 5 years'
time nearly one -third of our present population will live in houses built from
public funds. One-third of the population is about 1 million people. One
million people is approximately the number of our immigrants in the last
12 years. Surely figures of this kind can never have been equaled by any
national unit in the world. To be more specific - 575,000 people now live in
houses that this Government has financed directly or indirectly, the great
majority in multistoried resettlement blocks each capable of housing more than
2,000 people. We have built 200 of these blocks since 1955 and they are now
going up at the rate of one multistoried block every 9 days. Our pace and
record in the educational field is no less dramatic. Government alone has
built or subsidized 180 full-sized schools of all kinds since 1955. Nowadays a new
Government school or Government -subsidized school opens in Hong Kong every
10 days. If privately owned schools are included, we get the astonishing figure
of one new school every 4 days.
" Over the last decade our annual revenue has averaged Hong Kong dollars
595m. (U.S. $ 104,125,000 ).
During those years our capital expenditure on Government and subsidized
housing has been Hong Kong dollars 475m. ( U.S. $83,125,000 ), on water sup
plies, Hong Kong dollars 356m . (U.S.$62,300,000 ) , on education , Hong Kong
dollars 131m . ( U.S.$ 22,925,000 ), on medical-health services, Hong Kong dollars
134m . ( U.S.$ 23,450,000 ) . These figures are I repeat all capital expenditure.
In Hong Kong we reckon that in any given year it costs between one-half and
one- third of capital cost to keep any medical educational or social welfare institu
tion in efficient operation . These costs ( all recurrent costs and all but a very
163
164 REFUGEE PROBLEM IN HONG KONG AND MACAO
small fraction of capital costs ) have been met from our own resources ;; and we
8.33
have been able to do all this, remarkably, without laying any burden of public
debt upon our childern. The pace is also typically our own and there is no ques
tion but that it is being maintained or improved upon . The job is, of course,
not yet finished ; and since we are entirely dependent on external trade for our
GSG
M
livelihood, it is not possible for Hong Kong itself to say whether it ever will th
be finished ; but I think both pace and achievement hitherto might well be
sufficient to deter anyone who felt inclined to criticize Hong Kong for lack of
efficient and effective humanitariani We have been faced with a certain
situation and I do not think anyone in this chamber would wish to claim credit
10
for what has been done. Indeed, I give these details only to illustrate the sort
of thing that happens when a country takes in one immigrant for every two of its
population.
"The fundamental point in our policy hitherto is that government has never fo
distinguished in any way between immigrant population and population which
has its roots here.All have the same rights and the same opportunities. Once Gi
an immigrant has been admitted he will take his turn for our resettlement housing
if he needs it ; and our schools, our clinics, and our hospitals are available to him
on precisely the same terms as apply to people who were here before he came.
“When we decided some 7 years ago ( ī say 'we decided' because it soon became
very clear there was no practical solution in emigration and the problem was
ours alone to decide upon ) , when we decided to integrate every immigrant into
>
our community we were, in effect, making a decision that put the word 'refugee'
out of our dictionary. Refugees live in camps ; they do not normally earn their
keep ; by definition they believe that home is somewhere other than where they
are now ; their well-being depends on someone else's charity ; perhaps they do 1
not expect rice or bread to come to them from the conscience of humanity but it
comes nevertheless, and it brings with it the humiliation of the zoo — at any rate 1
the bars are there, the food passes through the bars, and somewhere else is home. A
“ This we would not have . The new people became our people ; and our people
stepped aside to give them equal access to all the jobs and houses and schools
and clinics that the enterprise of our economy could provide. Every time a 1
Hong Kong born man stands in a queue for a clinic, enters his name for a sub
sidized flat or waits for a school place, he tacitly endorses that policy. Since,
in consequence, the real burden was borne by the man whose roots were here, we
have always insisted that he, too, must share in any gifts that a charitable world
bestowed on us. We always made this clear. Money and food and clothing ;
projects like schools and community centers ; technical assistance of various
kinds were offered for refugees. In each technical assistance case and on every
occasion we said that the help was welcome but that the terms were impossible
not only did we not know who the refugees were but it was against our policy to
distinguish between different elements of the population on such a basis. We
had poor and deprived and handicapped people who could be identified but we
could not and would not identify refugees in our community.
" I venture to think that public opinion overseas has found and still finds this
position very difficult to understand. And we for our part have not found it
easy to explain. Sometimes, offers are received of generous quantities of surplus
foodstuffs of a particular kind, used clothing, or money tied to projects which
have more relation perhaps to sentiments in the giving countries than to care
fully planned programs in the receiving country. In such circumstances it is
very difficult to explain , not only that charity of this kind in fact does very little
to assist us in achieving our specific aim, but that it may, in certain circumstances,
actually impede us in our progress toward that aim. Let me hasten to add that I
have never been one to 'look a gift horse in the mouth.' But I have been deeply
touched by the understanding attitude shown by many governments and vol
untary agencies during these past
weeks and by their quiet and tactful inquiries
as to whether they could help. This government has never asked for aid and
does not do so now, but if a generous world wishes to help us we have a duty to
9
respond and from expert knowledge of our own problems give a clear lead and
indicate the fields in which we believe benevolence and charity can usefully be
deployed in order to bring lasting benefit to our population and also indicate
the fields in which we believe it would be misspent, illusory or merely of
ephemeral significance. The question gives me opportunity to do precisely this.
" One of the ways in which it has been proposed, though not by us, that our
burdens should be lightened is by emigration. This Government does not
believe that in the circumstances of Hong Kong emigration schemes can make
any significant contribution toward solving the Colony's basic problem of excess
REFUGEE PROBLEM IN HONG KONG AND MACAO 165
population. The potential is so vast that we don't think it realistic to entertain
hopes of a solution along such lines. Moreover , in matters of this kind the
wishes of the people concerned are paramount. There is clear evidence that
the aim of most immigrants is to join their families, clansmen and people of
their own race, language and dialect in Hong Kong, and that they do not in many
cases desire to go further afield . Our experience of emigration schemes shows
that they are invariably, in some way or other, selective. Both these considera
tions imply that in any major emigration scheme there would inevitably be a resi
due for retention in Hong Kong - a residue which both in numbers and in kind
Hong Kong could not absorb. That is not to say that this Government is opposed
to emigration as such, far from it. People who want to leave and have anywhere
to go, are of course free to depart whenever they wish. Ample transport exists,
and many individuals would no doubt have joined relations and friends already
in other countries but for severe restrictions imposed on the entry of Chinese
from Hong Kong. We welcome such relaxation as has recently occurred in the
United States and Canada, and acknowledge the generous motives of these
Governments. This holds out to some individuals the prospect of a new life
elsewhere, in some cases reunited with their families. Emigration of this sort
involves no new principle and can be handled through channels and by procedures
already in existence ; it requires no intervention by this Government. However,
let me emphasize that, though we welcome these developments, we welcome them
because of the benefit they may bring to individuals ( I repeat, individuals ) ,
rather than because we believe they can contribute anything tangible to the basic
problems of Hong Kong. We are skeptical of emigration schemes purporting to
offer the prospect of large -scale relief ; they do not conform with the realities
of the situation, and this Government is not prepared to divert to them financial
or administrative resources, nor does it wish to encourage others to do so. We
urge that these should be devoted to meeting the problem of population in the
only place in which I believe it is realistic to suppose it will or can be met - in
Hong Kong itself.
“ Another way in which people have shown themselves willing to help is by
sending us aid in kind. This is natural. In some parts of the world there is
a surplus of food and it is understandable that those who live there should
wish to help the needy in Hong Kong from their own abundance. But, thank
God, a shortage of food or clothing has not been a basic problem in Hong Kong.
Food programs of certain special kinds and related to certain special circum
stances have been of great assistance to us ; they have helped people in transi
tional periods and in the cases of real hardship that exist ; but present programs,
notably that mounted by the U.S. Government, suffice for those purposes. Gen
erally speaking the burden placed upon us by the immigrant population is
not eased by the concept that relief can in any way mitigate the basic needs
of active men. 'Relief mentality' is insidious and breeds a special form of
economic servitude. The basic need of every man is economic freedom and
viability, and that is precisely what we aim to provide for every member of our
hugecommunity.
" Nothing could wreck both our plans and our achievements more rapidly or
certainly than a further flood of immigrants. I explained the reasons for this in
reply to a question in this council on April 18. We have accepted our heavy
burden and are willing to bear it, but we cannot allow that burden to be intoler
ably increased, and we must be allowed to pursue our policy of containment in
the immigration sphere. If the conscience of the world is stirred by the needs
of people who are affected by that policy , then it would seem that the needs of
those people can only be met elsewhere than in Hong Kong.
“Much of the foregoing is negative. We refuse to identify or segregate any
element of the population as refugee ; our problems are not such as can be solved
by emigration ; we have at present no additional need for relief in kind ; and
our policy of containing illegal immigration must continue. On the other hand,
perhaps for the fir time, the public and governments of friendly countries are
stirred by our problems, and I am glad to take the opportunity of this question
to indicate not only where assistance is not needed but where it is needed .
“ Not from choice but from necessity we are a manufacturing and commercial
community . Our only real asset is the industriousness, efficiency and strong
instinct for survival of our people. Hong Kong's rapid industrialization is the
key solution to its problem of people . Indeed, the prosperity of Hong Kong's
industry provides the reason why the world does not have an additional million
refugees on its conscience at this moment; and its continuing prosperity provides
87544-62 -12
166 REFUGEE PROBLEM IN HONG KONG AND MACAO
the best hope, perhaps the only hope that the needs of our expanding population
can be met in a constructive and efficient way. As this Council is well aware
we have recently had to accept certain serious restrictions on our external
trade. The grim possibility of still further restrictions lies ahead. The first
way in which the outside world can help this colony with its burdens is to assure
reasonable access to oversea markets for the limited range of goods we can
produce efficiently. This Government can see no better way in which effective
help, in a form in which it is most needed , can be given to people about whose
future the outside world has shown so much concern . These people's welfare
depends upon our trade and, if our trade can be maintained with adequate scope
for growth and without artificial restrictions, there is every chance that we can
complete a task we first set ourselves 12 years ago. But the stifling of our exports
would, sooner rather than later, transform this dynamic community into an
international pauper and would thus create conditions in which massive and
wholesale relief would be the only remedy.
“ Secondly we have limitless need of assistance in our construction program .
Hitherto it has been the Hong Kong taxpayer with occasional but marginal
assistance from friendly governmentsor charitable and voluntary agencies who
has borne the cost of all the vast infrastructure that is needed to support new
immigrants and our excess population generally, and I refer particularly to water
supply, roads, housing, hospitals , clinics, community centers and primary and
secondary schools. A very valuable contribution would be to pay for any item
or items on our construction list. If any governments are interested, I invite
them to get into touch with us direct through official channels and this Gov
ernment will gratefully explain the range of items on which financial assistance
would be welcome. An interdepartmental committee is being constituted imme
diately in order to deal with any such offers of assistance received from abroad,
and also give guidance to voluntary agencies already operating here who may
seek advice as to the fields in which they can most usefully contribute either
service, expertise or money.
“A situation of this kind inevitably calls to mind the classic words of Sir
Winston Churchill : 'Give us the tools and we will finish the job.' For us in
Hong Kong today, the necessary tools are the opportunity to trade freely, a rea
sonable access to world markets, and a vigorous capital program. Given these,
we too will finish the job .”
OFFICE OF THE ATTORNEY GENERAL,
Washington , D.C., July 17, 1962.
Hon . PHILIP A. HART,
U.S. Senate, Washington, D.C.
DEAR SENATOR HART : I have your letter of July 10, 1962, advising that the
Subcommittee on Refugees and Escapees is now completing its records on the
hearings on Chinese refugees in Hong Kong. You request current information
on the progress of the present program for the admission of Chinese refugees
in the United States as parolees.
In response to your request, please be advised as follows :
1. On May 23, 1962, President John F. Kennedy declared that several
thousand Chinese refugees in Hong Kong would be paroled into the United
States.
2. To date, 633 have been authorized to come to the United States. Of
that number, 207 have actually been admitted. (As of Sept. 5, 1962, the
figures were as follows: 1,410 persons authorized ; 675 persons admitted .)
3. It is not possible at this time to fix a definite date when completion
of the program should be effected . We believe the rate of admissions will
increase, however, as those approved for parole status — who until recently
had no reason to expect they would ever be reached for admission - are able
to make the necessary arrangements for moving to this country.
4. In my opinion the provisions contained in section 212 ( d ) (5 ) of the
Immigration and Nationality Act contain sufficient authority to effect the
parole of these refugees.
As you know , the President stated at his press conference on May 23, 1962,
that steps would be taken by the U.S. Government to bring into this country
Chinese refugees in Hong Kong whose applications for immigrant visas to come
to the United States to join relatives have been pending. These persons had
little hope of early entry into the United States because of a lack of visa num
bers under the small quota allocated to Chinese. Section 212 ( d ) ( 5 ) of the
REFUGEE PROBLEM IN HONG KONG AND MACAO 167
Immigration and Nationality Act contains authority for the initiation of ad
ministrative procedures to carry out the objectives announced by the President.
To date, I am not aware of any problems that have developed to seriously inter
fere with our efforts to do this which would call for legislative remedy. How
ever , I appreciate very much your interest in the program, and the opportunity
you have given me to report to you on the Hong Kong parolee program .
Sincerely, ROBERT F. KENNEDY, Attorney General.
DEPARTMENT OF STATE ,
Washington , D.C. , August 20, 1962 .
Hon. PHILIP A. HART,
U.S. Senate .
DEAR SENATOR HART : I refer to your letter of July 25, 1962, requesting a report
of the refugee situation in the Portugese Province of Macau and a description of
Far East refugee program ( FERP ) activities.
Since the occupation of mainland China in 1949 by the Communists, Macau,
like Hong Kong, has seen an almost continuous influx of refugees escaping from
Communist tyranny. The refugee problem in Macau has, however, taken a differ
ent aspect from that in Hong Kong. This difference is due in part to basic dif
ferences between the two areas and, until recently , to the relatively easy move
ment of people between the two oversea possessions.
The British Colony of Hong Kong is roughly 20 times larger in area and its
population of about 3.3 million is 16 times that of Macau. The annual Govern
ment revenue for Macau in 1960 was U.S.$ 4 million, while that of Hong Kong for
the same year was U.S.$151 million . Hong Kong depends for its wealth on its
industries and commerce, while Macau has little of either and derives most of its
income from import duties and the granting of concession licenses for gold im
portation and gambling. In view of its larger size, Hong Kong has offered far
greater opportunities to refugees than Macau. This, combined with easy move
ment between the two areas, has resulted in a very high proportion of the
refugees entering Macau moving onward in a short time to Hong Kong. Indica
tive of this is the fact that, while the population of Hong Kong has mushroomed
since 1949 and includes over 1 million refugees, that of Macau has remained
fairly static during the same period. Since Hong Kong was the final destination
of almost all refugees fleeing Red China, the FERP relief efforts were centered
there until 1960 .
Late in 1959 attention was focused on Macau because of the condition of
those refugees remaining there instead of proceeding to Hong Kong. These
were blind refugees, who, after fleeing or being forced to leave Communist China,
were found to be living in great squalor and want on the streets of Macau. In
1960 the American Foundation for Overseas Blind ( AFOB ) , with the help of
FERP funds, began the construction of a center for blind refugees where they
could be registered , cared for, and given vocational training and classes in braille.
At about the same time as the AFOB commenced its program in Macau , the
National Catholic Welfare Conference ( NCWC ) started several projects for the
relief of other refugees remaining in Macau. These included a nursery and
clinic for refugee children, a small housing project of 80 cottages and, with funds
made available by the U.S. contribution to World Refugee Year, a community
center where vocational training and other services could be made available to
refugees. In addition to these projects, American surplus agricultural com
modities were distributed in Macau by the NCWC and CARE. During 1960
FERP contracts in the amount of $ 96,000 were signed for relief projects in
Macau. This amounted to nearly 10 percent of the total FERP program for
that year .
In 1961, increasingly strict controls were placed by the British on travel from
Macau, culminating in September with the virtual halting of legal immigration
to Hong Kong from Macau. The great influx of refugees into Hong Kong from
China in May of 1962 was matched by a proportionate increase for Macau. With
the halting of legal migration to Hong Kong, this influx has led to an unprece
dented increase in the number of refugees staying in Macau. Illegal smuggling
of refugees from Macau to Hong Kong, carried on with great energy and no small
profit by small -boat owners in both colonies, has maintained to a considerable
extent the flow of refugees from Macau to Hong Kong and, while causing con
cern to the British authorities, has helped to keep the situation in Macaufrom
becoming more serious than it otherwise might have been .
168 REFUGEE PROBLEM IN HONG KONG AND MACAO
During 1961 and through June 30, 1962, FERP signed contracts amounting to
$ 92,000 for refugee relief projects in Macau. These projects were carried on by
the AFOB, CARE, and the NCWC. Except for the AFOB project, which was
an extension of the care and training program for the blind, these projects con
sisted of the construction of facilities for the conversion of surplus U.S. agricul.
tural commodities into finished or semifinished form. These facilities have
enabled the agencies to furnish hot meals to schoolchildren or to provide them
with milk and biscuits at lunchtime and, as in Hong Kong, has made more ac
ceptable to Chinese such items as cornmeal, wheat flour and powdered milk
which are unfamiliar to them and if delivered in dry bulk form are liable to be
sold for animal feed rather than be consumed by its recipients.
During 1961 , most of the projects begun in the previous year were completed.
As the number of refugees jammed into Macau has increased, the Department,
as well as the Portuguese authorities in both Macau and Lisbon, has given
greater attention to expanding relief activities to meet the needs of the new
refugees. Tentative plans, contingent upon the availability of funds, anticipate
that approximately $300,000 of FERP funds will be spent on relief projects in
Macau during fiscal year 1963. These funds will be used to provide housing,
clinics, and vocational training schools in projects similar to those which are now
being carried on in Hong Kong.
Refugee relief efforts undertaken in Macau face the difficulty of working in
an area of economic depression with limited job opportunities . Refugees cared
for in Macau have far less hope of obtaining satisfactory resettlement than their
counterparts in Hong Kong. In addition, there is practically no reserve of funds
available in Macau, either from Government or private sources to carry on and
pay the operational costsof projects started by voluntary agencies with or without
FERP support. There is also very little physical space to expand housing or
industry to accommodate the increased refugee population . Under the circum
stances, refugee relief projects in Macau must be undertaken with care to insure
that, upon completion, sufficient local funds are available to continue them.
Otherwise, without adequate funds, such projects would require a continuous
outside subsidy or collapse for lack of money to keep them going. Very careful
planning and coordination between all interested groups is necessary to insure
that the maximum benefit is obtained from refugee assistance projects undertaken
in Macau .
In connection with your request for information concerning present Portuguese
relief plans for Macau, the Department has been informed that a plan for Macau
was presented at a meeting of the United Nations High Commissioner for Ref
ugees in November 1961, by Mrs. Fernanda Ivens Ferraz Jardim, president of
the Caritas Portuguese. This plan called for the development of a refugee
assistance program in the Ilha Verde area of Macau. The details for this plan
are as follows :
Basic facts : Number
Number of refugees to be accommodated .. 30, 000
Number of dwelling units to be built---- 6, 145
Square
meters
Total area 230, 000
Area for construction .. 70, 600
Area for access roads.- 78 , 800
Green area ( gardens and parks ) . 80, 600
Area for housing- 142, 000
Area for schools, medical posts, etc---- 88,000
Principal buildings in total area :
Pavilion for admission of refugees 7,000
Housing --- 142, 000
Medical assistance posts- 17, 000
Pavilion for incurable patients . 7,000
Educational institutions--- 20, 000
All other, including nursery, church, etc ---- 37, 000
Total--- 230,000
Density of population : 1,730 persons per hectare.
Concentration : Only in housing areas.
Housing density : 432 dwelling units per hectare.
REFUGEE PROBLEM IN HONG KONG AND MACAO 169
Density of construction in housing area : 5.7 m / mº.
Covered area : 30.7 percent of total area of urban zone.
Covered area of housing zone : 36 percent of total area of housing zone. Escudos
Estimated cost :
Pavilion for admission of refugees .. 2, 482, 400
Housing 298, 350, 000
Medical assistance posts_ 1 , 545 , 000
Pavilion for incurable patients .. 4, 627,000
Primary schools .-- 3, 289, 000
Secondary schools ---- 2, 992, 400
Nursery 1 , 191 , 000
Religious institutions 5, 526, 200
Industry ( handicrafts ) 9, 901, 700
Total.--- 329, 904, 700
( Approximately $11.5 million ; 28.60 escudos equals U.S. $1. )
It has been pointed out that the project is so planned that it can be built unit
by unit depending on the funds available . It is understood that the UNHCR
is to use his good offices to obtain contributions for the project. Possible U.S.
participation in the project is still under review and further information on
the details and scope of the project is being sought. As noted earlier, the
ability of Macau to support refugee relief projects is limited and reservations
have been expressed on the feasibility of carrying out a program of this size in
this Portuguese Province.
In reply to your second question, the Far East refugee program has expended
$ 2,029,315 for refugee relief projects in Hong Kong and Macau during fiscal years
1961 and 1962 . These funds have been spent in the following manner :
Percent
Local integration ( includes student assistance ) . 46
Medical programs 21
Conversion of food ---- 11
Resettlement assistance abroad. 22
As in 1954 at its inception, the FERP has tried to reach and assist selected
individuals , assistance to whom would have a real impact on the refugee com
munity and to assist projects providing badly needed services to large numbers,
of refugees. In selecting refugees for individual assistance, a large proportion
of FERP aid has gone to students and for medical care of the sick . The first
group has been so selected because of the known veneration which learning is
held by Chinese and because among this group will be found the future leaders
of the community. Equally important, general education and vocational train
ing provide a solid basis for the successful resettlement of the refugee who does
not go further abroad and adds to his value to the community.
A detailed breakdown of the FERP for ogram 1962 is as follows :
Fiscal year 1962, Hong Kong
1. Contribution to Hong Kong Government--- $ 250,000
A. Hong Kong Technical School.. 250,000
2. Voluntary agency construction program---- 180,000
A. Evangelical Free Church of America ( EVFCA ) Hospital--- 85,000
B. NCWC Social Center .. 20,000
C. Seventh -day Adventist Welfare Service Hospital.-- 75 , 000
3. Surplus commodity conversion .- 90,000
4. Assistance to selected individuals and groups--- 494, 000
A. Resettlement abroad ( includes orphans) 237,000
B. Local integration .- 129,000
O. Care and maintenance_ 148, 000
Total.- 1, 034 , 000
1
170 REFUGEE PROBLEM IN HONG KONG AND MACAO
It is now estimated that during this year the influx of refugees into Hong Kong
will reach 125,000 compared with an average of 40,000 for previous years . This
influx, coming as it does when Hong Kong is struggling to find solutions to the
problems caused by earlier arrivals of refugees, has caused the Hong Kong Gov.
ernment for the first time to ask for assistance in its program to construct
housing, schools, and hospitals for the expanding community. In view of these
developments, the Department, pending the availability of funds, has planned
a considerable expansion of the FERP program for fiscal year 1963. While com
plete details of this program have yet to be worked out, it is planned to more tha
double the present program. Approximately 44 percent of the funds will be
used for construction projects in the fields mentioned above in projects under
taken either by the Hong Kong Government or by private voluntary agencies.
As mentioned before, approximately $ 300,000 will be used for projects in Macau .
Greater emphasis will be placed on vocational training and other local in
tegration projects, while somewhat less emphasis will be put on resettlement
abroad due to the limited opportunities for Chinese refugees to find immigration
opportunities outside Hong Kong. These two activities will account for the
remainder of the FERP program with the exception of approximately $ 100,000
to be used for surplus commodity conversion .
In this expanded program the United States will be responding to the increased
gravity of the refugee situation in Hong Kong and Macau , and will be aiding the
community where the largest number of refugees from communism are to be
found today.
If you would like any further information , please let me know .
Sincerely yours,
RICHARD R. BROWN ,
Director, Office of Refugee and Migration Affairs.
U.S. GOVERNMENT,
June 18, 1962.
Memoranum to : Mr. Herbert J.Waters, AA/MR.
From : Martin J. Forman, MR / ARD.
Subject : Macao visit.
On June 9, I visited Macao to hold discussions with Portuguese authorities
and volagency personnel on the use of Public Law 480 , title III foods in pro
viding relief to Chinese refugees. I met separately with Senor L. B. da Costa
Martins, director of public assistance, and with Dr. Antonio Nolasco Da Silva,
director of information and tourism . The former office is responsible for gen
eral public assistance, while the latter office is concerned with refugee matters.
Dr. Nolasco told me that the recent influx of refugees was not a big problem.
This was a purely routine matter for Macao, he said , and they were able to cope
with it. He referred to their " delicate" position vis-a -vis Communist China
and said that the Macao Government would " resist” any effort to have a publi
cized program of refugee assistance there by the U.S. Government. He reported
that the voluntary agencies were carrying out projects as was the Macao
Government, and he expected these to be sufficient to handle any needs which
might arise.
I told him we were aware of their efforts and that we had no intention of
doing anything to embarrass them or provide any additional problems. I told
him that the American people had a very genuine humane concern for these refu
gees and that we were ready to provide food , if it were needed , to feed any
hungry refugees. Further, I said we would be pleased to do this without any
publicity or fuss. I pointed out that the food could be given through volun
tary agencies or through the Portuguese Government, if a request were made
by them. I indicated that it was not our intention to interfere with their
policies or activities in this area , but that we stood ready to help, if called upon .
Dr. Nolasco thanked me and said he appreciated the sincerity of the offer and
would call on the United States for help if it were needed . He repeated , how
ever, that they did not need such help at this time and were able to care for all
of the new refugees.
I also visited the Reverend Luis Ruiz, S.J. , who bears the title of chaplain
of refugees in Macao. Father Ruiz is an apparently able, enthusiastic, and
dedicated priest who is in charge of a refugee reception center. ( This project
is financed by an FERP project through Catholic Relief Services ) . During the
day, a number of activities were in progress there. In one area , the resident
poor were lined up and showing ration cards to receive their regular allocation
REFUGEE PROBLEM IN HONG KONG AND MACAO 171
of title III foods. In another area , recent refugees were receiving food and a
small packet of necessities such as towel, toothbrush, toothpaste, etc. Out in
the yard, a group of refugees were busily engaged in weaving stripped bamboo
baskets under a contract given to the center by a local businessman to permit
short-term employment of refugees. Other recent arrivals were being interviewed
or were receiving instructions. The refugees of 5 or 6 days before presented
a decided contrast to those who had arrived on the same or the day preceding.
They wore clean white shirts and new short blue pants provided by the center
while the new arrivals were clad in very ragged clothing. The new arrivals
were of wan and pale complexion and had yellowish eyeballs. The underside
of the eyefold had lost its color. Those who had spent a week or so at the center
were considerably healthier looking in every way. Father Ruiz said that a
few days of receiving proper meals brings about a noticeable difference.
I had the opportunity to talk through an interpreter to about 100 of these
refugees, sometimes individually and sometimes in small groups. They all gave
the same reasons for leaving the mainland - insufficient food , fear of even worse
shortages in the future, and resentment at having to work long hours on farms
when this was not their chosen pursuit. Did they want to go to America ? “ No, "
they answered cautiously. In some cases, a puzzled look led to further question
ing and revealed that they didn't know where America was. Did they want
to go to Taiwan ? The answer was always " No." They all wanted to go to
Hong Kong or to stay with friends in Macau. In Hong Kong, there was food
and a chance to work and earn a living. If things got better, they would like
to return to their homes in China .
There were also several former Indonesian oversea Chinese among the group .
They spoke English ( and interestingly, no Cantonese, which meant they could
not communicate with most of the other refugees ) . They sought me out and
asked if I could help them get to Brazil. They said they had “ listened to Radio
Peiping" and had chosen to go to the mainland from Indonesia several months
before . They had been disillusioned, however, by conditions there, and they
were especially upset by having to work very hard and long in the fields.
They said they would like to return to Indonesia but that since they doubted
if this were possible, they would like to go to Brazil.
The reception center was providing food for the refugees for a 10 -day period.
They were also providing simple shelter. After 10 days, the Nationalist Chinese
consulate was giving each person 20 Macao dollars about ( U.S. $ 3.50 ) which
permitted them to move on to Hong Kong.
The refugees were also being given medical help at the center and at a nearby
hospital run by Catholic sisters.
I asked Father Ruiz what his needs were. He reported that they were re
ceiving sufficient quantities of title III foods without interruption. What was
needed was money to build additional housing for newly arrived refugees
also, although they were receiving a great many donations of samples ofmedi
cines, there was a need for antibiotics and painkillers. The samples all had
to be tediously sorted, after which it was often discovered that there were many
drugs unfamiliar to them. There was also an oversupply of many special drugs
which were of limited use.
One other need was mentioned by Father Ruiz . There has for a long time
been competition between the Communists and non-Communists for the minds
of the young children. He reported that as of the present time, there were 16,000
children in Communist- run schools, 6,000 in Kuomintang - run schools, and
26,000 in Catholic-run schools, which were also anti-Communist. He urged
that one or two additional schools be built to accommodate the children of the
new refugees and to attract some now going to Communist schools .
At the suggestion of Mr. Fraleigh of USAID / Taiwan , I called on Mr. Ch'ai
Tzu - Yin, the Nationalist representative in Macao, to discuss the matter of mi
gration of Chinese refugees from Macao to Taiwan. Mr. Ch'ai confirmed that
he had received instructions from Taipei, authorizing him to send to Taiwan
up to 500 refugees who had left the mainland of China after April 4. He stated,
however, that very few had come to the consulate and very few wanted to go
to Taiwan. I asked him the approximate number, and he replied, “ very few ."
Upon my pressing and asking whether the total would be 10, 20, 100, 200, 500,
or 1,000, he laughed and said the number would be considerably less than 100.
( From the way in which he replied to the question of numbers, it was my im .
pression that he expected no movement of a group of refugees as such but
172 REFUGEE PROBLEM IN HONG KONG AND MACAO
that there might be a family here and there willing to go to Taiwan, and the
total number of such persons would be minimal. )
He said there is no administrative problem in getting refugees to Taiwan if
they want to go, but he repeated that very few want to go. He said most refu
gees are Cantonese and have friends or relatives in Hong Kong or Macao.
What possible migrants there were would come from the lesser numbers of
refugees from Kaingsi, Chekiang, Shanghai, andsuchplaces.
He also told me that he had just sent to Ku Chen-Kang in Taipei a com
plete report on the Macao situation ( including the small numbers of potential
migrants to Taiwan ) . He said that as far as he was concerned there is nothing
that needs to be done now. The Portuguese authorities told him they had
everything under control and if they needed help, they would call on him.
PERMANENT MISSION OF THE REPUBLIC OF CHINA
TO THE UNITED NATIONS,
New York, N.Y., May 24 , 1962 .
Mr. D. S. DE HAAN ,
Research Consultant, Subcommittee on Refugees and Escapees, Committee on
the Judiciary, U.S. Senate, Washington , D.C.
DEAR MR. DE HAAN : With reference to your letter of May 18, 1962, regarding
the refugee situation in Hong Kong, I take pleasure in informing you that on
May 21, 1962, the Chinese Government made the following announcement :
1. The Government of the Republic of China is prepared to receive new
Chinese refugees fleeing to Hong Kong from the mainland according to
their wishes, any difficulties notwithstanding ;
2. The Government decided to contribute 1,000 tons of rice to Hong Kong
Government for emergency relief of such refugees ;
3. The Government is anxious to cooperate with other governments and
with international relief organizations in assisting these refugees ;
4. The Government will appropriate funds for relief and resettlement of
the said refugees ;
5. The Government has established a special committee to plan and
direct the execution of these decisions.
I may add that ( 1 ) with regard to point 1, there is no limit, set as to the
number of refugees to be admitted to Taiwan, ( 2 ) the Chinese Government is
grateful to the Hong Kong Government for having received Chinese refugees
during the past decade, and hopes that for humanitarian reasons the Hong
Kong Government would not return the new refugees to the mainland, and
would cooperate with the Chinese Government or its relief agencies in finding
suitable solutions to this urgent problem .
While still awaiting relevant materials and documents from home, I can
inform you that according to information available to my Government, since
early April this year more than 30,000 Chinese refugees were returned to the
mainland against their will by the Hong Kong authorities.
From January 1951 to December 1961, the Chinese Government received
71,213 Chinese refugees and escapees to settle in Taiwan from 19 countries and
territories, including 17,552 from Hong Kong.
Yours sincerely ,
P. Y. Tsao, Technical Counselor.
REFUGEE REPORT BY CLAUDE H. CURTIS, JULY 17, 1962
The word refugee often brings to mind only starving, ill clad, and destitute
people. However , in recent months we have become increasingly aware of the
fact that people from all stratas of society have found themselves rightfully
classified as refugees.
Since the great modern day exodus from Red China into Hong Kong, the word
refugee is on the lips of nearly everyone in the free world. Prior to this dra
matic exodus only a small segment of the free world's people was concerned with
the refugee problem.
There are four different areas in which this problem exists as far as the
Chinese are concerned ; mainland China, Macao, Hong Kong and Taiwan. We
should be interested in all classes of refugees * * * professional and otherwise.
My interest has resulted in a recent trip to this area at my own expense. There
REFUGEE PROBLEM IN HONG KONG AND MACAO 173
is much misunderstanding and misinformation concerning the present day
refugee problem and I am trying to correct this in as far as it is humanly pos
sible for one person to do so . The tide in the China theater has turned in favor
of the West. The Chinese Communist leaders are not now thinking in terms of
an offensive program but rather of a defensive one. The people are in a state
of unrest and dissatisfaction due to a lack of employment, lack of food , and the
brutal treatment received at the hands of the leaders. The masses of China are
starving to death and the situation there is explosive.
Refugees from Red China are received and, comparatively speaking, well
provided for in Macao. The Portuguese Government is not asking for outside
help but is quietly providing for these people in a most humane way. Farmers
are even given small plots of land on which to grow their own household
vegetables. Relief is administered by the priests and is in the form of powdered
milk , rice, clothing, and other daily necessities.
On Taiwan the Nationalist Government has recently announced that the
mainland China refugees are welcome there in unlimited numbers and without
prior screening for security. The Nationalist Government, through the Free
China Relief Association, will provide free transportation from Hong Kong to
Taiwan. It will also provide housing, food, clothing, medical attention, a com
plete program of rehabilitation, pocket money and educational opportunities.
This is a most sincere and genuine offer on the part of the Nationalists.
It was my privilege to greet the first refugees who availed themselves of this
wonderful opportunity. They had courageously fled from the iron - fisted rule of
communism and gone to Taiwan to lend a hand in the cause of righteousness by
helping the Nationalists in their efforts to destroy this demoniac system.
This leaves us with the Hong Kong problem . This is a tangled affair if their
ever was one. Hong Kong has diplomatic relations with Peiping. Consequently
diplomatic channels are closed to the Nationalists who now have no official
medium of direct communication with the British.
I tried, and I believe with some degree of success, to approach the Hong Kong
situation with an open mind. Out of fairness to the British let me point out that
they have carried the burden of this refugee problem unsung and practically
unnoticed all these years.
My primary area of refugee interest lies in Taiwan itself. Shortly after
my arrival there I met with the top Free China Relief Association officials,
with Mme. Chiang Kai- shek and the Minister of Foreign Affairs Shen Chang
huan. I was briefed on what the Nationalists were willing and able to do for
all refugees who migrated from mainland China to Taiwan. This is over and
above the relief the Nationalists have endeavored to give the people on the
mainland and in Hong Kong. The Nationalist officials have stated without
any reservations that they will accept unlimited numbers of their fellow coun
trymen from the mainland. They have further stated that they would not
screen them before bringing them to Taiwan and every effort would be made
to rehabilitate the people. The Chinese themselves in Taiwan have launched
a tremendous relief program and Mme. Chiang's close associates among the lead
ing women of China have raised or pledged to raise about 334 million Taiwan
dollars for this purpose.
It was my good fortune to arrive there just a few days before the first
group of refugees out of the great exodus landed at Keelung. I was honored
with an invitation to be a member of the official reception party which was
headed up by top officials of the Free China Relief Association. At the pier
on the morning of their arrival the atmosphere was electrified with anticipa
tion and hope.
When refugees crossing the Red border into Hong Kong first began reporting
famine conditions we were told that these were not real refugees but rather
Nationalist agents who had been planted for propaganda purposes. Later
when they came in greater numbers we were told that they were refugees but
that they had been brainwashed by the Nationalists before the press got to
them . At Keelung I met them as they came off the ship. Sixty-two of them
from five different provinces ranged in age from 11 to 71. They were fresh from
the mainland , not planted agents , not brainwashed dupes as some would like to
have us think but rather courageous, though starving, men and women who
wanted more than anything that priceless commodity cherished by us, freedom .
The dock area was jammed with hundreds of shouting cheering people, healthy,
well fed Nationalists . The tears flowed freely as in two or three instances
parts of families were reunited and in several instances old friendships reestab
lished .
174 REFUGEE PROBLEM IN HONG KONG AND MACAO
I spent that day with the refugees. The officials wanted to take me to my
hotel for rest. They thoughtfully wanted me to have a good dinner. My eyes
were rested and my heart refreshed as I realized that the Republic of China
was then and there in my very presence beating the Communists on a third
front. They had already beaten them psychologically and economically and now
morally. Free China opened her arms wide to people who had been slaves only
days before. I did just what I wanted most to do that day. I spent my time
with the refugees. I ate their first Free China dinner with them. I met and
interviewed about 50 of the 62. My heart was so overcome with joy that right
there on the spot I gave away everything I had with me except the clothes that
a decent society required me to wear back to my hotel.
One boy, 11 years of age, whom I adopted as my foster son , completely won my
heart. His physical appearance reminded me so much of my own Philip back
in Hawaii that I gave Chen Chen -cheng that English name. He seemed so
apprehensive in the crowd at the dock and I wept as I thought of my own boy
under similar circumstances if we don't defeat communism . He had heard “hate
America ” all his life and I wondered how long since anyone had shown the boy
any love. We were so drawn to each other and it was so apparent that nearly 40
press photographers took pictures for almost 10 minutes.
Philip could not swim so his two older brothers and nine other people made
a raft of old belts and towed him as they swam for half an hour across the
river. His mother did not escape although his father did. The father waited in
Hong Kong in hopes the mother would make her way there and sent the boys
to Taiwan when he heard that the ship was sailing. Incidentally this was
Philip's birthday and when I learned this fact I was doubly glad that I had
given him my wrist watch as a token of American friendship .
A 17-year-old boy had made his way from west China to Canton . He traveled
most of the way by train but part of the way on foot. When I asked him what
he wanted to do now that he was in free China he stated that he wanted to
complete his education ( the desire expressed by many of the youth ) and then
he began to cry. When I asked him why the tears he said that he had missed
so much schooling he realized that if he went back to school the boys in his
class would make fun of him because he was so much bigger than they. I
assured him that he was now among friends. I asked this boy why he had left
home. He said that recently his auntie had passed away and because of famine
conditions a man had retrieved her body the day after it had been buried , had
taken it to a pig slaughter house, had it cut up and peddled the human flesh
as pork. The thief was arrested and during his trial pled for a long jail sen
tence so he " would at least have something to eat."
From the interviews with some 50 people I learned the following facts.
Starvation is prevalent in Red China. It is common practice in west China to sell
new-born babies for human consumption. The grain that is being imported into
China from foreign countries is being stockpiled in west China in preparation
for the needs of the Communist leaders when they find it necessary to establish
a second line of defense there. This, coupled with the fact that industries are
being moved from the coast and the south China border, indicates the fea of
a possible invasion launched by the Nationalists. Whenever the authorities hold
trials of military personnelon charges of being counterrevolutionary many truck
loads of Army officers are brought to the long -drawn -out trialsas a warning to
beware. These trials are frequently held in an area where the residents are
restless. High ranking Communist military officers are dissatisfied and wish
to rebel.
It is the unrest and rebellion that led to some subordinate commanders in
south China relaxing the border restrictions. When the thing got out of hand
and unfavorable international reaction set in, Mao made a trip south and the
border was closed. Refugees are still illegally drifting into Macao at the rate
of about 50 a day and into Hong Kong at the rate of about 200 a day. A con
servative estimate is that 85 percent of the mainland people would openly
welcome a return of President Chiang as their leader.
The question has been raised . How were these 62 refugees selected. They
were not selected, they themselves elected to join the Nationalist cause. I met
with First Lieutenant Liu at the Chinese Air Force headquarters. He is the
young man who flew the MIG from Red China to Taiwan because he wanted to
defect to free China . These refugees manifested their choice in the same manner
only on a less dramatic scale .
I saw these people provided with fresh clean clothes, bedding, and funds, at
a clean comfortable reception center. I saw them stretch out on the fresh green
REFUGEE PROBLEM IN HONG KONG AND MACAO 175
grass and relax in the beautiful garden of that center. They were being proc
essed when I left Taiwan a few days ago and will be helped by case workers
to find gainful employment or to continue their education or given an opportunity
to serve China as a member of her armed forces .
Following this delightful experience I went to Hong Kong. Here the at
mosphere is entirely different. Here the propogandists have done their dirty
work.
I feel that the British have done a splendid job in handling the refugee
problem in past years. I feel that they are justified in asking why the free
world is only now becoming interested in this problem . I feel that they sin
cerely believe they have reached the saturation point economically. My guess
is that their fear of Peiping if they openly aid and abet the Nationalist cause
in their desire to receive the refugees is what accounts for the horrible pictures
of brutality on the border which I have in my possession. These inhuman
brutal pictures clearly show their activities as they forcibly drove the refugees
back over the border. Perhaps I am wrong. hope so and I also hope that
before God the British can live with a clear conscience and justify their ac
tions. However, the real brutality and inhumanity may be charged up to
the immigration restrictions which our own United States has imposed upon the
Chinese.
In Hong Kong it was said , and no serious effort has been made to deny *
these allegations, that the Nationalists would only take 35,000 refugees *
that they would insist on screening them in Hong Kong and would dump se
curity risks on the crown colony and that there was a June 30 deadline on
accepting the 35,000. Nothing could be farther from the truth. I endeavored
in the short time I was in Hong Kong to make the true facts as widely known
as possible . What isn't generally known in Hong Kong or any other part of
the free world for that matter is that the Nationalists now have nine ships at
the southern tip of Taiwan ready to sail to Hong Kong on a moment's notice to
receive on board any and all refugees who want free passage to Taiwan. Nor
is it known that when the Nationalist relief officials wanted to visit Hong Kong
to view the problem close up, the British would not issue them visas. What
isn't known to the public is that the Chinese have made what appears to be a
very practical suggestion for a partial solution to the problem and theauthor
ities in Hong Kong, up to the date of my departure, had not extended to the
Nationalists the common courtesy of an acknowledgment of their communi
cations. This is hard, in fact impossible for anyone to justify. No matter
what line of reasoning they may take to justify the brutalities they cannot suc
cessfully justify this before the free world . The British are not in a very good
position to complain about the Berlin wall which the Communists erected
as long as they maintain the barbed wire fence which they erected in Hong
Kong.
I have dedicated myself to the task of helping these refugees who make their
way to Taiwan . My efforts will be only a drop in the bucket, but if we get
enough drops we will eventually have a full bucket. The refugees are like human
tennis balls being batted back and forth across the border. In a tennis game it
is only the ball that gets hit, and in this bit of international intrigue it is the
refugees who suffer . The free world unintentionally or otherwise has put to
death thousands of Chinese who were willing to come to our side and escape to
freedom . This is partly due to the fact that we were not prepared for such an
event. What is heartbreaking is the fact that 3 months have gone by, and we
are still not prepared if there should be a repeat performance. The British
would be left with no alternative but to repeat their acts of brutality.
I shall endeavor to help free China help the refugees by ( 1 ) making the truth
known. I began doing this before I left Asia by making the trip to Hong Kong
* * * visiting Chinese, relief agency heads, and American missionaries and also
by broadcasting to the mainland three times from Taipei. In Russia the people
are living behind the Iron Curtain . In Cuba behind the sugar curtain , on main
land China behind the bamboo curtain , and in the United States behind the
newspaper curtain. I am endeavoring to penetrate this curtain by writing,
speaking on the radio, making TV appearances and speaking to visible audiences.
( 2 ) By collecting and sending relief supplies and funds to Taiwan . ( 3 ) By
using every lawful means to put pressure on our Government to assist the Na
tionalists in their desire to help the poor enslaved mainland people. This can
be done in a number of ways : ( a ) Remove all the " ifs" from President Ken
nedy's statement about the offshore islands. ( b ) Remove the restraints from
176 REFUGEE PROBLEM IN HONG KONG AND MACAO
President Chiang Kai-shek * * * make a material investment in his efforts to
regain the mainland now while the Reds are thinking and acting defensively.
( c) Remove the ceiling on Chinese immigration quotas. ( d ) Falling short of
these measures prevail with the Hong Kong authorities to allow the establish
ment of an international organization that would provide a reception center
near the Red border in the free territories to which these refugees could flee.
* * * and from there be guaranteed safe conduct passage from the center to the
Nationalist ships in the Hong Kong harbor. At the same time guaranteeing the
British Government that the operation would be of no expense to them and
that no refugees would be rejected by the Nationalists and left on their door
step. I am confident that nearly every relief agency and every American mis
sionary in Hong Kong and Taiwan would wholeheartedly support such a move.
The importation of half a million refugees to Taiwan would certainly increase
the possibilities of a quick invasion victory on the mainland.
When leaving Quemoy I told the soldiers of the Kinmen Defense Command
that if they would continue to fight for those islands there I would continue to
fight for them here. This is in a sense a recruiting campaign for just that pur
pose. I would like to see this migration result in half a million young menI
being added to the excellent fighting force of free China. * * * Why ? Because
want war ? No. Because I don't want war.
LETTER TO CURTIS JOHNSON FROM RHOADS MURPHEY , EDITOR, THE JOURNAL
OF ASIAN STUDIES
JUNE 6 , 1962.
Mr. CURTIS JOHNSON ,
Subcommittee on Refugees and Escapees,
Senate Office Building, Washington , D.C.
DEAR MR. JOHNSON : In connection with hearings being held on the refugee
situation in Hong Kong, I would like to offer the following remarks :
The recent explosion of destitute refugees into Hong Kong is by no means
an isolated instance. Their plight is merely a sample of the very widespread
suffering of the people of China as a whole as the result of a series of difficulties
which have been experienced over the past 2 or 3 years andwhich are likely to
continue to leavetotal food supplies seriously inadequate. Without wishing to
speculate on the Chinese Government's reasons for permitting this recent outflow
of refugees into Hong Kong, it is clear that this flow can be and is being con .
trolled by the mainland government and that its appearance and/or disappear.
ance do not necessarily indicate either a worsening or improvement in the total
food situation in China proper. The problem should indeed be regarded as
chronic, at least in terms of the next few years, and it is difficult for any con
cerned person to ignore its existence or to ignor whatever opportunities present
themselves for outside assistance. The arrival of refugees in Hong Kong is
one such opportunity, and I would hope that the U.S. Government will use every
means take advantage of it. Only part of the reason for such action is
humanitarian concern . Certainly the example of the United States providing
assistance for refugees from any totalitarian system carries with it political
and moral implications which are obvious. It is also conceivable that a signifi
cant gesture of this sort from the U.S. Government might provide a useful pre
liminary experience for a further larger scale effort to help to relieve human
suffering in China proper , hopefully under conditions which would be welcome
to the United States as providing a means of influence development in China in
a desirable direction.
China's total isolation from the United States has certainly been one of the
most regrettableaspects of the last 12 years. It is obviously a serious loss and
source of misunderstanding on the part of the Chinese people, and we have also
suffered from it. The present accute situation of the refugees may provide a
means for beginning to break down that isolation in a way entirely in keeping
with U.S. objectives.
Yours sincerely ,
RHOADS MURPHEY.
REFUGEE PROBLEM IN HONG KONG AND MACAO 177
THE CHINESE COMMUNIST REFUGEE PROBLEM : AN ANALYSIS
( By Peter S. H. Tang, executive director, Research Institute on the Sino -Soviet
bloc, Boston and Washington, D.C. , professor of government, Boston College )
Natural calamities and erroneous policy decisions, particularly throughout the
period 1958–62, constitute the essential background for analyzing the nature
and consequences of the recent mass exodus of refugees from the Chinese Com
munist mainland. Flood and drought, shortages of seeds and fertilizers, and
the inadequate and ineffectual irrigation network have resulted in insufficient
agricultural production. But, superimposed upon these unfavorable natural
conditions, and of equal if not paramount effect, has been the manmade calamity
traceable to decisions of the Communist Party in China ( CPC ) dating from
1958. The great leap forward, launched in 1958, called for the intensification
of industrialization at the expense of agriculture. In the party's efforts to
speedily catch up with or surpass Great Britain in production of certain essential
commodities, faulty policies occasioned economic dislocation. Perhaps the most
notable instance was that of the so-called backyard furnace campaign, which
the CPC itself was later to acknowledge as impractical and wasteful. Com
munalization, as originally conceived, proved disastrous. As unrest persisted
and mounted, and agricultural production quotas were unmet, the CPC again
indicated a reversal of original policies by making greater concessions to the
individual, through the abandonment of such radical measures as the forced
separation of families, and the transfer of the commune's greater authority to
its brigades and team units.
The calamitous effect on the mainland's agricultural production has had a
chain reaction. As agricultural production failed to meet needs, industrial
enterprises lacked essential raw materials. Thus, the regime was forced to
order the personnel of idle factories back to the countryside. Although this re
shuffling was conducted in the name of strengthening the agricultural front,
in reality, it probably caused more problems than it solved . Resettlement
involves retraining, places an enormous burden on the transportation network,
and threatens increased demands on the already strained supply and distribution
system. To the members of the individual commune, this relocation appeared
as a further drain on already inadequate rations. In the spring of 1962, as
grain supplies from the previous harvest were fast being exhausted and the new
crop had just been sown, peasant unrest reached a new peak .
It would be erroneous, however, to judge the recent refugee influx chiefly as
the product of mounting mass unrest. Rather, the sudden and dramatic in
crease in the number of refugees reaching Hong Kong and Macao must be
regarded as emanating from a policy decision on the part of the Chinese Com
munist regime. Certain fundamental CPC policies are involved. The Peking
regime has consistently and conscientiously endeavored to promote a favorable
image abroad and, linked to this, it has prohibited leakage of lower level
information concerning the actual conditions of daily life on the mainland .
More importantly, the regime has based it programs for the develop ent of
Communist China upon their cherished principle of the complete mobilization
and full exploitation of manpower. The complete utilization of all vital hu
man resources may be regarded as the motivating force behind the communes,
the “ every man a soldier ” movement, and, in fact, every basic policy decision.
Consequently, the challenge to the regime's authority and prestige reflected
in the mass exodus must stem fundamentally from the leadership's decision
to permit temporarily the departure of significant numbers of Chinese from
their domain. This supposition is apparently verified by the very suddenness
of the commencement and conclusion of the mass influx, which itself indicates
planned action and orderly movement on the part of the government. It is
also additional evidence that, although famine is serious, the regime continues
to exercise firm political control-isolated reports of mob action against local
government granaries notwithstanding.
What were the factors probably most responsible for the regime's decision ?
The Chinese Communists may have permitted this temporary mass flight in order
to test the world reaction to the Chinese famine. Despite any sharp increase in
178 REFUGEE PROBLEM IN HONG KONG AND MACAO
agricultural production 1962, food shortages must remain critical for a con
siderable period of time to come. With great shortages of capital, Peiping can
not hope to purchase sufficient food supplies on the free market and previous
purchases have had a negligible effect in terms of immediate needs. The Chinese
Communist government cannot ask for food without risking serious conse
quences to both the image it has created concerning its own progress and harmful
effects to the prestige of the entire international Communist movement. Strong
evidence indicates that the Soviet Union is unable to provide sufficient relief.
Hence, the regime is confronted with the apparently paradoxical task of, on the
one hand, denouncing all overtures from the West concerning the supply of food,
while, on the other hand, seeking such massive aid .
Faced with the pressing task of handling this sudden influx of Chinese refugees
in Hong Kong, it is understandable but nonetheless regrettable that there was a
lack of general coordination between the British authorities, the United States
and the Republic of China on Taiwan. Although it appeared expedient to offer
these refugees a meal and then return them to Communist China, it should be
acknowledged that this practice acted to destroy the unprecedented golden op
portunity of learning more of the actual situation in China and engaging the
enemy at his weakest point. Of primary concern is the fact that these policies of
expediency indicate a conceptual vacuum with respect to understanding correctly
the Chinese Communist opponents. To them , the front for contest is every
where. If, indeed , the regime permitted this exodus to sound out international
reactions, it must have assured itself that the free world is not psychologically
prepared or politically coordinated in meeting the Communist challenge on a
relatively obscure front. In turn, this knowledge may act as a powerful stimulus
to the regime in pushing ahead its programs even at the expense of its millions
of suffering citizens, whose fate is now predetermined.
The responsibility of the United States in developing some general policy for
handling this and possible future mass flights from Communist China derives
from its general responsibility as the leader of the free world. It requires an
acknowledgement that the struggle against Communist menace demands co
ordinated policies among all free countries to deal with issues arising along the
unseen as well as the visible fields of encounter. The outstanding strategist of
ancient China, Sun Tze, observed that the psychological offensive is of far more
importance than any direct attack on cities. Hence, the United States should
sponsor the initiative in urging the free world to capitalize on the refugee prob
lem, rather than allowing it to become the subject of interallied burden and
issue.
The President's special refugee program is encouraging, but insignificant in
terms of the whole problem . If the free world is to exploit the current situation,
it must seek the initiative in challenging the Chinese Communists via a co
ordinated policy and organization . One essential and immediate step should
be to provide aid to the some 10,000 recent refugees in Hong Kong who report
edly have so far evaded the roundup conducted by the local authorities. This
step would do much to recover our loss in the psychological offensive and serve
as an example that the free world intends to aid any individual who risks oppo
sition to or flight from communism . It must be emphasized that refugee prob
lems affecting a Communist country should be viewed carefully and tirelessly,
not in conventional terms, but in terms of the omnipresent and militant struggle
which must be waged against Communist threat.
The question of American supplies of food to the Chinese mainland must be
viewed in this context of vigilant struggle along every front. If a food relief
program is to be organized , it should follow the general pattern of the Hoover
Relief Commission in Soviet Russia in the early 1920's, and should be coordi
nated with similar allied efforts if possible. Food can be used as a weapon in a
far - reaching psychological offensive. In addition to possible benefits of in
fluencing the Chinese people, a relief program may do much to contradict
the Communist -inspired propaganda depicting the United States as a blood
thirsty archimperialist nation. The so -called uncommitted nations may be
deterred from accepting the Communist line by well popularized evidence of
massive people- to -people relief.
An American reliefprogram could follow a variety of forms. There are advan
tages in encouraging the Chinese to flee the mainland in order to receive proper
care — this would foster the triple goal of showing sympathy for the plight of
the people, shaking the Communsts' psychological front and promoting internal
unrest in confrontation with the possible drain of China's greatest long -range
asset — its people. At the same time, it would be well to send limited aid to the
REFUGEE PROBLEM IN HONG KONG AND MACAO 179
mainland, if necessary through the offices of an ally, in order to promote our
psychological attack . In any case, food is far cheaper than ammunition in an
all-out engagement with the Communist challenge ; its distribution can elicit a
contagious reaction ; and its potential uses as a weapon should be considered
with the utmost care .
NEW YORK , N.Y. , June 8, 1962 .
Senator PHILLIP A. HART,
Senate Office Building, Washington , D.C.:
The Woman's Division of Christian Service of the Methodist Church, the
administrative body for organized Methodist women , expresses its appreciation
for your subcommittee's attention to the urgent need for thorough revision of
present immigration laws of the UnitedStates in order to provide flexibility
for dealing with problems of refugees. The current situation of refugees from
mainland China points up this very urgent need . From the time of the adoption
of the present immigration law, the woman's division has consistently urged
that the national origins quota system be replaced by categories which carry
no implication of racial or nationality bias. Desirable categories include those
whose admission would reunite families, those whose special skills would make
important contributions to U.S. economy or cultural activities and a realistic
proportion of those who were made refugees by political changes, war, or
natural disaster. We respectfully request the inclusion of this statement in
the report of the hearings of your subcommittee and that the convictions here
stated be considered when policies for change in the law are recommended .
Mrs. J. FOUNT TILLMAN ,
President, Woman's Division of Christian Service, Board of Missions, the
Methodist Church.
STATEMENT BY HERMAN WILL, JR. , ASSOCIATE GENERAL SECRETARY, THE DIVISION
OF PEACE AND WORLD ORDER OF THE GENERAL BOARD OF CHRISTIAN SOCIAL
CONCERNS OF THE METHODIST CHURCH
Distinguished gentlemen of the committee, moved by recent events in Hong
Kong, and by the expressed position of the Methodist Church, we submit this
statement to you on behalf of the Division of Peace and World Order of the
Methodist Board of Christian Social Concerns. We wish particularly to sup
port S. 3043, sponsored by Senator Hart and cosponsored by his several col
leagues, which would ease the restrictions on Chinese immigrants from Hong
Kong and permit the United States to assist that British colony in its remark
able efforts to receive and care for refugees from mainland China . We com
mend the initiation of such legislation, and urge its support and passage, along
with any additional emergency measures which may be included for dealing with
situations such as the deluge of refugees in May. Such measures, had they been
available to our Government at that time, would have enabled our Nation to
make a clearer witness to our humanitarian concern for the oppressed and
hungry of the world.
The general mandate for this testmony is a policy statement of the 1960 Gen
eral Conference of the Methodist Church. That official body of Methodism
addressed itself to the problems of immigration and urged Methodists “ to seek
through proper channels of Congress the thorough revision of the McCarran
Walter Act.” . Special attention was directed by the general conference to certain
principles, among which two are of particular concern to our present subject.
One of them urges that “ The ratios of admission to this country should ( also )
be reexamined and revised in near harmony with our current population trends,
our current economy, and without any bias related to race or national origin ,"
This section suggests that criteria for admission also be based on “ special needs
to relieve refugee and population pressures ." The other principle here relevant
is one pointing out that “ More generous provision should be made for the admis
sion of refugees displaced because of war or persecution."
In a later section the conference went on to say that :
“ In these times of political upheaval when the migrations of peoples often
have ther roots in religious or political persecution , we reaffirm the principle of
article 14 of the universal declaration of human rights : 'Everyone has the right
to seek and enjoy in other countries asylum from persecution. We further urge
Christians to work in their respective countries for the acceptance and imple.
mentation of this principle .”
180 REFUGEE PROBLEM IN HONG KONG AND MACAO
Our specific desire to testify at this time grows, of course , more directly from
the situation itself. We are aware that the political realities of the predicament
render impossible any sweeping effort to come to the assistance of the huge
numbers of Chinese refugees who might wish to come to this country. Never
theless, we believe that our prosperity, our bulging surpluses, and indeed , our
religious ideals should lead us to open our doors wider. S. 3043, and President
Kennedy's utilization of emergency measures to permit several thousand refugees
to come to the United States, are helpful steps in this direction.
We are particularly concerned that the sense of urgency imparted by the
recent mass exodus from China into Hong Kong not be lost with the reclosing
of the border. The problem which that exodus represented is not likely to be
solved by the closing of a border from either side, nor by token offers of assist
ance and asylum . Our country will need to look ahead to similar situations in
the future, possibly the near future, and be prepared to offer its resources and
refuge .
Finally, we join the others who have called to the attention of this committee
the interrelated nature of the flights from China and the food shortages there.
As churchmen , we urge our Government to consider seriously the possibility of
making available our food surpluses by sale or gift at the same time that it
relaxes its immigration restrictions.
We offer this testimony not as experts or authorities, but because we believe
the principles it embodies are sound and right. We wish to encourage the com
mittee in its endeavor to find answers to the problems of refugees and escapees
which will be commensurate with our national tradition and our religious con
cern for the welfare of all peoples.
LUTHERAN IMMIGRATION SERVICE,
New York, N.Y., July 24, 1962.
Hon. PHILIP A. HART,
U.S. Senate, Washington, D.C.
DEAR SENATOR HART : You will recall that on June 28, when I appeared before
the Subcommittee on Refugees and Escapees, I was asked by Mr. De Haan
whether or not it was my impression that universal primary education had been
achieved in Hong Kong. I replied that we had received requests for additional
projects relating to primary schools and therefore in view of these requests I
would be hesitant to comment on his question without having some additional
information.
I have now been informed that the Hong Kong government did make a state
ment indicating that when all primary school projects listed in their current
school estimates are completed, the number of places available for primary
school students will equal the number of children of primary school age. In
other words, the Hong Kong government did indicate that universal primary
education in the colony is now possible.
However, when this statement was made by the Hong Kong government it
was based on the assumption that all available places in primary schools would
be in use. This, I understand , has not been possible as many of the facilities
must be rebuilt. Also, when this statement was issued, no allowance was made
for older children assigned to primary schools and for those listed as “ illegal
immigrants .” Also, the primary school problem has been complicated by the
Hong Kong government resettlement programs and the development of new
townships.
In other words, the Hong Kong government's statement, according to my
information, should not be interpreted to mean that additional primary school
facilities are not needed . In fact, we have been told by the director of educa
tion in Hong Kong, that " it is likely that outside help from reliable bodies for
the building of new primary schools will be needed for some time to come.”
I apologize for not having this information at the hearings. At that time,
I was not aware of the Hong Kong government's statement and therefore I
was taken by surprise as our requests for assistance in this area of concern
were received earlier this year.
Again , let me thank you for this opportunity to clarify my remarks.
Sincerely yours,
DONALD E. ANDERSON .
UNIVERSITY OF MINNESOTA
3 1951 D02 120 601 U