VZCZCXRO7440
PP RUEHDE RUEHDIR
DE RUEHAD #4154/01 3061220
ZNY CCCCC ZZH
P 021220Z NOV 06
FM AMEMBASSY ABU DHABI
TO RUEHC/SECSTATE WASHDC PRIORITY 7541
INFO RUEHZM/GULF COOPERATION COUNCIL COLLECTIVE
RUEHDE/AMCONSUL DUBAI 6568 C O N F I D E N T I A L SECTION 01 OF 02 ABU DHABI 004154 
 
SIPDIS 
 
SIPDIS 
 
STATE FOR DRL, NEA/RA, NEA/ARPI 
 
E.O. 12958: DECL: 11/02/2016 
TAGS:        
SUBJECT: UAEG SEEKS TO END UNCERTAIN STATUS OF STATELESS 
RESIDENTS 
 
ABU DHABI 00004154  001.2 OF 002 
 
 
Classified By: AMBASSADOR MICHELE SISON, REASONS 1.4 (B) AND (D). 
 
 1. (C) Summary: President Sheikh Khalifa issued directives 
October 25 for federal ministries to seek a final end to the 
problem of the "bidoun" (stateless persons) in the UAE.  The 
bidoun of the UAE generally fit two groups: Arabs (from Saudi 
Arabia, Yemen, Oman), and non-Arabs (primarily from Iran and 
the Indian sub-continent).  Human rights activists were 
surprised by the announcement, since no member of Emirate 
Human Rights Association (EHRA, the only recognized human 
rights organization in the UAE) had been contacted for 
comment, although it was widely known that the plight of the 
stateless was EHRA's central issue.  UAE security concerns 
likely trump humanitarian goals, as the President's directive 
seeks a final conclusion of the issue (tightly coupled to 
identification and who the UAEG can trust with citizenship) 
rather than a benefits-oriented resolution.  End summary. 
 
 2. (U) On October 25, the official Emirates News Agency (WAM) 
reported that President Sheikh Khalifa had issued directives 
for federal ministries to seek a comprehensive and permanent 
solution to the problem of the country's "bidoun," or 
stateless people.  A committee, headed by Brigadier Abdul 
Aziz Maktoum Al-Shareefi, Director of the Protective Security 
Department in the Ministery of Interior, is reportedly 
finalizing a list of those eligible to be granted citizenship 
after proving that they meet certain criteria.  The criteria 
are ostensibly simple and include proof of residency in the 
UAE prior to December 2, 1971 (date of UAE declaration of 
federation), no documentation of prior or current citizenship 
in another country, and no record of a felony conviction. 
Children of qualifying bidoun, even if born after December 2, 
1971, gain derivative status if they meet the other criteria. 
 (Note: "Citizenship" in the UAE can range from being issued 
a passport but not having full access to government services, 
to a passport and citizen ID number entitling the holder to 
the full-range of federal programs, services, and social 
security benefits.  It is not clear what level of citizenship 
is being proposed for the bidoun, although basic services 
like school registration and medical care associated with UAE 
identity papers should be resolved at a minimum.  End note.) 
 
Background 
---------- 
 3. (SBU) The bidoun of the UAE generally fit two groups: 
Arabs (from Saudi Arabia, Yemen, Oman), and non-Arabs 
(primarily from Iran and the Indian sub-continent).  A large 
number of stateless people are second and third generation 
bidoun, whose parents came to the Emirates when the borders 
were relatively open prior to independence.  UAE citizenship 
is only automatically transferred by a UAE citizen father (or 
by Presidential fiat) and therefore descendents of a 
stateless man, even if married to a UAE national woman, may 
remain stateless in perpetuity.  The English daily "Gulf 
News" reports that the exact number of bidoun is unknown but 
quotes unofficial estimates placing the total between 75,000 
and 100,000; MoI contacts put the number of people likely to 
meet the government's definition of "stateless" between 
10,000 and 30,000.  EHRA offered PolOff an estimate of 30,000 
when defining the bidoun problem in July. 
 
 4. (U) While the bidoun are not subject to deportation, they 
face discrimination in the labor market, have limited access 
to both education and medical care (which require officially 
issued identity documents), and are restricted in their 
movements since they have no passort.  In 2005, a directive 
from the Ministry of ducation prohibited both public and 
private schols from accepting any student without "proper 
documentation" which includes a passport and valid visa or 
residency permit.  (Note: The UAE is not party to the U.N. 
Convention on Status of Stateless Persons.  End note.) 
 
Human Rights Groups Not Involved 
-------------------------------- 
 5. (C) In July, Abdual Ghaffar Hussain, EHRA Chairman, told 
PolOff that resolving the situation of the bidoun was a 
significant focus of the newly established human rights NGO. 
Dr. Mohamed Ghobash, EHRA Secretary, told PolOff that the 
announcement by Sheikh Khalifa came as a complete surprise 
since the EHRA had not been involved in any way.  Ghobash 
expressed disappointment that the EHRA had not been 
consulted, since many in the organization had hoped that any 
committee formed to address this significant social concern 
would have an EHRA representative, thus demonstrating the 
UAEG's commitment towards addressing human rights issues 
openly. 
 
 6. (SBU) In March, 2006, Dr. Mohamed Al-Kamali, Director 
General of the Institute of Training and Judicial Studies, 
 
ABU DHABI 00004154  002.2 OF 002 
 
 
Ministry of Justice, stated that UAE law already addressed 
the issue of the bidoun, and had clear rules and conditions 
governing the process of granting UAE citizenship under the 
Naturalization Act, even without identification documents. 
If indeed UAE law already allows for a method to address the 
issue, Khalifa's decree may be a call for something other 
than a technical solution -- possibly more of an attempt to 
put an end to ambiguity by defining clearly who does and does 
not qualify.  English daily "Khaleej Times" had reported MoI 
officials saying in March that "many (bidoun) claim that they 
are stateless people to get UAE citizenship by circumventing 
rules," and that, "most stateless persons are actually 
infiltrators that have conveniently lost their documentation." 
 
 7. (C) Comment: The announcement does not appear to call for 
a "solution" since one technically already exists, but for a 
"once and for all" conclusion to end the discussion.  The 
fact that the joint committee is "finalizing a list of the 
stateless people who are entitled to UAE citizenship," and 
that the head of the committee is not a member of 
Naturalization and Residency Department but represents MoI's 
Protective Security Department, suggests the UAEG is not only 
struggling to identify who qualifies under naturalization 
criteria, but is also screening lists of stateless persons 
for security risks to identify "admissible" bidoun.  This 
follows reports that the lists of "electors" for the upcoming 
Federal National Council elections were vetted by State 
Security, and returned to the rulers of each emirate for 
alternative nominations, demonstrating ongoing caution on the 
part of the UAEG regarding who it empowers.  Abu Dhabi Crown 
Prince Mohammed bin Zayed highlighted the need for such 
"screening" in an October 30 conversation with Under 
Secretary Karen Hughes (septel).  End comment. 
 
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SISON