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An Inspection of UK Refugee Resettlement Schemes

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An Inspection of UK Refugee Resettlement Schemes An inspection of UK Refugee Resettlement Schemes (November 2019 – May 2020) David Bolt Independent Chief Inspector of Borders and Immigration An inspection of UK Refugee Resettlement Schemes (November 2019 – May 2020) Presented to Parliament pursuant to Section 50(2) of the UK Borders Act 2007 November 2020 © Crown copyright 2020 This publication is licensed under the terms of the Open Government Licence v3.0 except where otherwise stated. To view this licence, visit nationalarchives.gov.uk/doc/open-government-licence/version/3 Where we have identified any third party copyright information you will need to obtain permission from the copyright holders concerned. This publication is available at www.gov.uk/official-documents This publication is also available at www.gov.uk/ICIBI Any enquiries regarding this publication should be sent to us at Independent Chief Inspector of Borders and Immigration, 5th Floor, Globe House, 89 Eccleston Square, London SW1V 1PN United Kingdom ISBN 978-1-5286-2165-6 CCS0920208772 11/20 Printed on paper containing 75% recycled fibre content minimum. Printed in the UK by the APS Group on behalf of the Controller of Her Majesty’s Stationery Office. Our purpose To help improve the efficiency, effectiveness and consistency of the Home Office’s border and immigration functions through unfettered, impartial and evidence-based inspection. All Independent Chief Inspector of Borders and Immigration inspection reports can be found at www.gov.uk/ICIBI Email us: [email protected] Write to us: Independent Chief Inspector of Borders and Immigration 5th Floor, Globe House 89 Eccleston Square London, SW1V 1PN United Kingdom Contents Foreword 2 1. Purpose and scope 4 2. Methodology 5 3. Summary of conclusions 7 4. Recommendations 12 5. Background 14 6. Inspection findings: Home Office structures 30 7. Inspection findings: Gateway Protection Programme 34 8. Inspection findings: Vulnerable Persons Resettlement Scheme 42 9. Inspection findings: Vulnerable Children’s Resettlement Scheme 66 10. Inspection findings: Community Sponsorship Scheme 86 11. Inspection findings: the future of resettlement 99 Annex A: Role and remit of the Independent Chief Inspector 110 Annex B: ICIBI ‘Expectations’ 112 Acknowledgements 114 Foreword When I began this inspection, the Home Office was on the verge of launching a new UK Resettlement Scheme (UKRS) to replace the previous schemes: Gateway Protection Programme (Gateway), Vulnerable Persons Resettlement Scheme (VPRS), and Vulnerable Children’s Resettlement Scheme (VCRS). It also looked set to achieve its target for VPRS, announced in September 2015, to resettle 20,000 refugees from the conflict in Syria by May 2020. Unfortunately, the COVID-19 pandemic derailed both ambitions. In mid-March 2020, the United Nations High Commissioner for Refugees (UNHCR) and International Organisation for Migration (IOM) announced a temporary suspension of all resettlements. While UNHCR and IOM lifted this suspension in June 2020, at the time of writing (mid-September 2020), there had been no refugee resettlements under any UK scheme since 12 March 2020. And, while a good deal of work was continuing in the background to progress cases as far as possible, there was little sign from the Home Office that there would be any new arrivals in the near future. Against this backdrop, and in anticipation of the eventual launch of UKRS, the inspection looked at how the various long-running schemes had performed up to March 2020, at the particular difficulties and issues each had encountered, and at what lessons the Home Office should be taking forward into any new scheme. This included a look at the Community Sponsorship Scheme (CSS). I last inspected at VPRS in 2017-18. At that time, I commented that everyone concerned with the scheme (UNHCR, IOM, UK local authorities and their delivery partners, NGOs, the Home Office and other government departments, and CSS groups) deserved credit for what they had achieved. There was no doubting their hard work and commitment, or the very real challenges they faced. However, there were several areas where improvements were needed, some of which were directly within the Home Office’s control, while others required it to be more actively co-ordinating, cajoling and incentivising other parties. In 2018, Home Office managers and staff felt that my criticisms were unfair, so I expect that the findings from this latest inspection will equally feel blunt, particularly given the UK’s recent record which has seen it resettle more refugees identified through UNHCR than any other country, except for the USA and Canada. For the record, I again found that those working on the resettlement schemes were knowledgeable, competent and highly committed. It was clear that they all derived a great deal of satisfaction from helping vulnerable refugees. Operationally, every resettlement presented a host of challenges, the greatest of which was securing the required accommodation and support. Each arrival was therefore an achievement. Nonetheless, I found there was still considerable room for improvement, and that there was a risk the Home Office would roll into UKRS without confronting some of the fundamental concerns about the previous schemes, in particular the range of accommodation and support available and its impact on the time taken from acceptance of a refugee family to their resettlement in the UK. As I observed in 2018, while it may be the case that the UK resettlement process is quick by comparison to other international schemes, the Home Office should not regard this as fully answering concerns about 2 resettlement timescales, not least as these have continued to lengthen, especially for larger families and refugees with complex needs. The report was sent to the Home Secretary on 14 September 2020. It contains ten recommendations. Together, these represent a considerable amount of work. While UKRS remains paused, the Home Office should press ahead with as much of this work as possible, so that when the new scheme is eventually launched it is as good as it can be. David Bolt Independent Chief Inspector of Borders and Immigration 3 1. Purpose and scope 1.1 This inspection examined the efficiency and effectiveness of the UK’s refugee resettlement schemes, focusing on how the lessons from the operation of these schemes were applied to the design of the new UK Resettlement Scheme, due to come into operation in 2020. 1.2 Inspectors examined the following schemes: • the Gateway Protection Programme (“Gateway”) • the Vulnerable Person’s Resettlement Scheme (VPRS) • the Vulnerable Children’s Resettlement Scheme (VCRS) • the Community Sponsorship Scheme (CSS) 1.3 The inspection looked in particular at: • how well each of the schemes had met their stated aims and the particular difficulties and issues that each had encountered • the resettlement of unaccompanied minors through VCRS • the recruitment of Community Sponsors, including the processing of applications, the matching of refugee families to Sponsors, and support for refugees and Sponsors through the sponsorship process 1.4 The inspection did not look in detail at: • the ‘front end’ elements of the resettlement process, including the selection of refugees for resettlement by UNHCR and the arrangements for travel to the UK1 • integration outcomes for resettled refugees2 1 These aspects of the VPRS process were covered ‘An Inspection of the Vulnerable Persons Resettlement Scheme (August 2017 – January 2018). 2 Several reports have been produced on this issue, including a 2017 published report by UNHCR on the integration outcomes for VPRS https://www. unhcr.org/5a0ae9e84.pdf. In addition, the Home Office had commissioned IPSOS MORI to produce “three-year qualitative longitudinal evaluation” of VPRS/VCRS. 4 2. Methodology 2.1 Inspectors: • researched and reviewed relevant open source information • in November 2019, undertook familiarisation visits in Croydon, London and Sheffield to meet Home Office staff involved with the schemes • issued a public ‘call for evidence’ on 18 November 2019, resulting in 56 submissions • requested and reviewed Home Office guidance, internal documents, and data relating to resettlement schemes • in January 2020, invited Community Sponsorship Scheme (CSS) groups to complete a survey about their experiences, resulting in 26 responses • in February 2020, visited Croydon and Sheffield and interviewed staff and managers responsible for: • Resettlement Policy • Integration Policy • Resettlement Operations • Community Sponsorship • Evaluation of refugee resettlement • National Transfer Scheme – through which VCRS unaccompanied minors are placed with local authorities • visited five local authorities and one Strategic Migration Partnership: • three local authorities in England, with experience of delivering both Gateway and VPRS • two local authorities in Scotland, with experience of resettling unaccompanied minors via VCRS • an SMP in England, with experience of Gateway, VPRS and VCRS • spoke with staff from: • UNHCR • two local government organisations in England and Scotland • two delivery partners for Gateway • three NGOs helping to deliver resettlement • the Department for Education • Public Health England 5 • visited four CSS groups, including attending a monitoring visit by Home Office staff • interviewed staff from organisations working nationally and regionally to support CSS groups through the sponsorship process • held three focus groups with refugees resettled under Gateway and VPRS 6 3. Summary of
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