September 14, 2005
Chairman Brownback, Chairman Smith, distinguished Commissioners, I appreciate the opportunity to discuss with you the efforts of the Department of State on behalf of American families and Romanian children in need to urge the Government of Romania to live up to its international treaty commitments and allow intercountry adoptions.
The Department of State is committed to fostering an international environment for intercountry adoptions that protects the interests of orphaned and abandoned children, their birth parents, and American families. The Department’s role is divided into several broad substantive areas. First, U.S. implementing legislation for the Hague Convention on Protection of Children and Cooperation in the Respect of Intercountry Adoption designates the Department of State as the central authority for the United States, and assigns regulatory and accrediting responsibilities to the Department of State.
Second, as a foreign policy matter, we encourage other nations to become parties to the Hague Convention. The U.S. Government considers this instrument to be most effective in establishing a set of internationally agreed requirements and procedures to govern intercountry adoptions. A key element of the Convention is that it identifies the advantage of a permanent family to a child for whom a suitable family has not been found in the child’s country of origin.
The Department of State also has the responsibility for reviewing immigrant visa applications filed on behalf of children who have been adopted or will be adopted by American citizens. In fiscal year 2004, around the world we issued 22,884 immigrant visas to these children, enabling them to join their new families in the United States
Romania ’s child welfare and adoption systems are of continuing concern to the Department of State. In 2001, the Government of Romania imposed a moratorium on intercountry adoptions. This action was taken in response to concerns in the U.S. Government and others about the Romanian adoption system as it existed prior to 2001. Specifically, a joint U.S. Agency for International Development (USAID) and U.S. Department of Health and Human Services (DHHS) Report on Intercountry Adoption in Romania, published in January 2001 stated, “[T]he nature of the child welfare services in Romania…was susceptible to corrupt practices and … many of the financial resources generated for child protection programs through the intercountry adoption process were being misappropriated.” The report also stated that Romania had “virtually uncontrolled adoption activities that allowed prospective adoptive parents to fly to Romania and adopt directly from the birth parents or orphanage officials…” and there was “very little focus on the use of child centered adoption procedures.”
Clearly, Romania’s previous adoption laws failed to provide child welfare protections, and reform of the system was imperative. To that end, the United States , UNICEF and other countries and organizations provided suggestions and guidance to the Government of Romania as it worked to craft a revised adoption law that would meet international standards.
The Department of State worked aggressively with the Government of Romania to address these serious issues and develop a transparent adoption system. Our objectives have been to restore transparency, improve the Romanian child welfare system so that it meets international standards and lift the intercountry adoption moratorium as early as possible. The Department’s efforts took on greater urgency and importance in June 2004 when the Government of Romania passed an adoption law that effectively bans intercountry adoptions from Romania by restricting such adoptions to the child’s biological grandparents. This legislation went into effect on January 1, 2005.
Because the current legislation failed to include a mechanism for processing cases that were registered by Romanian officials under the moratorium, its passage effectively froze action on these cases. At the same time that the moratorium was put in place, Romania nevertheless allowed prospective parents to continue to register their applications to adopt with the Romanian government. Regrettably, this legislation is so restrictive that it has ended up harming the very children and families it ostensibly was designed to protect. Children continue to face long term institutional care – the least desirable outcome.
Romania is a party to the Hague Convention on Intercountry Adoption, and has therefore agreed to certain international standards and principles, one of which is that intercountry adoption is a legitimate option for children who cannot find permanent placement in their country of origin. However, the Romanian Government’s current adoption law, by effectively closing off this option, runs directly counter to this principle and Romania’s treaty commitments. It is also inconsistent with UNICEF guidelines and with the legal framework of virtually all European Union member states.
Furthermore, the Romanian government’s handling of international adoption issues over the past four years has, according to the Romanian adoption authority’s own estimates, created an impasse for many hundreds of children in need of families.
I think it is important to describe to you in real terms the impact of this moratorium. Earlier in my testimony I mentioned the Department of State’s responsibility for adjudicating immigrant visas. In fiscal year 2004, when we issued almost 23,000 immigrant visas to adopted children worldwide, our Embassy in Bucharest issued only fifty-seven immigrant visas to Romanian children adopted by Americans. Since January 1, 2005 our Embassy has issued precisely one of these immigrant visas. Since the moratorium began, the only immigrant visas we have been able to process have been on behalf of children who were registered for intercountry adoption before the moratorium.
Given the number of Romanian children in need and the relatively smaller number of Romanian families looking to adopt domestically, the Department of State is concerned that this law prevents thousands of Romanian children from finding permanent families to raise them.
As previously mentioned, while the moratorium was in effect between 2001 and the June 2004 passage of the current adoption law, a court order required that the Government of Romania continued to register applications to adopt Romanian children from families outside Romania, including from the United States. There are approximately 200 registered cases that involve U.S. families. Looking for a reasonable resolution to these cases has been the primary focus of the Department of State’s most recent efforts.
The Department of State has repeatedly sought commitments from both the current and former Romanian governments that they would process pending cases to conclusion. The U.S. Government has held conversations with Romanian officials at all levels, including a March 2005 meeting between President Bush and President Basescu. Secretary of State Rice discussed this matter with the Romanian Foreign Minister in May 2005. Past U.S. Ambassadors to Romania and other U.S. Embassy officials in Bucharest have repeatedly discussed the issue with Romanian officials there. At every opportunity, the U.S. Government has impressed upon the Government of Romania the importance we attach to processing the pending cases to conclusion in a legal, transparent and expeditious manner.
Despite periodic commitments to establish a mechanism to resolve the pending cases, the Romanian Government has taken only tentative, intermittent steps. In fact, Romanian officials have offered many promises, but there has been little or no follow-through.
For example, in late 2004, then-Prime Ministers Nastase of Romania and Raffarin of France publicly suggested the creation of an international commission to review the pending cases. This did not happen under the former Romanian government, and its successor similarly has not pursued it.
In March 2005, Romanian President Basescu, during a visit to Washington , met with a number of American families whose adoptions are still pending and he committed to pursuing a solution to the pending U.S. cases immediately. But so far we have seen no action by the Romanian Government.
I traveled to Romania in early May 2005 and met with President Basescu, Foreign Minister Ungureanu and other officials of the Government of Romania. My message was quite clear: we need to resolve the pending intercountry adoption cases as soon as possible. I received assurances from the Romanian officials that they are committed to resolving the intercountry adoption issues. My response to these assurances was, “Hope is not a policy.”
The Romanian Government has asserted that its adoption law and its failure to proceed with pending cases are being driven by concerns over Romanian accession to the European Union. It is the understanding of the Department of State, however, that there is no European Union law or regulation restricting intercountry adoptions to biological grandparents or requiring that restrictive laws be passed as a prerequisite for accession. All current EU member states with the exception of Ireland have ratified the Hague Convention.
The Department has sought clarification from the European Union on its stance with regard to Romania and its adoption legislation. I am hopeful that the European Union will be able to shed light on what are and are not the actual adoption-related requirements, if any such requirements exist, for EU candidate countries.
Chairman Brownback, Chairman Smith, it is with great disappointment that I appear before you today. After rounds of discussions and years of consultations, the fact remains that there has been no real progress. This is a humanitarian issue, a child welfare issue. Hundreds of Romanian children are being denied the opportunity to live with families that are prepared to give them a permanent, loving home and American families are being asked to suspend their lives in hopes of some future resolution. Again, I say: Hope is not a policy. The Department of State will continue to press Romania to fulfill its commitments to the U.S. Government and American families to resolve the pending cases with concrete, transparent criteria so that Romanian orphans and abandoned children can have the future they deserve.
14 Septembrie 2005
Domnule Presedinte Brownback, Domnule Presedinte Smith, distinsi comisari, va multumesc pentru ocazia de a discuta cu dumneavoastra despre eforturile depuse de catre Departamentul de Stat, in numele familiilor americane si al copiilor romani, de a insista pe langa Guvernul Romaniei pentru ca acesta sa isi respecte obligatiile asumate prin tratatele internationale la care este parte si sa permita adoptiile internationale. Departamentul de Stat se implica in crearea unui mediu pentru adoptiile internationale, care sa protejeze interesele copiilor orfani sau abandonati, ale parintilor biologici si ale familiilor americane. Rolul Departamentului implica mai multe aspecte consistente. In primul rand, Departamentul de Stat este autoritatea centrala pentru Statele Unite si are responsabilitati de reglementare si acreditare, in baza implementarii de catre Statele Unite a Conventiei de la Haga privind Protectia Copilului si Cooperarea in domeniul Adoptiilor Internationale. In al doilea rand, in materie de politica externa, incurajam alte natiuni sa devina membre ale Conventiei de la Haga. Guvernul Statelor Unite considera ca aceasta este un instrument foarte eficient in stabilirea unui set de cerinte si proceduri internationale care sa reglementeze adoptiile internationale. Un element cheie al Conventiei este acela ca identifica avantajele unei familii permanente pentru un copil caruia nu i s-a gasit o familie potrivita in tara lui de origine.
De asemenea, Departamentul de Stat are responsabilitatea de a revizui cererile de viza de imigrant depuse in numele copiilor care au fost sau vor fi adoptati de catre cetateni americani. In anul fiscal 2004, am eliberat 22.884 de vize de immigrant pentru acesti copii, in toata lumea, oferindu-le posibilitatea de a se alatura noilor lor familii din Statele Unite. Departamentul de Stat continua sa se preocupe de sistemul de adoptie si protectie a copilului din Romania. In 2001, Guvernul Romaniei a impus un moratoriu privind adoptiile internationale. Aceasta masura a fost luata ca reactie la preocuparea Guvernului S.U.A. si a altor state privind sistemul de adoptii din Romania, in forma pe care o avea acesta inainte de 2001. Mai exact, in Raportul privind Sistemul Adoptiilor Internationale in Romania, elaborat de Agentia Statelor Unite pentru Dezvoltare Internationala (USAID), impreuna cu Departamentul de Sanatate al S.U.A. (DHHS), si publicat in ianuarie 2001, se mentioneaza: “Natura sistemului de protectie a copilului din Romania... a fost supus unor practici corupte si... multe dintre resursele financiare alocate programelor de protectie a copilului, prin intermediul procesului de adoptie internationala, au fost folosite in alte scopuri.” De asemenea, raportul a mentionat ca Romania “nu a controlat, practic, activitatile de adoptie care sa le permita potentialilor parinti adoptivi sa vina in Romania si sa adopte direct de la parintii biologici sau de la autoritatile din orfelinate” si ca autoritatile nu “s-au concentrat suficient asupra utilizarii unor proceduri de adoptie care sa aiba in vedere binele copilului.”
In mod evident, legislatia anterioara referitoare la adoptii nu a oferit modalitati de protectie a copilului, iar reforma sistemului a fost absolut necesara. In acest scop, Statele Unite, UNICEF si alte state si organizatii au oferit sugestii si sprijin Guvernului Romaniei in timpul procesului de elaborare a unui legi revizuite a adoptiilor, care sa respecte standardele internationale.
Departamentul de Stat a lucrat intens cu Guvernul Romaniei pentru a rezolva aceste probleme grave si pentru a dezvolta un sistem transparent al adoptiilor. Obiectivele noastre au fost restabilirea transparentei, imbunatatirea sistemului de protectie a copilului pentru a respecta standardele internationale si pentru a elimina cat mai repede moratoriul privind adoptiile internationale. Eforturile Departamentului au devenit si mai intense si au capatat o importanta deosebita in iunie 2004, cand Guvernul Romaniei a adoptat o lege a adoptiilor care interzicea efectiv adoptiile internationale din Romania, prin restrictionarea unor astfel de adoptii la bunicii biologici ai copilului. Aceasta lege a intrat in vigoare la 1 ianuarie 2005.
Din cauza faptului ca aceasta lege nu a inclus un mecanism de procesare a cazurilor inregistrate de autoritatile romane in baza moratoriului, adoptarea legii a blocat orice fel de actiune in aceste cazuri. In acelasi timp in care se aplica moratoriul, Romania a permis, totusi, potentialilor parinti adoptivi sa continue sa depuna dosare de adoptie la Guvernul Romaniei. Din pacate, aceasta lege este atat de restrictiva, incat nu a reusit decat sa faca rau chiar copiilor si familiilor pe care se presupune ca ii proteja. Copiii continua sa traiasca in centre de plasament, pe termen lung – un rezultat care se afla pe ultimul loc pe lista solutiilor acceptabile.
Romania este membra a Conventiei de la Haga privind Adoptiile Internationale si, ca atare, s-a obligat sa respecte anumite standarde si principii internationale. Unul dintre acestea se refera la faptul ca adoptiile internationale reprezinta o optiune legala pentru copiii care nu isi pot gasi un plasament permanent in tara lor de origine. Cu toate acestea, prin blocarea acestei optiuni, legislatia actuala a Guvernului Romaniei referitoare la adoptii actioneaza exact contrar acestui principiu, precum si angajamentelor Romaniei asumate prin acest tratat. In acelasi timp, acest lucru nu se incadreaza in regulamentele UNICEF si in nici un cadrul legal din nici un stat membru al Uniunii Europene.
Mai mult, modul in care Guvernul Romaniei a gestionat problemele referitoare la adoptiile internationale, in ultimii patru ani – potrivit propriilor estimari ale autoritatii romane pentru adoptii – a creat un impas pentru sute de copii care au nevoie de familii. Consider ca este important sa va descriu situatia reala a impactului acestui moratoriu. Am mentionat, mai devreme, responsabilitatea Departamentului de Stat in acordarea de vize de imigrant. In anul fiscal 2004, cand am eliberat peste 23.000 de vize de imigrant pentru copiii adoptati din intreaga lume, Ambasada noastra din Bucuresti a eliberat numai 57 de vize pentru copiii romani adoptati de americani. De la 1 ianuarie 2005, Ambasada noastra a eliberat o singura astfel de viza. De la punerea in aplicare a moratoriului, singurele vize de imigrant pe care le-am putut procesa in numele copiilor au fost cele inregistrate pentru adoptie internationala inainte de intrarea in vigoarea moratoriului.
Avand in vedere numarul de copii romani care au nevoie de familii, precum si numarul redus al familiilor romane interesate sa adopte copii, Departamentul de Stat este ingrijorat de faptul ca aceasta lege impiedica mii de copii romani sa isi gaseasca familii permanente care sa ii creasca.
Dupa cum am spus mai devreme, in perioada in care moratoriul era in vigoare, intre 2001 si iunie 2004, cand s-a adoptat actuala lege a adoptiilor, un ordin judecatoresc a solicitat Guvernului Romaniei sa continue sa inregistreze cereri de adoptie a copiilor romani de catre familii din afara granitelor Romaniei, inclusiv din Statele Unite. Sunt inregistrate cel putin 200 de cazuri care implica familii americane. Cele mai recente eforturi ale Departamentului de Stat s-au concentrat tocmai pe identificarea unei solutii rezonabile pentru aceste cazuri.
Departamentul de Stat a solicitat, in mod repetat, atat fostului, cat si actualului guvern, sa se angajeze sa proceseze aceste cazuri si sa ajunga la o solutie. Guvernul Statelor Unite a avut discutii cu oficialii romani de la toate nivelurile si mentionez aici inclusiv intalnirea din luna martie 2005 dintre Presedintele Bush si Presedintele Basescu. Secretarul de Stat Rice a discutat aceasta problema cu Ministrul Roman al Afacerilor Externe, in mai 2005. Atat fosti ambasadori ai Statelor Unite in Romania, cat si alti oficiali ai Ambasadei din Bucuresti, au avut discutii repetate cu autoritatile romane. Cu fiecare ocazie, Guvernul Statelor Unite a subliniat importanta pe care o acordam noi acestor cazuri in curs de solutionare in mod legal, transparent si rapid.
In ciuda angajamentelor periodice de a stabili un mecanism de solutionare a acestor cazuri, Guvernul Romaniei a luat doar cateva masuri tentative si intermitente. De fapt, oficialii romani au facut multe promisiuni, dar nu s-a intamplat nimic sau aproape nimic in acest sens.
De exemplu, spre sfarsitul anului 2004, prim-ministrul roman de atunci, Adrian Nastase, si cel al Frantei, Jean-Pierre Raffarin, au sugerat, in mod public, crearea unei comisii internationale care sa analizeze aceste cazuri. Acest lucru nu s-a intamplat nici in timpul fostei guvernari si nici in timpul actualei guvernari.
In martie 2005, in timpul unei vizite la Washington, Presedintele Basescu s-a intalnit cu cateva familii americane ale caror dosare de adoptie erau in curs de procesare. Domnia sa a promis ca va cauta o solutie imediata pentru aceste cazuri. Dar, pana in prezent, Guvernul Romaniei nu a luat nici o masura.
M-am deplasat in Romania la inceputul lunii mai 2005 si m-am intalnit cu Presedintele Basescu, cu Ministrul Afacerilor Externe Ungureanu si cu alti oficiali ai Guvernului Romaniei. Mesajul meu a fost foarte clar: trebuie sa rezolvam cazurile de adoptie internationala care asteapta sa fie solutionate, si aceasta cat mai repede. Am primit asigurari din partea oficialilor romani privind angajamentul acestora de a solutiona problema adoptiilor internationale. Raspunsul meu la aceste asigurari a fost urmatorul: “Speranta nu reprezinta o politica.”
Guvernul Romaniei a afirmat ca legea adoptiilor si imposibilitatea de a procesa cazurile respective sunt generate de preocuparile Romaniei referitoare la integrarea in Uniunea Europeana. Cu toate acestea, Departamentul de Stat intelege ca nici o lege sau regulament european nu limiteaza adoptiile internationale la bunicii biologici, si nici nu impun legile restrictive ca fiind o cerinta pentru aderare. Toate statele membre UE, cu exceptia Irlandei, au ratificat Conventia de la Haga.
De asemenea, Departamentul a solicitat clarificari din partea Uniunii Europene referitor la pozitia acesteia cu privire la Romania si la legea adoptiilor din Romania. Sper ca Uniunea Europeana sa poata face lumina in privinta cerintelor reale referitoare la adoptii, daca asa ceva exista, pentru tarile candidate.
Domnule Presedinte Brownback, Domnule Presedinte Smith, ma aflu in fata dumneavoastra astazi animata de un sentiment de dezamagire. Dupa runde de discutii si ani intregi de consultari, adevarul este ca nu s-a inregistrat nici un progres real. Vorbim aici despre o problema umanitara, despre protectia copiilor. Sute de copii romani sunt impiedicati sa traiasca cu familiile care le ofera un camin iubitor si permanent, iar familiile americane trebuie sa isi intrerupa viata in speranta gasirii unei solutii. Am spus-o si o repet : Speranta nu este o politica. Departamentul de Stat va continua sa faca presiuni asupra Romaniei pentru a-si indeplini angajamentele luate fata de Guvernul Statelor Unite si de familiile americane de a rezolva cazurile in baza unor criterii concrete si transparete, astfel incat copiii orfani sau abandonati din Romania sa aiba viitorul pe care il merita.