It looks like a promising implementation, my only concern is the level of control that the government will have on the cards of those individuals. I don't know the procedure that a refugee pass upon entering a country so my concerns may be misplaced but the level of control on the cards is directly associated with the control over those human beings. I understand that the government must control what is happening but by putting those transactions on a public blockchain you are giving the right to anyone to check them, which I see as unnecessary. But, I haven't read anything more than your post so I may not have the full picture of the situation.