South Korea’s truth commission concluded the government bears responsibility for facilitating a foreign adoption program rife with fraud and abuse, driven by efforts to reduce welfare costs and enabled by private agencies that often manipulated children’s backgrounds and origins.

The landmark report released Wednesday followed a nearly three-year investigation into complaints from 367 adoptees in Europe, the United States, and Australia, representing the most comprehensive examination yet of South Korea’s foreign adoptions, which peaked under a succession of military governments in the 1970s and ’80s.

The government-appointed Truth and Reconciliation Commission said it confirmed human rights violations in 56 of the complaints and aims to review the remaining cases before its mandate expires in late May.

However, some adoptees and even a commission investigator criticized the cautiously written report, acknowledging that investigative limitations prevented the commission from more strongly establishing the government’s complicity.

That investigator, Sang Hoon Lee, also lamented that the panel on Tuesday deferred assessments of 42 other adoptees’ cases, citing a lack of documentation to sufficiently prove their adoptions were problematic. Lee and the commission chairperson, Sun Young Park, did not specify which types of documents were central to the discussions.

However, Lee implied that some members of the commission’s decision-making committee were reluctant to recognize cases in which adoptees had yet to prove beyond doubt that the biological details in their adoption papers had been falsified — either by meeting their birth parents or confirming information about them.

Most Korean adoptees were registered by agencies as abandoned orphans, although they frequently had relatives who could be easily identified or found, a practice that often makes their roots difficult or impossible to trace. Government data obtained by The Associated Press shows less than a fifth of 15,000 adoptees who have asked South Korea for help with family searches since 2012 have managed to reunite with relatives.

Lee said the committee’s stance reflects a lack of understanding of the systemic problems in adoptions and risks excluding many remaining cases.

“Personally, I find yesterday’s decision very regrettable and consider it a half-baked decision,” Lee said.

After reviewing government and adoption records and interviewing adoptees, birth families, public officials and adoption workers, the commission assessed that South Korean officials saw foreign adoptions as a cheaper alternative to building a social welfare system for needy children.

Through policies and laws that promoted adoption, South Korea’s military governments permitted private adoption agencies to exercise extensive guardianship rights over children in their custody and swiftly transfer custody to foreign adopters, resulting in “large-scale overseas placements of children in need of protection,” the commission said.

Authorities provided no meaningful oversight as adoption agencies engaged in dubious or illicit practices while competing to send more children abroad. These practices included bypassing proper consent from biological parents, falsely documenting children with known parents as abandoned orphans, and switching children’s identities, according to the commission’s report. It cited that the government failed to ensure that agencies properly screened adoptive parents or prevent them from excessively charging foreign adopters, who were often asked to make additional donations beyond the standard fees.