Welcome to Europe!

A comprehensive guide to resettlement

resettlement genbosætning vidarebosättning gjenbosetting uudelleensijoittamista réinstallation reasentamiento hervestiging umsiedlung reinstalação reinsediamento znovuosídlení презаселване relocare búferlaflutningum ümberasustamine áttelepítés przesiedlenia uchodźców presídľovania preselitev persikėlimo pārcelšanās ICMC – A Continued Commitment to Resettlement

With a worldwide membership, staff and operations, and working with migrants and refugees in more than 40 countries, the International Catholic Migration Commission (ICMC) serves and protects uprooted people – refugees, internally displaced persons and migrants – regardless of faith, race, ethnicity or nationality. Since its creation in 1951, ICMC has identified and accompanied over one million refugees for resettlement. Through its Turkey and Lebanon offices, the ICMC Refugee Support Centre (RSC) processes refugees for resettlement to the United States. Additionally, ICMC provides expert resettlement personnel through the ICMC-UNHCR Resettlement Deployment Scheme to support UNHCR resettlement activities in field offices. In 2012 alone, ICMC deployees put forward 36,880 refugees for resettlement consideration, contributing significantly to the total of 74,839 persons submitted by UNHCR to resettlement countries that year. The ICMC Europe office in Brussels works to promote resettlement in Europe and, with its partners IOM and UNHCR, develops the European Resettlement Network (www.resettlement.eu) to build European resettlement capacity and expertise. Via the Resettlement Saves Lives Campaign, ICMC Europe also advocates for 20,000 resettlement places to be offered by Europe each year by 2020.In order to engage local actors in resettlement, ICMC Europe is currently implementing the SHARE project, building a European resettlement network of cities, regions and civil society partners committed to refugee protection and integration.

Principal authors: Rachel Westerby, City Coordinator (ICMC Europe) and Sophie Ngo-Diep, Policy & Project Development Officer (ICMC Europe) Together with: Petra Hueck, Head of Office (ICMC Europe) and Salomé Phillmann, independent researcher Editor: Rachel Westerby Concept & Layout: Crossmark, Belgium – www.crossmark.be Printed by: édition & imprimerie, Belgium - www.edimp.be Date of publication: July 2013

Cover photos from top to bottom and from left to right: © Iraq/Syrian refugee children play on playground equipment amid refugee families’ tents in Domiz refugee camp in the Kurdistan region of Iraq/UNHCR/2013 © Tunisia / Somali refugee Mohammed receives from UNHCR the good news that he has been accepted for resettlement to the US/ UNHCR/R. Nuri/ April 2012 © Nepal/Bhutanese refugees attend a cultural orientation class conducted by IOM/IOM/Kari Collins/2009 © Tunisia/IOM arranges a charter flight from Djerba to Hannover on behalf of the German government for the refugees/IOM/2012 The Netherlands/ Wommels (North Netherlands) is home to two Bhutanese families. The children are going to the local primary school/UNHCR/P.de Ruiter/2011 © UK/An Ethiopian Oromo family resettled to Brighton, UK/UNHCR/H.Davies/2007 1 Welcome to Europe! A comprehensive guide to resettlement Preface

Every year, thousands of men, women and children flee persecution and find in resettlement the possibility to build a new life and to contribute to a new society. Welcome to Europe!

Since the first edition of Welcome to Europe in 2007, we are encouraged that resettlement has increased and expanded across EU Member States together with the development of important policies in this field. Resettlement has become a new expression of European solidarity with refugee-hosting countries, and is now firmly established as an integral part of the external dimension of the Common European Asylum System (CEAS). Further evidence of this was reflected in the March 2012 adoption of the Joint EU Resettlement Programme.

Since 2007, a number of EU Member States - Belgium, France, Germany, Romania and Spain, have joined the resettlement ‘family’ - with some fourteen EU Member States now considered to have regular resettlement programmes. At the same time, the number of refugees resettled to the EU is still low by comparison to annual resettlement departure figures, representing just over 6% of the almost 70,000 refugees resettled globally during 2012.

Undoubtedly, Europe can and should play a greater role in providing protection for the most vulnerable refugees. National and local campaigns across Europe advocate for more and better resettlement, while the Resettlement Saves Lives campaign launched by a coalition of NGOs including ICMC, together with IOM, advocates for Europe to provide 20,000 resettlement places every year by 2020. Believing this to be an achievable target, those involved are committed to practical cooperation in support of that goal.

Since 2007, ICMC, UNHCR and IOM have worked closely and strategically to strengthen and increase EU resettlement through the development of the 2

European Resettlement Network. The Network is an inclusive community that connects a variety of actors with a shared commitment to refugee resettlement and protection. The exchange of information, knowledge and best practice in resettlement, as well as the better linking of all phases of the resettlement process are the core objectives of the Network.

Successful resettlement incorporates a wide range of activities, from initial identification and registration of refugees, to pre-departure arrangements and subsequent reception and integration in local communities. This ICMC publication is a resource that illustrates how these different phases ‘link’ together to make resettlement a solution that works for both refugees and their new communities. Partnerships with NGOs and wider civil society are central to this success, as is public support and improved paths for integration for resettled refugees.

This publication also underscores the life-saving role of resettlement, and we hope that it will further contribute to the promotion of resettlement in Europe as one component of a comprehensive and durable approach to protecting refugees.

ICMC, UNHCR and IOM commend the EU and its Member States for their efforts in providing welcoming communities for resettled refugees, and express our sincere hope that this commitment will further increase both the number of available resettlement places and the quality of European resettlement, to a level that that truly says “Welcome to Europe!”

July 2013

Johan Ketelers Bernd Hermingway Vincent Cochetel ICMC IOM UNHCR 3 Acknowledgements

We would like to sincerely thank the following people whose contributions of time and expertise made the writing of this guide possible:

Ewout Adriaens, Elena Alonso Ventura, Kofi Amankwah, Jo de Backer, Linda Besharaty, John Bingham, Kristin Blais, Bente Bondebjerg, Anastasia Brown, Julia Capel-Dunn, Anne Dussart, Janneke van Etten, Lisa Fischer, Chris Friesen, Hanno van Gemund, Bruno Gilain, Martina Glennon, Jakob Dam Glynstrup, Monica Harju, Mélanie Hostaux, Yukiko Iriyama, Christoph Jansen, Catherine Keuning, Andrea Kothen, Helena Kullberg, Thomas Langwald, Martin Larsson, Patrick Lefèvre, Sandrine Lesecq, Michèle Morel, Sokhna Ndao, Ana Neamtu, Séverine Origny-Fleishman, Peter O’Sullivan, Tonje Øyan, Paloma Pino Cordón, Eleodor Pirvu, Paul Power, Tarja Rantala, Tracey Raw, Linda Rós Alfreðsdóttir, Marit Rosenvinge, Paula Selin, Kateřina Šimová, Ann-Charlotte Sirén-Borrego, Cristina Sosa Erdozain, Carolin Spannuth-Verma, Matthieu Tardis, Denise Thomsson, Norbert Trosien, Ariane den Uyl, João Vasconcelos, Corinna Wicher, Emilie Wiinblad, Marie Wilson

Acronyms

AT: Austria FR: France NL: Netherlands BE: Belgium GR: Greece NO: Norway BG: Bulgaria HU: Hungary PL: Poland CY: Cyprus IE: Ireland PT: Portugal CZ: Czech Republic IS: Iceland RO: Romania DE: Germany IT: Italy SE: Sweden DK: Denmark LT: Lithuania SK: Slovakia EE: Estonia LU: Luxembourg SV: Slovenia ES: Spain LV: Latvia UK: United Kingdom FI: Finland MT: Malta Preface ...... 1 Acknowledgements ...... 3

1. International Protection...... 9 1.1. Refugees in international law...... 9 1.2. UNHCR mandate...... 10 1.3. International protection – needs and numbers...... 11 1.4. Durable solutions...... 13 2. Resettlement...... 15 2.1. Definition ...... 15 2.2. Functions of resettlement...... 15 international protection protection international 2.3. Who is resettled?...... 15

CHAPTER I – Resettlement and and I – Resettlement CHAPTER 2.4. Strategic use of resettlement...... 18

1. UNHCR Resettlement operations...... 21 2. Global resettlement needs and capacity...... 21 3. Resettlement countries...... 22 4. Mechanisms for global resettlement planning...... 23 5. Partnerships in resettlement...... 24 5.1. Partnership mechanisms in resettlement...... 25 5.2. States as resettlement partners...... 25 5.3. NGOs as resettlement partners...... 26 5.4. International Organization for Migration (IOM)...... 27 6. Global challenges for resettlement...... 28 7. Introducing the world’s largest resettlement programmes...... 29

Chapter II – Global resettlement II – Global resettlement Chapter 7.1. Message from Australia...... 30 7.2. Message from Canada...... 35 7.3. Message from the United States...... 38

1. Africa...... 48

1.1. Congolese (DRC) refugees...... 48 1.2. Somali refugees in Kenya and Ethiopia...... 50 1.3. Eritrean refugees in Eastern Sudan...... 53 2. Americas...... 54 2.1. The Colombian refugee situation...... 54

situations in focus situations 3. Asia and Pacific...... 57

Chapter III – Refugee III – Refugee Chapter 3.1. Afghan refugees in Iran and Pakistan...... 57 3.2. Bhutanese refugees in Nepal Table of contents Table 3.3. Burmese refugees in Thailand and Malaysia’ 4. Turkey and Middle East...... 64 4.1. Iranian and Iraqi refugees in Turkey...... 64 4.2. Iraqi refugees in Jordan, Lebanon and Syria...... 65 4.3. The Syrian refugee situation...... 67

1. Identification...... 73 1.1. Forecasting resettlement needs...... 73 1.2. Identifying individuals in need of resettlement...... 74 1.3. Identifying groups in need of resettlement...... 76 1.4. Identification challenges...... 77 2. Resettlement submission...... 78 2.1. Resettlement interview and RRF...... 78 2.2. Resettlement priority levels...... 80 2.3. Selecting a resettlement country...... 81 2.4. The resettlement submission...... 82 2.5. Transparency and fraud prevention...... 83 3. Selection of refugees by resettlement countries...... 84 3.1 Selection criteria...... 84 3.2. Selection methods...... 84

from identification to departure departure to identification from 3.3. Selection challenges...... 86

Chapter IV – The resettlement process: process: IV – The resettlement Chapter 3.4. NGO involvement in selection...... 90 4. Preparing refugees to leave...... 90 4.1. Health assessments & travel health assistance...... 91 4.2. Pre-departure cultural orientation...... 91 4.3. Movement assistance...... 93

1. More countries, small numbers...... 97 2. Looking to the future - responding to increasing needs..99 3. Resettlement and the European asylum system...... 100 4. Regional Protection Programmes (RPPs) and resettlement...... 101 4.1. RPP in Tanzania and the Great Lakes Region...... 102 4.2. RPP in the Western Newly Independent States (WNIS)...... 103 4.3. RPP in the Horn of Africa...... 103

rising slowly but surely rising slowly 4.4. RPP in eastern North Africa...... 103 4.5. RPP in the Middle East...... 104 5. ERF funding – a tool to increase

Chapter V – Resettlement in Europe: in Europe: V – Resettlement Chapter resettlement in the EU...... 104 5.1. The ERF funding for resettlement...... 104 5.2. Use of ERF funding - challenges...... 106 6. EU policies to coordinate joint action and respond to urgent and protracted refugee situations...... 107 6.1. 2008 Joint EU Action for refugees from Iraq...... 107 6.2. The Joint EU Resettlement Programme...... 108 6.3. 2012 EU response for refugees ex-Libya...... 111 6.4. EU support for emergency resettlement...... 112 7. Relocation and resettlement - differences and connections...... 112 7.1. Towards a permanent EU scheme for relocation? ...... 112 7.2. Relocation and resettlement: competing instruments?.....114 8. Resettlement & the European Asylum Support Office (EASO)...... 115 9. Resettlement in Europe beyond 2013...... 116 9.1. Asylum & Migration Fund 2014-20...... 116 9.2. Partnerships to promote more and better resettlement in Europe...... 118

Comparative table - Overview of Reception and Integration in European Resettlement Countries...... 124 Belgium...... 129 Czech Republic...... 138 Denmark...... 147 Finland...... 158 France...... 168 Germany...... 179 Iceland...... 190 Ireland...... 197 Netherlands...... 207 Norway...... 217 Portugal...... 227 Romania...... 237 Spain...... 245 Sweden...... 252 Chapter VI – European resettlement programmes programmes resettlement VI – European Chapter UK ...... 263 Other countries (Bulgaria & Hungary)...... 273 Table of contents Table Comparative table - Overview of Reception and Integration in European Resettlement Countries: Main Features...... 277 1. Refugee integration & Resettlement ...... 282 1.1. What is integration? ...... 282 1.2. EU involvement in integration...... 283 1.3. Integration & refugee resettlement...... 285 2. Organising reception & integration for resettled refugees in Europe...... 288 2.1. Placement...... 288 2.2. Planning reception & integration...... 290 2.3. Partnerships to coordinate resettlement...... 291 2.4. Approaches to reception - centralized reception or direct placement in local authorities...... 292 2.5. Mainstream and specialised integration programmes...... 294 2.6. Casework and Personal Integration Plans...... 295 2.7. Working with volunteers...... 296 2.8. Strengthening refugee & receiving communities...... 298 3. Integration practice – setting up the basics...... 299 3.1. Housing...... 299 3.2. Language - learning...... 301 3.3. Civic & cultural orientation...... 302 3.4. Employment & training...... 303 approaches to reception and integration in europe in europe and integration reception to approaches Chapter VII – Building a new life in the community: in the community: life VII – Building a new Chapter 4. Connecting to mainstream services...... 304 4.1. Education (children)...... 304 4.2. Education (adults)...... 305 4.3. Health...... 306 5. Longer term integration: Family Reunification, Permanent Residency and Citizenship...... 307 5.1. Family reunification...... 307 5.2. Permanent residency & citizenship...... 308

BIBLIOGRAPHY ...... 310 Annex I - UNHCR Resettlement Submission Categories...... 316 Annex II – The Resettlement Registration Form (RRF)...... 319 Annex III – Resettled refugees’ access to family reunification....323 Annex IV – Resettled refugees’ access to permanent

& Annexes residency and citizenship...... 325 Bibliography Bibliography Annex V - Language tuition provision for resettled refugees...... 327 Chapter I – Resettlement and International Protection Domiz camp inIraq/IOM/2012 9

States have the primary responsibility Relating to the Status of Refugees1 and CHAPTER I for protecting refugees. The Office of its 1967 Protocol.2 The 1951 Convention the United Nations High Commissioner is the only universal treaty that defines (UNHCR) works to ensure that govern- a specific regime for those in need of ments take all actions necessary to international protection. Amongst its protect refugees, asylum-seekers and fundamental components are the defi- other ‘persons of concern’ who are nition of a refugee, the responsibilities on their territory or who are seeking of states to afford refugees specific CHAPTER II admission to their territory. The fol- rights, and the individual right not to lowing chapter provides an overview be forcibly returned to a country where of the international protection one’s safety or survival is threatened. framework, the role of UNHCR and the The latter is known as the principle of place of resettlement as a refugee pro- non-refoulement.3 The 1951 Convention

tection, durable solution and responsi- also establishes the framework for coop- CHAPTER III bility-sharing tool. eration between states and the Office of the United Nations High Commissioner for Refugees (UNHCR). 1. International protection While the 1951 Convention positively defines who is a refugee, it also sets out CHAPTER IV 1.1. Refugees in international law a number of criteria for excluding individuals from securing refugee status. The 1951 Convention definition of a refugee Known as “exclusion clauses,”4 such cri- [Article 1 A (2) of 1951 UN Convention teria cover persons who may themselves Relating to the Status of Refugees] be considered ‘persecutors,’ having committed one or more of the following: ‘Someone who is outside of his country of  a crime against peace, a war crime or CHAPTER V origin and has a well-founded fear of perse- a crime against humanity; cution because of his race, religion, nation-  a serious, non-political crime prior to ality, membership of a particular social admission to the country of asylum; group or political opinion and is unable or and/or unwilling to avail himself of the protection

of that country, or to return there, for fear of 1 1951 Convention relating to the Status of Refugees, CHAPTER VI 28 July 1951 persecution.’ 2 1967 Protocol Relating to the Status of Refugees, 4 October 1967. The 1967 Protocol removed the temporal and geographical limits of the 1951 Convention, which restricted refugee status to The core instrument of international persons who became refugees as a result of events occurring in Europe before 1 January 1951. refugee law is the 1951 Convention 3 Article 33(1), 1951 Convention Relating to the Status of Refugees 4 Article 1F (a-c), 1951 Convention Relating to the Status of Refugees CHAPTER VII Chapter I – Resettlement and International Protection to it. territoryare orwho seekingadmission satisfy therefugee definition. afforded to refugees, even ifthey should notbenefit from therights Those whomeet theexclusion criteria  10 6 5 personsconcernof refugees, asylumseekers other and take tonecessary actions all protect UNHCR works to ensure that states responsibilityfor protecting refugees, statesWhile have legal theprimary 1.2. UNHCRMandate Convention. in states that are notpartytothe 1951 under itsmandate. Thisoften occurs to conduct RSD, UNHCR may doso Where states are unableorunwilling diction they consider to be arefugee. determining whomwithin their juris- conducted. States are responsible for Status Determination (RSD) shouldbe stipulate themethod by whichRefugee International refugee law doesnot

principles oftheUnited Nations. acts contrary to thepurposes and lence orevents seriously disturbing public order.’ integrity orfreedom resulting from generalised vio- serious andindiscriminate threats to life, physical residence andunableto return there owing to outside oftheir country ofnationality orhabitual tection mandate alsoextends to persons ‘who are addition to ‘Convention refugees,’ UNHCR’s pro- conditions -internally displaced persons (IDPs). In returnees, stateless persons and-undercertain UNHCR.’ They include refugees andasylum seekers, people collectively known as‘persons ofconcern to UNHCR’s responsibilities relate to several groups of UNHCR Resettlement Handbook, 2011 6 who are who their on 5

 8 7  mandated to: With respect to refugees, UNHCRis rights andrefugee law). internationalhumanitarian, human the relevant (including law of bodies concern to UNHCR,accordancein with rightsboyswomen, men,and of girls of accessthe equal toenjoyment and the of UNHCR as:‘ Internationalprotection durable solutionsfor refugees. UNHCR to provide protection and national organisations work alongside Governments, civilsociety andinter Source: UNHCR,Global

provide solutions for refugees. assist governments to finddurable refugees; and August 2005 UNHCR, AnIntroduction to International Protection, December 1950, A/RES/428(V) United Nations HighCommissioner for Refugees, 14 UN General Assembly, Statute ofthe Office ofthe 5% Americas: Europe: 16% 17% Africa: Middle East&North (excluding 27% Africa Africa): North &Pacific:Asia 35% international protection for T all actions aimed at ensuringat aimed actions all rends 2012 UNHCR regions by the end of 2012 poul Refugee a tion

by ’ 8 is defined is by

- 11 CHAPTER I CHAPTER II

Pakistani refugees in Bangkok, Thailand /Andrew McConnell/Panos Pictures/The IRC CHAPTER III 1.3. International protection – in Europe live in Germany (589,737) needs and numbers and Turkey (267,063).15

By the end of 2012, there were 35.8 Although refugees are generally por- million9 ‘persons of concern’10 to trayed as living in camps, the reality UNHCR. Of this number, 10.5 million is that two-thirds of the world’s 10.5 CHAPTER IV were refugees,11 the majority of million refugees now reside in urban whom were in Africa and Asia.12 settings in cities and towns.16 Although urban environments may provide Approximately 80% of the world’s ref- greater opportunities for self-reliance, ugees are hosted by developing coun- urban refugees are often exposed to tries. Pakistan hosts the largest number additional protection risks such as of refugees in the world (1.64 million), arbitrary arrest, detention and depor- CHAPTER V followed by Iran (868,200).13 In Europe, tation. The dispersal of urban refugees the refugee population increased by throughout cities also limits outreach more than 16% to 1.8 million, largely as and registration activities by UNHCR a result of the arrival of 308,000 Syrian and its partners, meaning that urban refugees into Turkey.14 Most refugees refugees can be a relatively ‘invisible’

group, lacking documentation and CHAPTER VI 9 UNHCR, Global Trends 2012 with limited access to assistance. 10 See footnote 6 11 This figure does not include the 4.9 million Many urban refugees are subsequently Palestinian refugees under the mandate of the United Nations Relief and Works Agency for forced into illegal employment or other Palestinian Refugees (UNRWA) 12 UNHCR, Global Trends 2012 13 By the end of 2012. UNHCR, Global Trends 2012 15 By the end of 2012. UNHCR, Global Trends 2012 14 Some 68,600 returned spontaneously to Syria over 16 UNHCR, Urban Refugees - Trying to get by in the the course of the year. City, 2013 CHAPTER VII 12

precarious income-generating activities regions.21 The largest of these in terms of such as prostitution, and have limited size of refugee population are Afghan ref- access to adequate housing, healthcare ugees in Pakistan (1.64 million22), Afghan and education.17 refugees in Iran (840,15823) and Somali refugees in Kenya (492,04624). By the end of 2012, around 60% of the world’s refugees (6.4 million persons) A protracted and forgotten refugee crisis: were in protracted refugee situations.18 the Rohingya in Bangladesh UNHCR defines protracted refugee situations as those in which refugees are The Rohingya refugee situation in Bangladesh is trapped in exile for 5 years or more after listed amongst the ‘forgotten crises situations’, their initial displacement, without imme- as identified by the European Commission’s diate prospects for implementation of Directorate General for Humanitarian Aid durable solutions.19 Although their lives (DG ECHO) in 2012.25 The UN has described may not be at immediate risk, refugees the Rohingya as one of the most persecuted in protracted situations are unable to minorities in the world.26 Aid workers compare return to their home country and are the lack of acceptance and discrimination of denied a legal status in the country of Rohingya in Asia as similar to that of the Roma asylum that would afford them both basic in Europe. In 1982, the Burmese Government rights and reasonable prospects for local passed a Citizenship Law that denied citizenship integration. to the majority of the Rohingya population, thereby legitimising their subsequent discrimi- Refugees are spending increasingly longer natory treatment. Since 1991, outbreaks of periods in exile, with the average time violence between Muslim and Buddhist popu- that refugees spend outside of their coun- lations pushed more than 250,000 Rohingya tries rising from 9 years in the early 1990s into neighbouring Bangladesh. In 2012, vio- to 20 years currently.20 There are some lence in Rakhine State between the Buddhist 30 major protracted refugee situations majority and the Muslim Rohingya minority around the world, the majority of which resulted in the displacement of a further are located in very poor and unstable 115,000 Rohingya.27

17 Pavanello, S., Elhawary, S. & Pantuliano, S., Hidden 21 ibid. and exposed: Urban refugees in Nairobi, Kenya, HPG 22 By the end of 2012. UNHCR, Projected Global Working Paper, March 2010 Resettlement Needs 2014 18 UNHCR, Global Trends 2012 23 ibid. 19 UNHCR Executive Committee, Conclusion on 24 UNHCR, Somali Refugees in the region as of 17th Protracted Refugee Situations, No. 109 (LXI) May 2013 8 December 2009; see also UNHCR Executive 25 European Commission, Commission Staff Working Committee, 12 Protracted refugee situations’ , 30th Document, General Guidelines on Operational meeting of the Standing Committee, EC/54/SC/ Priorities for Humanitarian Aid in 2013, 27 CRP14, 2004 November 2012 20 Loescher, G. & Milner, J., Responding to protracted 26 Radio Free Asia, UN expert visits refugee camps, 11 refugee situations. Lessons from a decade of dis- February 2013 cussion, Forced Migration Policy Briefing, January 27 UNHCR, UNHCR calls for urgent action to prevent Rohingya

Chapter I – Resettlement and International Protection Chapter I – Resettlement 2011 boat tragedies, Briefing notes, 22 February 2013 13

Bangladesh is not a signatory to the 1951 1.4. Durable solutions CHAPTER I Refugee Convention nor its 1967 Protocol. Over 29,000 refugees from northern Rakhine UNHCR is mandated to find durable state currently live in Kutupalong and Nayapara solutions for refugees. Durable solu- refugee camps in Bangladesh’s Cox’s Bazar tions seek to resolve the situations of area. It is estimated that an additional 200,000 individual refugees in a manner that unregistered Rohingya reside outside these ensures their long-term security and

camps, mostly in makeshift semi-urban sites fundamental rights. UNHCR is man- CHAPTER II adjacent to the official camps. dated to provide the following durable solutions in cooperation with states: The majority of these refugees remain entirely  Voluntary repatriation - a refugee is dependent on humanitarian assistance, while able to return to his/her country of their physical and emotional wellbeing is seri- origin in safety, with dignity and as

ously affected by the lack of any significant the result of their free and informed CHAPTER III durable solution to their situation. There decision. remains an urgent need for the resettlement  Local integration - a refugee is proof Rohingya. Countries including the United vided with a permanent right to stay Kingdom and Ireland resettled Rohingya in in the country of asylum including, 2008. However, the Bangladeshi government in some situations, as a naturalised has ceased to cooperate on resettlement with citizen. Local integration is a gradual CHAPTER IV UNHCR, leaving the refugees largely devoid of process which includes three inter- any future prospects for a resolution of their related dimensions - legal, economic status.28 and socio-cultural.  Resettlement - a refugee is selected 28 UNHCR, Global Appeal 2012-2013 Bangladesh, December 2011 and transferred from a state in CHAPTER V CHAPTER VI

Ecuador/Colombian refugees/UNHCR provides financial assistance for refugees and local children to attend school/UNHCR/B.Heger CHAPTER VII 14

which they have sought protection With the aim of resolving the Burundian to a third state that has agreed to refugee situation in Tanzania, UNHCR imple- receive them as refugees with a per- mented a strategy that combined voluntary manent residence status. repatriation, local integration and resettlement to third countries. It is important to note that there is no hierarchy among these three durable Since 2002, UNHCR has assisted in the vol- solutions. The three solutions are com- untary repatriation and local integration of plementary in nature and, when applied 417,000 Burundian refugees.31 Approximately together, can form a viable and compre- 162,000 Burundians who have lived in hensive strategy for resolving a refugee Tanzania since 1972 have become naturalised situation.29 This means, for example, citizens, although this option has not been while voluntary repatriation is ongoing made available to those who arrived during for a certain refugee population, specific and after the 1990s.32 Since 2005, 12,000 individuals or groups of refugees within Burundian refugees were resettled to a third this population can simultaneously be country, with UNHCR planning the reset- considered for resettlement. Although tlement of a further 2,000 refugees in 2013. UNHCR has a leading role in relation to each of these durable solutions, their Since the implementation of the strategy, successful application is also dependent the Tanzanian Government has reduced the on the participation of other actors, pri- number of refugee camps from eleven in marily states. early 2007 to two camps in 2012.33 In August 2012, the Government declared the cessation of refugee status for the remainder of the Three durable solutions, one country: the Burundians in Tanzania, officially requiring Burundian refugee situation in Tanzania that they leave the country by the end of 2012. In October 2012, a Special High Level Tanzania hosts one of the largest refugee Meeting was convened between UNHCR, populations in the world. In 2013, the largest other international organisations and the refugee groups were Congolese (from the governments of Burundi and Tanzania to Democratic Republic of the Congo, com- develop measures to ensure stable conditions prising 63,330 refugees) and Burundians and the avoidance of a humanitarian crisis for (35,343).30 returning Burundian refugees.34

31 Consolidated inter-agency information note on the closure of the Mtabila camp in the United Republic of Tanzania and the return to Burundi of the former refugees – 15 October 2012 – 31 March 2013 29 UNHCR, Agenda for Protection, October 2003 32 ibid. 30 As of 1 January 2013. UNHCR, Projected Global 33 ibid.

Chapter I – Resettlement and International Protection Chapter I – Resettlement Resettlement Needs 2014 34 ibid. 15

However, refugees do not have a right

2. RESETTLEMENT CHAPTER I to resettlement and no state is legally In practice, resettlement is available as a obliged to resettle refugees. durable solution for a comparatively small number of refugees. In 2012, less than 1% 2.2. Functions of resettlement of the world’s refugees were resettled to a third country.35 Resettlement is geared Resettlement has three distinct func- primarily towards the specific needs of tions in the context of international CHAPTER II refugees whose life, liberty, safety, health protection. It is: or fundamental human rights are at risk  a tool to provide international pro- in the country where they have sought tection to refugees with specific and protection (the country of asylum). The immediate protection needs; decision to resettle a refugee is nor-  a durable solution for refugees

mally made only in the absence of other alongside the other durable solu- CHAPTER III durable solutions, or where resettlement tions of voluntary repatriation and is the only way to secure permanent local integration; and safety and fundamental rights.  a responsibility-sharing mechanism and an expression of solidarity with 2.1. Definition countries of asylum, the majority of which are in the developing world. CHAPTER IV UNHCR defines resettlement as: ‘the selection and transfer of refugees 2.3. Who is resettled? from a State in which they have sought protection to a third State which has 2.3.1. Refugee recognition as a pre-con- agreed to admit them – as refugees – with dition for resettlement consideration permanent residence status. The status Resettlement is only available to provided ensures protection against refugees recognised by UNHCR under CHAPTER V refoulement and provides a resettled its mandate37 who have a continued refugee and his/her family or dependants need for protection. The few excep- with access to rights similar to those tions to the pre-condition of refugee enjoyed by nationals. Resettlement also recognition are non-refugee stateless carries with it the opportunity to even- persons and certain non-refugee family

tually become a naturalised citizen of the members of refugees. CHAPTER VI resettlement country.’36

37 In addition to ‘Convention refugees,’ UNHCR’s protection mandate also extends to persons ‘who are 35 For example, of the 10.5 million refugees in 2012, outside of their country of nationality or habitual UNHCR submitted 74,835 refugees for resettlement residence and unable to return there owing to in 2012, and 69,252 departed (UNHCR Projected serious and indiscriminate threats to life, physical Global Resettlement Needs 2014). integrity or freedom resulting from generalised vio- 36 UNHCR Resettlement Handbook, 2011 lence or events seriously disturbing public order.’ CHAPTER VII 16

Refugee status determination (RSD) is not normally undertaken by resettlement staff but rather by protection UNHCR or eligibility staff, partially as an addi- resettlement tional safeguard against fraud in the departures in 2012 by unhcr submission resettlement process. categories

Although UNHCR may consider refugees for resettlement under one Legal and/or physical protection needs: 38% of the broader refugee definitions,38 Survivors of violence and/or torture: 14% states are responsible for deter- Medical needs: 3% Women and girls at risk: 8% mining who within their jurisdiction Family reunification: 1% they consider to be a refugee. Many Children and adolescents at risk: 1% Lack of foreseeable altern ative durable states restrict their resettlement pro- solutions: 36%

grammes to refugees recognised under Source: UNHCR Projected Global Resettlement Needs 2014 the 1951 Convention, meaning that in practice resettlement prospects are  Survivors of torture and/or violence, often more limited for refugees recog- in particular where repatriation nised by UNHCR under these broader or the conditions of asylum could definitions. result in further traumatisation and/ or heightened risk; or where appro- 2.3.2. Resettled refugees by UNHCR priate treatment is not available in Resettlement Submission Categories the country of asylum. Resettlement should be considered when refugees face protection risks in  Medical needs, in particular where their country of refuge or have other life-saving treatment is not available particular needs, as detailed under in the country of asylum. the various UNHCR Resettlement Submission Categories39 listed below  Women and girls at risk, who have (for more details, see Annex I): protection problems particular to their gender (see case study below).  Legal and/or physical protection needs of the refugee in the country  Family reunification, when reset- of asylum, including a threat of tlement is the only means to reunite refoulement. refugee family members who, owing to refugee flight or displacement, are separated by borders or entire

38 Ibid. continents.

Chapter I – Resettlement and International Protection Chapter I – Resettlement 39 UNHCR Resettlement Handbook, 2011 17

 Children and adolescents at risks, and return to her country of origin CHAPTER I risk where a Best Interests was not possible, her case was referred for Determination (BID assessment) resettlement as a ‘women-at-risk’ on an supports resettlement. ‘urgent’ basis (processing of the case in 1-2 weeks). The Swedish Government accepted  Lack of foreseeable alternative Josephine and her children for resettlement. durable solutions, relevant when

other solutions are not feasible in Marisa Gomez Fernandez, Resettlement CHAPTER II the foreseeable future, when reset- Expert & ICMC Deployee – Kibondo, Tanzania tlement can be used strategically and/or when it can create possibilities for comprehensive solutions. 2.3.3. Resettled refugees by countries of origin and asylum

In 2012, UNHCR submitted a total of CHAPTER III Protecting women at risk: a story from the field 74,839 refugees for resettlement.40 The main beneficiaries were refugees from Josephine, a Burundian woman, arrived in Burma (22,074), Iraq (10,760), Bhutan Tanzania with her husband. After some time (9,923) and Somalia (7,174), who he disappeared from the camp, abandoning together constituted more than 60% of her and their children. From that time on, all UNHCR resettlement submissions.41 CHAPTER IV Josephine became the victim of systematic 69,256 departed to resettlement coun- sexual assaults at the hands of fellow ref- tries in 2012. The main beneficiaries, a ugees in the camp. Josephine reported these number of whom had been submitted assaults to the camp authorities but they for resettlement prior to 2012, were did not take her claims seriously. The camp refugees from Burma (17,359), Bhutan chairman finally became aware of Josephine’s (16,674) and Iraq (13,556).42 The largest problems and told UNHCR field staff, who in groups of refugees departed from CHAPTER V turn informed the Protection Unit. There locations in Nepal (16,754), Malaysia have been other cases of violence against (10,489), and Thailand (7,274).43 women refugees in the camps that have left women physically injured and psychologically traumatised. CHAPTER VI The only way to provide Josephine with effective protection was to remove her from 40 UNHCR, Top Ten: UNHCR Resettlement Submissions in 2012. UNHCR, Projected Global Resettlement the camp as soon as possible. Since relo- Needs 2014 41 ibid. cation to another camp was not considered 42 UNHCR, Top Ten: UNHCR Resettlement Departures in 2012. UNHCR, Projected Global Resettlement a solution as she could be exposed to similar Needs 2014 43 ibid. CHAPTER VII 18

UNHCR departures in 2012 by region 2.4. Strategic use of resettlement of asylum and region of origin 444546 UNHCR defines the strategic use of

region of region of resettlement as: ‘the planned use of asylum44 origin45 resettlement in a manner that maxi- mises the benefits, directly or indi- Asia and 37,394 39,905 the Pacific rectly, other than those received by the refugee being resettled. Those Africa 11,342 15,170 benefits may accrue to other refugees, MENA46 13,725 13,860 the hosting state, other states or the Europe 6,473 41 international protection regime in general.’49 The 318 261 Americas Resettlement is often an important Unspecified 15 strategic component in negotiations Total 69,252 69,252 and formal agreements between countries of asylum, UNHCR and other In 2012, UNHCR assisted in the resettlement partners. The strategic departure of 54,474 refugees from use of resettlement to third countries sixteen protracted situations47 which can contribute to improving conditions have a total refugee population of for refugee populations in countries of 3,796,460.48 This represented almost asylum, by ensuring continued access 80% of the total number of UNHCR to protection and promoting more resettlement departures in 2012. favourable consideration of local integration. It can also help to ‘unlock’ See Chapter III for a detailed description refugee situations, most particularly of these situations, outlining current protracted refugee situations. needs for resettlement.

Strategic use of resettlement: the example of the Palestinian refugees in Al-Tanf camp

Al-Tanf was a makeshift refugee camp located 44 UNHCR, Projected Global Resettlement Needs 2014 in a no-man’s land along the Iraq-Syria 45 UNHCR, Projected Global Resettlement Needs 2014 46 Middle East and North Africa border. The camp was established in 2006 47 Including Afghans in Pakistan and Iran, Somalis in Kenya, Burmese in Thailand, Bhutanese in Nepal, for Palestinian refugees fleeing persecution Eritrean in Sudan, Congolese and Burundians in Tanzania and Sudanese in Uganda 48 Annex 3: UNHCR, Global Resettlement Statistical Report 2012 in UNHCR Projected Global 49 UNHCR, The Strategic Use of Resettlement, June

Chapter I – Resettlement and International Protection Chapter I – Resettlement Resettlement Needs 2014 2003 19 CHAPTER I CHAPTER II

Closing of Al Tanf camp/UNHCR/B.Diab/February 2010 CHAPTER III in Iraq and who - unlike Iraqis - were refused expanding the asylum space in Syria and facil- entry to Syria by the Syrian authorities. Their itating better access to detention facilities for stay in the camp was intended to be tem- UNHCR at that time. porary but lasted nearly four years, during which time they faced very harsh conditions. Refugees in the camp suffered from severely In 2012, the Annual Tripartite CHAPTER IV restricted freedom of movement, inadequate Consultations on Resettlement (ATCR)/ living conditions, physical insecurity and Working Group on Resettlement (WGR) limited access to medical and other services. designed the following seven priority With no prospect of admission to Syria or of refugee situations for the strategic use return to Iraq, as well as a lack of legal status of resettlement: and poor conditions in the camp, resettlement 1) Somali refugees in Kenya was identified as the only viable solution for 2) Afghan refugees in Iran CHAPTER V the Palestinian refugees in Al-Tanf. As a result 3) Afghan refugees in Pakistan of joint efforts between UNHCR, the Syrian 4) Refugees in Turkey authorities and resettlement countries, over 5) Iraqi refugees in Syria, Jordan and 1,000 Palestinian refugees were resettled to Lebanon countries including Brazil, Chile, Iceland, Italy 6) Colombian refugees

and Sweden, and Al-Tanf camp was subse- 7) Refugees from the Democratic CHAPTER VI quently closed in February 2010. Republic of Congo

The operation had contributed to strengthening UNHCR’s cooperation with the Syrian authorities, thereby preserving and CHAPTER VII Chapter II – Global Resettlement resettlement to the US/UNHCR/R.Nuri/2012 A Sudanese refugee leaves Shoushafor 21

1. UNHCR RESETTLEMENT policies, as well as support the work in OPERATIONS field offices in their respective regions. The regional approach has been UNHCR is mandated to provide inter- adopted for these areas in response national protection for refugees and to the comparatively large numbers of to assist states to find durable solu- field offices involved in resettlement in tions for them. As such, UNHCR offices the regions. The main function of the play a central role in the coordination, Hubs is to improve coordination and CHAPTER II planning and implementation of planning at the regional level, ensuring resettlement activities at all levels and greater consistency and transparency stages of the process. in the processing of resettlement. In other regions, UNHCR field offices The Resettlement Service of the coordinate the implementation of

Division of International Protection resettlement activities and commu- CHAPTER III at UNHCR Headquarters in Geneva is nicate directly with the Resettlement responsible for: Service.2  assisting field offices and Regional Bureaus to develop resettlement activities in different operational 2. GLOBAL contexts;

RESETTLEMENT NEEDS CHAPTER IV  setting standards and guidelines for AND CAPACITY resettlement work;  assessing global resettlement needs; Global resettlement needs are  managing resettlement dossier sub- increasing. For 2014, UNHCR estimates missions; and a global total of 691,000 persons as in  coordinating the establishment and need of resettlement, not including implementation of resettlement the possible resettlement needs gen- CHAPTER V programmes in emerging reset- erated by the massive outflow of Syrian tlement countries. refugees into neighbouring countries.3 Currently, resettlement countries Regional Resettlement Hubs in Nairobi around the world make around 86,000 (Kenya)1 and Beirut (Lebanon) coor- places available for UNHCR reset- 4 dinate and monitor the implementation tlement submissions. CHAPTER VI of UNHCR resettlement criteria and

2 In addition to the two Hubs, Regional Resettlement 1 The Nairobi Hub support resettlement activities in Officers in Dakar and Pretoria play an important the following 13 countries: Burundi, Democratic role in coordinating and providing support to reset- Republic of Congo, Djibouti, Eritrea, Ethiopia, tlement activities in their respective regions. Gabon, Republic of the Congo, Rwanda, South 3 UNHCR, Projected Global Resettlement Needs 2014 Sudan, Somalia, Sudan, Tanzania and Uganda. 4 Ibid. CHAPTER VII 22

of factors including efforts made by the United States to expedite security clear- 2014 global ances and the use of videoconferencing projected tools for the selection of refugees living resettlement needs in inaccessible areas. by region of asylum resettlement needs, capacity, submissions and departures Africa: 49% by region of asylum Asia & Pacific: 39% 300,000 MENA: 5% 250,000 The Americas: 4% 200,000 Europe: 3% 150,000 Source: UNHCR, Projected Global Resettlement Needs 2014 100,000 50,000 0 UNHCR’s capacity to process reset- frica A urope MENA E

tlement cases is limited. In 2012, UNHCR mericas sia & Pacific he A A submitted 74,835 refugees for reset- T tlement, a decrease of 18% from the Projected resettlement needs for 2014 91,843 submitted in 2011.5 Submission UNHCR capacity (staff and affiliate workforce) in 2014 levels declined primarily due to resource UNHCR Resettlement submissions in 2012 constraints, restrictive processing cri- UNHCR resettlement departures in 2012 teria and deteriorating security condi- Source: UNHCR Projected Global Resettlement Needs 2014 tions in countries of asylum, which ham- pered access to refugee populations for 3. RESETTLEMENT resettlement processing.6 COUNTRIES

A gap between resettlement submis- A total of 28 countries, listed in the table sions and departures remains. Of the below, are implementing or plan to 74,835 submitted for resettlement implement a resettlement programme by UNHCR in 2012, 69,252 refugees in cooperation with UNHCR in 2013-14. departed to 26 countries of resettlement during the same year,7 a 12% increase In 2012, approximately 90% of global from the 61,649 departures in 2011. This resettlement places were offered by the increase can be explained by a number United States (70,000), Canada8 (7,100) and Australia (20,000); while the sixteen European resettlement countries 5 Annex 3: UNHCR Global Resettlement Statistical Report 2012 in UNHCR, Global Resettlement Statistical Report 2014 6 UNHCR, Projected Global Resettlement Needs 2014 8 Government-Assisted Refugees (GAR). See section

Chapter II – Global Resettlement Chapter II – Global 7 UNHCR, Projected Global Resettlement Needs 2014 7.2 of this chapter on Canada for more details 23 accounted for just 8% of global reset- determine how best to revitalise the tlement places. Of the 69,252 refugees existing international refugee protection who departed during 2012: 50,097 went regime. One outcome of this process was to the United States, 9,988 to Australia the Agenda for Protection,12 a document and 6,226 to Canada.9 adopted in 2002 that outlines tools and 10 approaches for improving global refugee Resettlement protection. Initiatives emerging from the

Continent CHAPTER II countries Global Consultations included: Asia Japan (pilot programme)  Convention Plus - an initiative providing tools to implement special Europe Belgium (2013), Bulgaria agreements for the provision of (2014), Czech Republic, Denmark, Finland, France, comprehensive solutions for refugee Germany, Hungary situations. (2013), Iceland, Ireland,  The Multilateral Framework of CHAPTER III Netherlands, Norway, Understandings on Resettlement Portugal, Romania, Spain, - reached in the context of the Sweden, Switzerland (2014), United Kingdom Convention Plus initiative. While not legally binding, the framework North Canada, United States America is intended to strengthen the international refugee protection system CHAPTER IV Oceania Australia, New Zealand through a more strategic use of South Argentina, Brazil, Chile, resettlement that benefits a greater America Paraguay,8 Uruguay number of refugees.13 Its purpose is to guide parties - UNHCR, first countries of asylum, resettlement coun- 4. MECHANISMS FOR tries, countries of origin and IOM - to GLOBAL RESETTLEMENT reach situation-specific, multilateral CHAPTER V PLANNING agreements on comprehensive arrangements involving multilateral In late 2000, UNHCR launched the resettlement operations. Global Consultations on International Protection.11 The initiative aimed to Together, these initiatives created

engage states and non-governmental new impetus for resettlement and CHAPTER VI organisations (NGOs) in a dialogue to strengthened the concepts of a

9 Annex 3: UNHCR Global Resettlement Statistical Report 2012 in UNHCR, Global Resettlement 12 UNHCR, Agenda for Protection, October 2003, Third Statistical Report 2014 edition 10 While Paraguay has established a regular resettlement 13 High Commissioner’s Forum, Multilateral programme, the intake is currently suspended. Framework of Understandings on Resettlement, 11 http://www.unhcr.org/pages/4a16b14b6.html FORUM/2004/6, September 2004 CHAPTER VII 24

comprehensive approach to durable mechanisms for information-sharing solutions and the strategic use of and dialogue among relevant stake- resettlement. holders, and bring more predictability and transparency to the process.14 These Several mechanisms also exist for the coordinated approaches are examples of practical planning of global resettlement. the strategic use of resettlement. UNHCR produces an annual Projected Global Resettlement Needs document The Contact Group on Afghan refugees in Iran to assist resettlement countries to plan In 2010, a Contact Group on Afghan refugees annual activities including the allocation in Iran was established to enhance their of resettlement places and associated ongoing resettlement (see Chapter III). Chaired staff capacity (see chart in section 2 of by Sweden, with a membership comprising this chapter). The projected global reset- UNHCR and selected resettlement countries tlement needs and priorities set out in (Australia, Canada, Finland, Germany, Norway the document are based on the out- and Brazil (observer)), the Contact Group comes of annual resettlement assess- works in close cooperation with the Iranian ments undertaken by UNHCR field and government. It aims to increase the number regional offices. of resettlement places available for Afghan refugees in Iran, and to encourage multi-year To promote the strategic use of reset- commitments by resettlement countries so as tlement and a comprehensive approach to make the resettlement process more pre- to durable solutions, resettlement dictable and reliable for all parties.15 countries may periodically establish Contact Groups or Core Groups to coordinate resettlement efforts in relation 5. PARTNERSHIPS IN to specific refugee situations, particu- RESETTLEMENT larly protracted refugee situations. By establishing a Contact/Core Group, the Resettlement is a partnership activity. resettlement countries appoint a chair Offering refugees the opportunity to and signal their intention to boost reset- settle in a new country is dependent on tlement activities and other durable effective cooperation between multiple solutions, and to use this enhanced actors working in international, national, engagement to maximise protection and regional and local contexts across the solutions for specific refugee populations. Contact Group members often 14 UNHCR, Discussion Paper: Implementation of the Strategic Use of Resettlement , September 2011 increase the number of resettlement 15 Other Contact Groups include Contact Group in Iran, Contact Group on Afghan Refugees in Pakistan and places they provide for refugees Contact Group on Colombian refugees. A Contact Group on Congolese refugees will start in 2013. from identified situations, establish For more details about these Contact Groups, see

Chapter II – Global Resettlement Chapter II – Global Chapter III on the refugee situations. 25 world. Partnerships between actors are per cent of all resettlement submissions present throughout the resettlement to be assigned to cases of women and process, including in the identification girls at risk. In 2012, this target was met and referral phase, resettlement pro- for the second consecutive year, and cessing, selection and travel, as well exceeded with more than 11 per cent as in reception and integration in the of all resettlement submissions falling receiving countries. under this category. CHAPTER II 5.1. Partnership mechanisms in The Working Group on Resettlement resettlement (WGR) meets once or twice a year, and brings together states and UNHCR to The Annual Tripartite Consultations review commitments made during the on Resettlement (ATCR) is an annual preceding ATCR and ensure their respon-

conference held in Geneva that brings siveness to current resettlement needs. CHAPTER III together states, NGOs and UNHCR to NGOs participate in WGR meetings on a discuss global refugee resettlement limited basis. planning, operations and collaboration. In 2013, resettled refugees were invited 5.2. States as resettlement to participate. UNHCR shares the partners Projected Global Resettlement Needs CHAPTER IV document with states ahead of each ATCR 5.2.1. Resettlement countries meeting. The ATCR provides the oppor- Resettlement countries offer the reset- tunity to raise awareness among states tlement places and programmes that about resettlement-related issues, with make global resettlement possible. a view to building consensus support Resettlement countries - including those in the UNHCR Executive Committee with resettlement programmes and (ExCom)16 for key resettlement issues, those that operate Emergency Transit CHAPTER V including the establishment of new Facilities (ETFs) - are full members of the programmes. In 2006, for example, the ATCR and WGR processes. Countries ExCom adopted Conclusion No 105 on that carry out ad-hoc resettlement or Women and Girls at Risk, and UNHCR are planning imminent resettlement set an implementation objective for 10 programmes are admitted as observers. CHAPTER VI 16 Created in 1958, the Executive Committee of the 5.2.2. Countries of asylum High Commissioner’s Programme (ExCom) advises the High Commissioner on policy issues. ExCom Cooperation and dialogue between members are UN Member States with an interest in refugee issues. The ExCom meets once a year to countries of asylum and UNHCR is approve the agency’s programmes and budget and advise on international protection; and is supported essential for the implementation by a Standing Committee which usually meets three times each year. UNHCR provides biannual progress of global resettlement operations. reports on resettlement to the Standing Committee. CHAPTER VII 26

Countries of asylum can grant or prevent services for resettled refugees. These access to refugee populations, and are partnerships are often established through responsible for crucial policy decisions service contracts or informal agreements. affecting resettlement processes such Another category of partnership include as exit documentation, internal travel to NGOs who are active in the reception and the point of departure and the security integration of refugees in the resettlement of resettlement operations. country. Additionally, NGOs play a key role in advocacy and awareness-raising 5.3. NGOs as resettlement related to refugee protection and reset- partners tlement in countries of origin, asylum and resettlement. Non-governmental organisations (NGOs) play a central role in global and national Operational partnership in countries of resettlement processes and programmes. asylum: The UNHCR-ICMC Resettlement Deployment Scheme In the context of field operations, UNHCR has defined two types of partnerships with To meet increasing global resettlement needs, NGOs - implementing and operational. UNHCR and ICMC established the UNHCR-ICMC Implementing partnerships are those in Resettlement Deployment Scheme in 1998. which UNHCR provides financial support Through this partnership, ICMC deploys reset- to an NGO to perform specific functions tlement case workers to UNHCR field duty that assist refugees and which are set offices to boost UNHCR capacity to identify out in a formal agreement. Operational and refer refugees for resettlement. To date, partnerships involve the voluntary close ICMC has placed more than 1,000 deployees in coordination of activities between UNHCR refugee protection operations. and NGOs without financial support from While the majority of ICMC deployees work in UNHCR. The second type of partnership is the field in Africa, where resettlement needs more common in resettlement. are traditionally the highest, deployees are also active in the Middle East, Asia and Latin In countries of asylum, NGOs are active in America. In 2012 alone, ICMC deployees put the identification of refugees, the provision forward 36,880 refugees for resettlement of training and capacity-building for actors consideration, contributing significantly to the and stakeholders, and in the preparation total of 74,839 persons submitted by UNHCR to of resettlement cases. In resettlement resettlement countries that year. countries, NGOs often work in partnership In addition to significantly enhancing UNHCR’s with governments, including regional and/ capacity to refer refugees for resettlement, or local authorities, to provide post-arrival ICMC provides child protection expertise to reception and integration support and UNHCR field operations. ICMC child protection Chapter II – Global Resettlement Chapter II – Global 27

experts, who worked in twelve different The IOM-UNHCR partnership17 is long- UNHCR field offices in 2012, are instrumental standing. Together, both organisations have in assessing and determining the best interests promoted comprehensive approaches of unaccompanied and separated refugee to displacement and developed models minors. The deployment of these specialists of cooperation in many areas including resulted in three times the number of Best - although not limited to - prevention, Interest Determinations (BIDs) and Best information campaigns, voluntary repatri-

Interest Assessment interviews (BIAs) in 2012 ation of refugees and internally displaced CHAPTER II as compared to the preceding year. Based on persons, in-country processing and contin- first-hand experience at the field level, in 2012 gency planning. ICMC prepared a report describing child protection challenges on the ground and offering UNHCR-IOM partnership recommendations to address these concerns. The case of refugees ex-Libya (2011-12) CHAPTER III One recent example of cooperation between 5.4. International Organisation UNHCR and IOM is the emergency operation for Migration (IOM) in Tunisia and Egypt (2011-12), which took place following the outbreak of civil conflict Founded in 1951 to assist in the reset- in Libya. This unanticipated emergency gen- tlement of Europeans displaced in the erated a massive influx of migrants, refugees CHAPTER IV aftermath of World War II, the International and asylum seekers from Libya into Tunisia and Organisation for Migration (IOM) has Egypt. Having experienced considerable recent provided essential services in support of political upheaval, both countries were caught refugee resettlement operations for over off guard and without contingency plans. six decades. In the last decade alone, IOM has organised resettlement move- The need to find urgent solutions for the ments of 892,243 refugees from 186 displaced called for the joint expertise of CHAPTER V locations around the world. IOM works UNHCR and IOM and resulted in an ‘unprec- with UNHCR, and is directly contracted edented level of cooperation between the two by resettlement countries to provide pre- organisations.’18 At the start of the crisis, the departure resettlement activities such as heads of both agencies (António Guterres of case processing, preparation of documen- UNHCR and William Lacy Swing of IOM), decided

tation, health assessments, pre-departure to jointly implement the humanitarian evacu- CHAPTER VI (‘fit-to-fly’) medical examinations, lan- ation programme. As well as enabling many guage training, pre-embarkation briefings and cultural orientation. IOM also coordi- 17 UNHCR/IOM/39/97-FOM/44/97 of 27 May 1997 on cooperation between UNHCR and IOM nates all travel for resettled refugees on 18 UNHCR (Policy Development des Evaluation Service), Leaving Libya. A review of UNHCR’s emer- behalf of resettlement countries. gency operation in Tunisia and Egypt, 2011-2012, April 2013 CHAPTER VII 28

Leaving for Germany from Djerba airport/IOM/2012 thousands of third country nationals to return resettlement needs and resettlement to their homes, the evacuation programme places, and between resettlement needs assisted UNHCR in its efforts to secure con- and UNHCR’s capacity to process cases tinued access to refugees and asylum seekers in - global resettlement faces a number of both Egypt and Tunisia. other challenges.

UNHCR reviewed the emergency operation in Many resettlement states are unable to Tunisia and Egypt and noted that ‘While the respond to emergency situations through evacuation operation proceeded in a generally their resettlement programmes. National effective and efficient manner, the refugee resettlement programmes often operate resettlement programme proved to be more according to plans and defined quotas set challenging. Particular difficulties were experi- in advance, and international responses enced in the areas of registration and refugee to emergency situations through reset- status determination, as well as the rigidity tlement are subsequently slower than of the resettlement quotas offered by states required. outside the region.’19 The increasing complexity of refugee profiles and requirements set by some reset- 6. GLOBAL CHALLENGES tlement countries, together with the appli- FOR RESETTLEMENT cation of non-transparent and potentially discriminatory selection criteria, can also In addition to challenges related to constitute obstacles to effective global capacity - both the gap between resettlement.

Chapter II – Global Resettlement Chapter II – Global 19 Ibid. 29

Access to refugee populations in particular meaning annual resettlement quotas are countries of asylum can be complicated by often not filled. volatile security situations, as is currently the case in Syria, Kenya, Eritrea and Yemen. A state’s need to manage security risks is For example, growing insecurity over the legitimate. However, security check proce- past two years in Dadaab refugee camp dures are often characterised by a lack of in Kenya has led a number of countries to transparency that causes frustration both withdraw staff conducting resettlement among refugees waiting to depart and CHAPTER II interviews in the camp. This situation has those working directly with them. In this severely impacted upon access to those in respect, and despite the relatively small need of resettlement within the camp. numbers of resettlement places offered by European countries, comparatively Since the attacks in New York on simpler security check procedures mean

September 11, 2001, states’ security con- European resettlement processes can be CHAPTER III cerns and the increasing securitisation of faster. immigration policy have led to expanded pre-departure security check procedures for resettled refugees. This policy trend 7. INTRODUCING THE is also reflected in stricter interpretations WORLD’S LARGEST of the refugee definition by some coun-

RESETTLEMENT CHAPTER IV tries, most particularly with respect to the PROGRAMMES exclusion clauses. In some cases, countries’ annual allocations of resettlement The majority of the world’s resettled ref- places have not been filled due to the ugees are received by three resettlement processing delays created by additional countries – the United States, Canada and security clearance and exit/entry docu- Australia. To promote awareness of these mentation requirements. For example programmes amongst European readers, CHAPTER V new security check procedures for and to draw inspiration for European resettled refugees, particularly by the US, resettlement from their experiences have lengthened resettlement processing and successes, NGO colleagues from the times. In 2012, efforts were made by the three programmes have been invited US to streamline the procedures which to share their thoughts in this edition of

led to an increase of the departures of ref- Welcome to Europe, and we thank Paul CHAPTER VI ugees from Iraq by 56% from 2011. Slow Power (Refugee Council of Australia), pace of Somali refugee departures remain Chris Friesen (Immigrant Services Society to be a concern. Because of the lengthy of British Columbia) and Anastasia Brown process, refugees are subsequently rarely (US Conference of Catholic Bishops) for resettled within 12 months of selection, their contributions. CHAPTER VII 30

At a glance

 Population/GDP (per capita): 22.7 million/AUD 65,591 (EUR 51,679.01)  Resettlement programme started in: 1947  Main national actors: Australian government, Refugee Council of Australia (RCOA), Settlement Council of Australia, 15 agencies and local consortia who deliver the Humanitarian Settlement Services programme  Current annual quota: 20,000, including asylum seekers granted refugee status in Australia. Approximately 12,500 are expected to be resettled in 2013.  Number of resettled refugees received in the past 2 years: 11,933  Nationality and country of asylum of largest groups resettled in 2012: Burma, Iraq, Afghanistan, Bhutan, Ethiopia, Congo (DRC), Eritrea, Iran, Somalia, Congo (ROC)

7.1. MESSAGE FROM AUSTRALIA Paul Power, CEO Refugee Council of Australia

Can you please describe the Australian resettlement programme. Australia’s resettlement programme is a partnership between the government and NGOs. The government provides financial support for a range of programmes delivered by NGOs, including cultural orientation, on-arrival orientation and assistance, English language programmes and support for torture and trauma survivors. NGOs also seek funding for additional services such as mentoring programmes, employment support, homework clubs and community development.

The Humanitarian Settlement Services programme, the government- funded on-arrival support programme for newly arrived refugees, is delivered by thirteen contractors in different parts of Australia. In most regions, the programme is delivered by consortia of agencies bringing together NGOs with local expertise to provide support to newly arrived refugees during their first year of settlement in Australia. Chapter II – Global Resettlement Chapter II – Global 31

What can other resettlement countries learn from the Australian approach? One of the strengths of Australia’s resettlement programme is that NGOs and refugee communities are widely consulted about its planning and operation. Australia began large-scale resettlement in 1947. Much of the early focus was on getting new arrivals to ‘assimilate’, with little understanding of how Australia might benefit from other cultures and new ways of thinking. Our settlement programmes have improved incrementally as we CHAPTER II have increasingly engaged former refugees in the process. To be effective, resettlement programmes need to involve former refugees in programme planning and in delivering services to new arrivals. We need to encourage and support refugee communities to develop their own structures and their own responses to the needs of community members. CHAPTER III How are NGOs involved in planning the Australian programme? Both NGOs and refugee communities are widely consulted in the planning and operation of the Australian refugee programme. The Refugee Council of Australia, with government funding support, conducts an annual national consultation process and prepares a community submission on issues for consideration in planning the next year’s programme. CHAPTER IV

Other NGOs are invited to prepare their own submissions, and these are brought together in an annual meeting of NGO peak bodies20 and the Minister for Immigration.

How do you work towards the empowerment of resettled refugees? One of the best examples of refugee involvement in the planning and CHAPTER V delivery of resettlement services is the Adult Multicultural Education Services (AMES) Community Guides programme. AMES is contracted by the Australian Government to provide post-arrival support to refugees settling in Melbourne and the state of Victoria. Over the past seven years, through its Community Guides programme, it has employed more than 700 former

refugees on a casual basis to assist new arrivals. CHAPTER VI

20 Peak bodies are representative, non-government organisations whose membership predominantly consists of other (legally unrelated) organisations of allied interests and which are recognised by other peaks and their sectors generally as representative of the whole of their sector. CHAPTER VII 32

Working as a Community Guide is often the first paid job former refugees have in Australia. Having their qualifications and skills recognised in Australia is a real struggle. Australian employers tend to give far more weight to Australian work experience than to any previous experience in countries of origin or asylum. So the Community Guide programme meets a pressing need to give recently arrived refugees the opportunity to demonstrate their capacities and reliability in the Australian labour market.

When recruiting Community Guides, AMES looks for former refugees with basic English language skills, links to their respective refugee community, some familiarity with Australian services and the capacity to assist new arrivals. Community Guides assist newly-arrived refugees to undertake practical tasks associated with their settlement as a part of a case management plan. They provide refugees with a voice, becoming their advocates, supporters and educators as they settle.

Being a Community Guide gives former refugees a much needed start to their working life in Australia. Many go on to work in associated fields as support workers, case managers, settlement information officers, employment consultants, housing workers, youth workers, counsellors in the Adult Migrant English programme and teachers’ aides.

Last August, the Australian government announced an increase in Australia’s annual refugee intake from 13,750 to 20,000 places per year. At the same time, offshore processing of asylum seekers was restarted. What do you think of these parallel policies? The decision to increase Australia’s refugee intake to 20,000 places per year was a welcome development that will provide more solutions for more refugees living in very difficult and often dangerous conditions overseas. As has been the case since 1996, the overall Australian quota includes resettled refugees and asylum seekers who are given refugee status in Australia. The increase of the programme to 20,000 places is likely to result in about 12,000 to 15,000 resettlement places each year in the coming years, with 12,000 places set aside for the programme coordinated with UNHCR (the remaining resettlement places being those provided under Chapter II – Global Resettlement Chapter II – Global 33

Australia’s Special Humanitarian programme). This decision will increase Australia’s refugee programme to its highest level in 30 years.

However, this commendable support for resettlement is occurring in a political environment in which Australia is seriously weakening its commitment to asylum. The Australian government has resorted to deterrent policies that punish asylum seekers for arriving by boat to seek asylum. CHAPTER II Some asylum seekers are being sent to Nauru and Manus Island in Papua New Guinea, denying them the opportunity to lodge protection claims in Australia.

The decision to apply the ‘no advantage’ test to boat arrivals’ claims being

processed on the Australian mainland lacks decency, and humanity and CHAPTER III further downgrades Australia’s international reputation for human rights. Under the changes announced by the Minister for Immigration, asylum seekers who arrived by boat after 13 August 2012, and all future arrivals, will be forced to wait for an indefinite period before being granted a protection visa – even after being recognised as refugees. The changes will see asylum seekers denied the right to work, placed on the lowest level of CHAPTER IV financial support and denied access to family reunion. They can also be sent to Nauru or Manus Island at any time.

RCOA and many other organisations have consistently argued that Australia must honour its international obligations to asylum seekers. We advocate working toward safer pathways to protection by engaging with our neighbours in Asia Pacific to build an effective regional refugee pro- CHAPTER V tection framework.

What do you think will be the operational challenges of the increased quota? The increase in the programme has been overwhelmingly endorsed by the

organisations and community members we have consulted. It is important CHAPTER VI that the increase in resettlement places is matched with careful planning and additional resources for settlement services. CHAPTER VII 34

What would be your advice to those seeking to increase public support and awareness about refugee resettlement? In Australia, public discussion about humanitarian arrivals focuses on asylum seekers. While the media does highlight the positive contributions made by refugees and the success of Australia’s refugee and humanitarian programme, the arrival of a comparatively small number of asylum seekers by boat generates substantially more media attention. Over the past decade, both the government and opposition have used asylum policy in domestic politics, a pattern that usually peaks close to national elections. The cumulative effect of this destructive debate has been the erosion of public trust in Australia’s refugee and humanitarian programme. Australia’s political leaders need to exercise leadership and be proactive in demonstrating to the public the strengths and benefits our resettlement programme is delivering to Australia’s economic and social life. Chapter II – Global Resettlement Chapter II – Global 35

At a glance

 Population/GDP (per capita): 34,482,779/CAD 52,246 (EUR38,894)  Resettlement programme started in: Late 1970s  Main national actors: Department of Citizenship and Immigration Canada (CIC); 33 NGOs – Resettlement Assistance programme service providers across Canada; 80 Sponsorship CHAPTER II Agreement Holders - religious, community, social or ethnic organisations involved in privately sponsoring refugees; independent and collaborative bodies, including Canadian Council for Refugees, Sponsorship Agreement Holder Council, Resettlement Assistance Programme National Working Group and the National Settlement Council  Current annual quota: 13,400 (7,100 Government-Assisted Refugees and 6,300 Privately

Sponsored Refugees) CHAPTER III  Number of refugees accepted for resettlement/Number of arrivals during the last two years: 12,776 Government-Assisted Refugees and 9794 Privately Sponsored Refugee accepted in 2011-2012  Nationality/country of asylum of largest groups resettled in 2012: not available CHAPTER IV 7.2. MESSAGE FROM CANADA Chris Friesen, Director of Settlement Services, Immigrant Services Society of British Columbia (ISS of BC)

Canada receives both government-assisted refugees and privately sponsored refugees. How do these different programmes work? CHAPTER V Government-assisted refugees are usually referred by UNHCR to a Canadian overseas mission. A Canadian visa officer will usually interview the applicant to verify refugee status and their need for third country resettlement. Medical and background security checks are then conducted. Privately sponsored refugees are either identified by individuals

based in Canada, on many occasions by an existing family member or CHAPTER VI partner organisation, or are referred by a visa office. A sponsorship application form is completed by a sponsoring group – a constituent group of a Sponsorship Agreement Holder, a community organisation, or any group of five or more individuals interested in sponsorship – and submitted to CHAPTER VII 36

the Canadian government for consideration and processing. A privately sponsored refugee may be accepted for resettlement under the Convention Refugee Abroad Class21 or Country of Asylum Class.22 Applicants in both classes must pass a medical exam and security and criminal checks. Under the Canada-Quebec Accord, the Quebec Government selects the refugees who settle in Quebec. CIC is responsible for determining whether a person selected by Quebec qualifies as a refugee based on Canadian immigration regulations.

What can other resettlement countries in Europe learn from the Canadian resettlement programme? The Canadian resettlement programme has been in existence for many years, and the role of NGOs and the active involvement of civil society is quite unique. NGOs across Canada have in place a number of innovative, promising practices to assist resettled refugees to integrate into Canadian society, funded primarily by the government. The relationship between NGOs and the government on refugee resettlement has strengthened over the years and various collaborative bodies exist, even in provinces where the role of NGOs is quite limited.

The private sponsorship programme is a Canadian innovation that dates back to the Indo-Chinese refugee crisis of the 1970s and early 1980s, and which dramatically increases the Canadian capacity to resettle refugees. This active engagement of private citizens through various religious, ethnic, social and community organisations could be considered another promising or best practice in refugee resettlement where learning could be shared with those in Europe.

21 An applicant who meets the 1951 Convention definition of a refugee, and is also: outside Canada, and wants to come to Canada; referred by the United Nations High Commissioner for Refugees (UNHCR) or another referral organisation, or sponsored by a private sponsorship group; and selected as a government- assisted or privately sponsored refugee, or has the funds to support themselves and any dependants that he/she has after arrival into Canada. 22 An applicant may be in this class if one is outside one’s home country or the country where one normally lives and has been, and continues to be, seriously and personally affected by civil war or armed conflict, or has suffered massive violations of human rights. The applicant must also satisfy the additional criteria outlined in the above footnote. Chapter II – Global Resettlement Chapter II – Global 37

What would be your advice to those seeking to increase public support and awareness about refugee resettlement? This issue is very complex and depends mainly on local factors and contexts. In Canada, we have found that engaging local host communities at the outset of a resettlement scheme lays the foundations for more public support. This requires receiving as much information as possible prior to refugees’ arrival, in some instances undertaking pre-arrival community planning with host CHAPTER II communities, and ensuring you have developed key messages when dealing with the media.

The public is not always clear about the difference between resettled refugees and asylum seekers. It is important to emphasise the humanitarian aspect

of the programme, and having advance information on the conditions that CHAPTER III refugees are coming from is also very important when engaging civil society. Identifying a refugee who is willing to share some of his or her personal migration story is a powerful tool in increasing public awareness of resettled refugees. Maintaining working relationships with key media contacts helps to increase their knowledge of refugee resettlement over time, and engaging media with suggested story ideas helps to position you as a ‘go-to’ person on CHAPTER IV refugee-related issues. CHAPTER V CHAPTER VI CHAPTER VII 38

At a glance

 Population/GDP (per capita): 311.6 million/US $49,922 (EUR 38,390)  Resettlement programme started in: Officially in 1980 by the Refugee Act. However, ad-hoc resettlement of Vietnamese boat people took place from 1975 onwards through the IndoChina Unofficial Ad Hoc Refugee Task Force.  Main national actors: Department of State’s Bureau of Population, Refugees and Migration (DOS/ PRM); Office of Refugee Resettlement (ORR); Refugee Council USA; Voluntary Resettlement Agencies (VOLAGS) - Church World Service; Episcopal Migration Ministries; Ethiopian Community Development Council; Hebrew Immigrant Aid Society; International Rescue Committee; LIRS; US Committee for Refugees and Immigrants; USCCB; World Relief Corporation); Mutual Assistance Associations (MAAs), and other service providers.  Current annual quota: 70,000  Number of refugees accepted for resettlement/Number of arrivals during the last two years: FY 2012: 58,238 with a ceiling approved at 76,000/53,063 arrivals in 2012 FY 2011: 56,424 with a ceiling approved at 80,000/43,215 arrivals in 2011  Nationality/country of asylum of largest groups resettled in 2012: Iraqi refugees/ Jordan, Lebanon, Iraq and Turkey; Bhutanese Refugees/ Nepal; Burmese refugees (Karen, Chin, Kachin, Karenni, Rohingya)/ Malaysia and Thailand

7.3. MESSAGE FROM THE UNITED STATES Anastasia Brown, Director of Refugee Programmes, US Conference of Catholic Bishops (USCCB)

Can you explain how the US quota is constructed and how refugees are selected for resettlement? Each year, the Department of State’s Bureau of Population, Refugees and Migration (DOS/PRM) conducts public consultations to discern possible ‘Refugee Ceilings’ for the United States Refugee Admissions Programme (USRAP). Consultations include stakeholders from every sector that may come into contact with arriving newcomer populations, including refugees. Consultation outcomes inform the Annual Report to Congress for refugee ceilings by global regions, prepared by DOS/PRM for congressional approval Chapter II – Global Resettlement Chapter II – Global 39

and required in US legislation.23 The process culminates each year with the signing of the Presidential Determination, officially sanctioning the proposed refugee ceiling numbers.

Refugees are selected and referred to the USRAP through a priority system established in the report to Congress. Priority 1 refugees are referred to the USRAP through UNHCR, a US embassy or a qualified referring NGO. CHAPTER II This group is typically prima facie refugees who have been granted refugee status through a UNHCR or host government process. Priority 2 refugees are groups identified by the US government that are of particular humanitarian concern to the US. Recent examples of this group are Burmese refugees from Thailand and Malaysia and Bhutanese refugees from Nepal.

The NGO community has played a historically significant role in identifying CHAPTER III vulnerable refugee populations within this priority group, and framing pro- grammatic needs for vulnerable refugee groups around the world. Priority 3 refugees receive access to the USRAP through identified family ties with refugees in the US. Affidavits of relationships, multiple screenings by the US government and DNA testing mean this programme is difficult to access. DOS/PRM will identify eligible nationalities within this programme CHAPTER IV annually through the report to Congress, and there are currently 22 eligible nationalities for this priority.

Do you think that the US model to select and process refugees could be a good approach for Europe? USCCB believes that the process the USRAP uses to identify and process refugees is a collaborative effort that depends on the strength of part- CHAPTER V nerships with NGOs. The consultation process allows for NGO input into the identification of refugee populations, and could absolutely serve as a model for European resettlement countries. NGO identification for groups outside of the UNHCR resettlement ‘pipeline’ has yielded very successful results in the US system. There are many European NGOs working in the

field serving vulnerable refugees that could be called upon to inform the CHAPTER VI identification and selection of refugees for resettlement to the EU.

23 See report to congress for 2013 http://www.state.gov/documents/organization/198157.pdf CHAPTER VII 40

The United States has the largest resettlement quota worldwide, but this quota has not been filled because of security clearances that often block resettlement. What can be done to solve this situation? USCCB has always asserted that refugee protection and good citizenship are compatible. In 2011, domestic security concerns led the US government to institute enhanced security clearances for most refugee populations referred to the USRAP. These clearances depended on multiple federal agencies for completion, and backlogs therefore ensued immediately. Additionally, expiration dates on most types of clearances meant that many refugees found themselves caught in a system that simply looped back onto itself without any hope of resolution. There was a subsequently enormously negative impact on resettlement admission numbers for a period of 2 years.

The role of NGO advocacy in assisting refugees languishing in the US security queue was vital. NGO implementing partners worked with government organisations to identify delays and blockages in security clearances that added many months to refugees’ waiting periods, and undertook congressional advocacy on the issue. There has been some resolution for security clearances for specific populations, while for others they remain a significant barrier to protection and durable solutions. USCCB and our many NGO partners remain committed to giving voice to those still affected, and believe that common sense solutions exist that can honour our commitment to national security whilst still offering protection to refugees.

What are the national fora for multi-stakeholder cooperation and partnerships within the US programme? How do they work? USCCB participates in several fora for multi-stakeholder input for the USRAP. Primarily, USCCB partners with other resettlement agencies through Refugee Council USA, which is a multi-tiered membership organisation working to promote and advocate for refugee issues both domesti- cally and internationally. Within the RCUSA structure there are 3 Standing Committees - Resettlement, Advocacy and Protection. Via the Resettlement Committee, and with our partner domestic resettlement agencies, we raise concerns and suggest policy changes. We believe that collaboration has strengthened our ability to work with US government agencies and build Chapter II – Global Resettlement Chapter II – Global 41

strong cases for changes to policies affecting refugees both here in the US and overseas.

The Joint Regional Working Groups also enable input to the USRAP. They involve both NGOs and governmental representation, and facilitate collaboration between US based NGOs and overseas implementing partners on advocacy. CHAPTER II

In the US, refugees are expected to become economically self-sufficient very quickly. The Federal Government provides refugees with assistance for the first 6 months after their arrival. Is this period long enough? Can you explain what services you offer during this period and how mecha-

nisms are in place to deal with groups that need more support because CHAPTER III of special needs? National resettlement agencies receive funding from the US Department of State to provide resettlement services for newly arriving refugees for a 30 day period. Services to be provided during this period are outlined in a Cooperative Agreement between the US Department of State and each national resettlement agency. They include placement, provision CHAPTER IV for basic needs and follow-up reporting. ‘Basic needs’ cover provision for housing and household furnishings, seasonal clothing, food allowance, social security, enrolment in language classes, employment services, acute healthcare, enrolling children in schools and job training. Additionally, adult refugees are provided with an orientation to life in the US. The initial period can be extended to 90 days if required to complete all services outlined in the Cooperative Agreement. CHAPTER V

Via the Office of Refugee Resettlement (ORR), the Federal Government also makes funds available to national resettlement agencies for enhanced employment services, known as the Match Grant Programme. Available for a period of 120-180 days, this programme assists employable and inter-

ested refugees to prepare for work and search for employment. Match CHAPTER VI Grant funding is available to any resettlement agency that applies to ORR and is approved. CHAPTER VII 42

The Federal Government also makes funds available to each state to provide additional employment and social services for a period of up to 5 years. These funds are managed by the states and disbursed to resettlement agencies and a range of other applicants including community colleges, Mutual Assistance Associations and other private organisations.

All refugees are eligible for public cash assistance and medical assistance for a period of up to 8 months, unless they are enrolled in programmes - such as Match Grant - which provide cash assistance.

This initial period of support is generally not sufficient for resettled refugees. Many would benefit from more intensive case management, language learning and employment services over a longer period, in particular those with special needs.

Are there any successful programmes for special groups (young refugees, women, victims of trauma and torture) which you are particularly proud of and which you could recommend to European countries? Our Bridging Refugee Youth and Children’s Services (BRYCS) is an award- winning national technical assistance provider to organisations serving refugees and immigrants. BRYCS makes available one-to-one consultations and relevant resources. One example of a resource developed by the BRYCS programme is a toolkit for offices working with refugee families called ‘Raising Children in a New Land - an Illustrated Guidebook.’ It is available in several languages, and provides illustrations and text to make it accessible for parents who are illiterate. It leads parents through examples of US law and parenting expectations, such as differences in dis- ciplining children.

In addition, our Parishes Organised to Welcome Refugees (POWR) programme, funded by USCCB with small grants to 37 dioceses, is supporting the development of volunteer-led parish initiatives that offer transportation assistance, social connections, employment mentoring and English language training for newly-arrived refugees across the country. Volunteers pick refugees up at airports, transport sick family members to doctor’s offices and to hospitals, draft press releases, organise special Chapter II – Global Resettlement Chapter II – Global 43

events, assist with translation needs and serve as employment mentors for refugees trying to find work.

Finally, since the Refugee Act of 1980, USCCB has been closely involved in the administration of the national Unaccompanied Refugee Minors (URM) programme in the US. The URM programme has developed a network of specialised foster care for refugees and other youth seeking refuge in the CHAPTER II US.

What would be your advice to increase public support and awareness and improve media representations about refugee resettlement? It has been our experience in the US that formerly resettled refugees are

the best ambassadors for the refugee programme. Refugees are resilient, CHAPTER III respond readily to opportunity, prove to be largely entrepreneurial and often have a deep connection to faith and family. Refugee faces and stories personally represent what protection means, and this should be a key element in keeping the humanitarian underpinnings of resettlement in the foreground of any debate. CHAPTER IV CHAPTER V CHAPTER VI

The US has received the largest number of resettled refugees from Shousha/UNHCR/R.Nuri/2012 CHAPTER VII Chapter III – Refugee Situations in Focus Congolese onthe move UNHCR/P.Taggart 45

In view of the large resettlement needs Overview of the world’s largest relative to the available places, UNHCR refugee situations has prioritised over the last years spe- The following refugee situations together cific refugee situations and groups. represent around 5.8 million refugees These prioritisations allow resettlement and over 55% of the total number of to be used not only as a protection tool refugees worldwide: and durable solution, but also as a stra-  In Africa (excluding North Africa) tegic mechanism. The strategic use of  Congolese (DRC) refugees in the resettlement means that - when offering Great Lakes Region resettlement places - UNHCR and reset-  Somali refugees in Kenya and Ethiopia tlement states explore if resettlement  Eritrean refugees in Eastern Sudan can help to improve access to protection  In the Americas for and conditions of refugee popula-  The Colombian refugee situation

tions, and promote local integration,  In Asia and the Pacific CHAPTER III in countries of asylum. As described  Afghan refugees in Iran and Pakistan in Chapter V, the EU also encourages  Bhutanese refugees in Nepal Member States to offer resettlement  Burmese refugees in Thailand and Malaysia places for refugees in specific regions.  In Turkey and the Middle East These regions include Regional  Iranian and Iraqi refugees in Turkey Protection Programmes (RPP) and EU  Iraqi refugees in Jordan, Lebanon CHAPTER IV common regional priorities1 within the and Syria 2013 Joint EU Resettlement Programme.  The Syrian refugee situation As can be seen in the following chapter, these regions are largely the same. The overview of each selected refugee situation summarises:  the historical factors that led to the refugee movements; CHAPTER V  the current circumstances in which refugee populations are living;  the position of the host country government vis-à-vis the refugee population;

 the viability of durable solutions and the CHAPTER VI reasons why resettlement is proposed in the specific contexts; 1 Annex, Decision No 281/2012/EU of the European  resettlement operations to date; and Parliament and of the Council of 29 March 2012 amending Decision No 573/2007/EC establishing  projected resettlement needs and chal- the European Refugee Fund for the period 2008 to 2013 as part of the General programme ‘Solidarity lenges identified. and Management of Migration Flows’ CHAPTER VII 46

Table: Refugee situations in focus 2

AFRICA (except North Africa) Americas

Somalis in Refugee Congolese Eritreans in Kenya and Colombians situations (DRC) Eastern Sudan Ethiopia

Great Lakes UNHCR priority Region caseloads for (Burundi, Colombians in resettlement Rwanda, Ecuador (WGR 2013) Tanzania, Uganda)

UNHCR priority situ- Somali ation for the Great Lakes Colombian refugees in strategic use of Region refugees Kenya resettlement (ATCR 2013)

Congolese refugees in the Great Common EU Somali Eritrean Lakes Region priorities for refugees in refugees in (Burundi, 20132 Ethiopia Eastern Sudan Malawi, Rwanda, Zambia)

Regional Protection Horn of Africa Great Lakes Programme (including Region (RPP) Kenya)

Resettlement AU, BE, AU, IE, NO, PT, CA, DK, NL, SE, countries in DK,FI,IE, NL, AU, NL, NO, SE SE, UK, US NZ, US 2012-2013 NO,PT, UK

2 Annex, Decision of the European Parliament and of the Council of amending Decision No 573/2007/EC establishing the European Refugee Fund for the period 2008-2013 as part of the General programme 46 Solidarity and

Chapter III – Refugee Situations in Focus Management of Migration Flows 47

ASIA TURKEY & MIDDLE EAST

Burmese in Iraqis and Iraqis in Jordan, Afghans in Iran Bhutanese in Malaysia and Iranians in Lebanon and and Pakistan Nepal Thailand Turkey Syria

Afghans in Iran and Pakistan Iraqi refugees in Turkey and Syria

Iraqi refugees Afghan re- Refugees in in Jordan, fugees in Iran CHAPTER III Turkey Lebanon and and Pakistan Syria

Burmese Afghan Iraqi refugees refugees in refugees in Iraqi refugees in Jordan, Bangladesh, CHAPTER IV Iran, Pakistan in Turkey Lebanon, Syria Malaysia and and Turkey and Turkey Thailand

RPP for Syrian refugees in Jordan and CHAPTER V Lebanon (as of 2014)

AU, CA, NO AU, CA, FI, IS, AU, CA, DK, AU, CZ, DK, FI, Iraqis: DE, FI, NO, SE, US (via DE, NL, UK, US NZ, UK, US NL, NO, US RO, US ETC Slovakia) Iranians: FI CHAPTER VI CHAPTER VII 48

1. AFRICA (excluding in the east of the DRC have led to North Africa) approximately 45,000 refugees fleeing to Uganda and Rwanda.10 Contributing 1.1. Congolese (DRC) refugees factors to the persistent violence and instability in the DRC include the By the end of 2012, over half a million absence of functioning state autho- refugees fled the Democratic Republic rities, the fragility of state institutions, of Congo (DRC), making the DRC tensions over land ownership and citi- refugee population the sixth largest zenship, and externalisation of insta- in the world.3 Over 75% of the DRC bility in neighbouring countries.11 refugees are hosted by neighbouring countries in the Great Lakes Region and The volatile security situation in many Southern Africa - the Republic of the areas of the DRC means voluntary repa- Congo (89,424),4 Uganda (127,021),5 triation is not currently a viable solution Tanzania (63,330),6 Rwanda (57,857),7 for most DRC refugees. Opportunities Burundi (41,439),8 Zambia (14,784) and for local integration in the host coun- Malawi (2,558).9 tries are also very limited. While all countries hosting DRC refugees are The Congolese refugee population signatories to the 1951 Convention, mainly consists of those who fled the the 1967 Protocol and the 1969 OAU first and second Congo Wars in 1996- Refugee Convention,12 several have 1997 and 1998-2003, respectively. imposed restrictions limiting the ability More recently, outbreaks of violence of DRC refugees to enjoy their rights, including: 13 3 UNHCR, Global Trends 2012  the legal right to work (Malawi, 4 UNHCR Projected Global Resettlement Needs 2014. 14 The vast majority of the DRC refugee population in Tanzania, Uganda, Zambia); the Republic of the Congo arrived during 2009-10. Voluntary repatriation and local integration are the main durable solutions pursued for DRC refugees in 10 Migrationsverket (Swedish Migration Board), the Republic of the Congo, and UNHCR’s projected Continued Focus on the Horn of Africa in Sweden’s total resettlement need for this population is 450 Quota Selections for 2013, 21 February 2013 persons. 11 Paddon, E. & Lacaille, G. (Refugee Studies Centre), 5 Ibid. This includes refugees living in both informal Stabilising the Congo, Forced Migration Policy settlements and in urban settings in Kampala. The Briefing 8, December 2011 majority of the Congolese refugees in Uganda reside 12 Article 1 of the 1969 OAU Convention governing the in 7 refugee settlements in the western part of the specific aspects of refugee problems in Africa repli- country cates the 1951 Convention definition, and adds that 6 Ibid. Congolese refugees in Tanzania live in the term ‘refugee’ ‘shall also apply to every person Nyarugusu camp. who, owing to external aggression, occupation, foreign 7 Ibid. In Rwanda, the vast majority of Congolese domination or events seriously disturbing public order refugees are hosted in 3 refugee camps - Nyabiheke, in either part of the whole of his country of origin or Gihembe and Kiziba. Approximately 1,700 live in nationality, is compelled to leave his place of habitual urban settings in Kigali. residence in order to seek refuge in another place 8 Ibid. This includes both camp and urban refugees. outside his country of origin or nationality.’ Of these, 25,713 Congolese refugees in Burundi live 13 Reservations made to Article 17 of the 1951 in 3 refugee camps - Gasorwe Kinama, Musasa and Convention. Bwagiriza, while the remainder live in urban areas. 14 Although Uganda made a reservation to Article 17 9 UNHCR Projected Global Resettlement Needs 2014. of the 1951 Refugee Convention, refugees’ right to Congolese refugee population registered with work is guaranteed in the 2006 Ugandan Refugee

Chapter III – Refugee Situations in Focus UNHCR as of 1 January 2013. Act. 49

Congolese refugees in Rwanda/UNHCR/F.Noy/2012 CHAPTER III

 access to education15 (Zambia); Due to the size and the protracted  freedom of movement16 (Malawi, nature of the Congolese refugee Tanzania, Zambia); and situation and the ongoing violence in  access to citizenship17 (Burundi, eastern DRC, a common sub-regional Malawi). approach to enhance durable solu- CHAPTER IV tions for Congolese refugees was Restrictions have been applied either introduced in early 2012. This strategy legally, as a consequence of host coun- includes significantly increased reset- tries having made reservations to the tlement of Congolese refugees living Conventions, or practically but without in a protracted situation in the Great legal basis. Even in cases where DRC Lakes and South Africa region. Some refugees enjoy basic rights, their inte- 160,000 refugees have been identified CHAPTER V gration prospects are often limited. In for resettlement.18 Of these, at least Burundi and Uganda, for example, DRC 50,000 Congolese refugees will be refugees have the legal right to work but submitted for resettlement from 2012 rates of employment are extremely low, to 2017, making the Congolese one of limiting their access to livelihoods. Many the largest resettlement operations for

therefore choose to remain in camps, the coming period. For 2014, UNHCR’s CHAPTER VI increasing their dependence on aid. Projected Global Resettlement Needs

15 Reservations made to Article 22.1 of the 1951 18 Refugees identified for resettlement have been Refugee Convention. profiled according to two main criteria: arrival 16 Reservations made to Article 26 of the 1951 Refugee in country of asylum from 1 January 1994 to 31 Convention. December 2005; province of origin/last residence 17 Reservations made to Article 34 of the 1951 Refugee must be North Kivu, South Kivu, Katanga or Province Convention. Orientale CHAPTER VII 50

2014 (hereafter referred to as ‘PGRN has pledged to resettle Congolese 2014’) envisages resettlement from from Burundi, Finland will resettle 150 Uganda, Rwanda, Burundi, Tanzania, Congolese refugees from Southern Zambia and Malawi, totalling 13,390 Africa (Malawi and Zambia), and the refugees.19 Netherlands will resettle Congolese refugees from Rwanda and Uganda.22 Most of the Congolese refugees The profiles show that the refugees will have lived in protracted situations require considerable attention when they in camps, settlements (Uganda) and will arrive in their new countries, and that urban situations, many for over 17 reception and integration programmes years. The majority of refugees are will need to address vulnerabilities. of Banyarwanda backgrounds (Tutsi, Hutu or Banyamulenge) and most 1.2. Somali refugees in Kenya and are children under the age of 18. The Ethiopia average household size is estimated to be 5.5 individuals; and considerable Kenya and Ethiopia currently host numbers of Congolese refugees have 492,046 and 240,086 Somali refugees, not received any formal education respectively.23 The majority of these and have worked in agriculture. The fled following the 1991 collapse of the population consists of large numbers Somali government and the ensuing of single parents/single mothers and civil war and humanitarian crisis. In a large proportion of Women At Risk 2011, Somali refugee arrivals into (WAR), persons with medical needs, Kenya and Ethiopia increased signifi- including various trauma and SGBV cantly due to the combined effects of survivors and unaccompanied or sepa- drought, famine and ongoing insecurity rated children.20 in Somalia.

The large majority of the Congolese re- In Kenya, refugees registered by UNHCR fugees are resettled to the United States. live in camps. Nearly half a million are In Europe, Sweden21 and Denmark plan located in Dadaab refugee camp, origi- to resettle DRC refugees from Uganda nally designed to accommodate not within their 2013 annual quotas, Belgium more than 160,000 refugees but which now constitutes a small ‘camp-city’, 19 UNHCR Projected Global Resettlement Needs and a further 101,000 in Kakuma camp. 2014. Uganda (15,000), Tanzania (15,000), Rwanda (13,300), Burundi (10,000), Zambia (4,091) and Approximately 96% of all refugees in Malawi (1,131). See also UNHCR & ATCR 2013 Fact Sheet on priority situations for the strategic use of resettlement. 20 Source: UNHCR & 2013 ATCR 22 For more information about the European national 21 Swedish Migration Board, Continued Focus on the resettlement quotas, see chapter VI. Horn of Africa in Sweden’s Quota Selections for 23 UNHCR, registered Somali Refugee Population as of

Chapter III – Refugee Situations in Focus 2013, February 2013 17 May 2013 51

Mohammed, Somali refugee living in Nairobi/Andrew McConnell/Panos Pictures/The IRC

Dadaab are Somali. Following famine NGOs have since reported many cases

and renewed conflict in the region of police harassment, arbitrary arrest, CHAPTER III in 2011, over 100,000 new refugees abuse against women and xenophobic flooded into the camp,24 and the region attacks.27 has been hit by a series of major security incidents ranging from the kidnapping Ethiopia was the main destination of aid workers to IED25 explosions. country for Somali refugees during 2012. This is despite the fact that the CHAPTER IV At the end of 2012, over 33,000 persons Ethiopian government requires all re- were registered as urban refugees in fugees to reside in camps.28 Since 2007, Nairobi in Kenya. In December 2012, six new refugee camps have opened Kenya’s Department of Refugee Affairs to accommodate the growing Somali announced that all asylum seekers refugee population in Ethiopia, and and refugees from Somalia living in the country’s Dollo Ado camp has since Kenya’s urban areas should move to become the world’s second largest CHAPTER V Dadaab, and that all refugee regis- refugee complex after Dadaab.29 tration in urban areas should cease.26 On June 5 2013, the Kenyan and Somali governments announced an agreement 24 2013 UNHCR country operations profile - Kenya 25 Improvised Explosive Device 26 Urban refugees from other nationalities have

to move to Kakuma refugee camp. The Kenyan 27 Ibid. CHAPTER VI authorities said the transfer of urban refugees to 28 Although Ethiopia continues to implement an the camps is a response to a series of attacks in encampment policy, in 2010 it introduced a so- which unidentified people threw hand-grenades called ‘out-of-camp’ scheme that allows Eritrean into crowds in various locations, killing and injuring refugees to live outside camps in any part of the a number of people including police officers and country, provided they are able to sustain them- soldiers. In January 2013, UNHCR’s legal partners selves financially. According to UNHCR, there are Kituo Cha Sheria filed a constitutional petition in the indications that the Ethiopian government intends Kenyan High Court against the decision. The High to expand this policy to other refugee populations. Court has scheduled the case for ruling before the 29 UNHCR, Refugees in the Horn of Africa: Somali end of June 2013. Meanwhile, registration in urban Displacement Crisis, 2013. As of June 2013, Dollo areas remained interrupted. Ado hosts 195,393 Somali refugees. CHAPTER VII 52

on voluntary repatriation for Somali claims, as compounding existing xeno- refugees in Kenya. The agreement is phobic attitudes towards refugees and for a tripartite conference to take place asylum seekers.31 in August 2013 to plan repatriation measures and mechanisms, together Resettlement is considered an with the participation of UNHCR. While important viable durable solution for both civil society organisations and Somali refugees in both Kenya and UNHCR have welcomed the availability Ethiopia. For 2014, UNHCR’s planned of voluntary repatriation for Somali resettlement submissions for Somali refugees who wish to return, they refugees are 5,883 refugees – 3,673 in have also strongly cautioned against Kenya and 2,210 in Ethiopia, respec- large-scale refugee returns given the tively. More broadly, UNHCR has pro- highly insecure nature of many areas jected total multi-year resettlement of Somalia.30 At the time of writing, no needs for 151,416 Somali refugees in official plans for the August conference Kenya and Ethiopia – 141,511 in Kenya or for repatriation measures more gen- and 9,905 in Ethiopia.32 erally have been announced by either government. The resettlement process in Dadaab has been complicated by growing Prospects for local integration are insecurity in the camp and subse- highly limited. While both Kenya and quent difficulties in accessing popu- Ethiopia are signatories to the 1951 lations living there, meaning progres- Convention, its 1967 protocol and the sively smaller numbers of refugees 1969 OAU Refugee Convention, they have been submitted for resettlement both impose restrictions on refugees’ in recent years (from 8,143 refugees access to employment. In Kenya, for in 2010 to 2,170 in 2012)33 and a lack example, work permits are not issued of resettlement places for refugees to refugees. Additionally, in early 2013, in Dadaab. Besides the small number a number of civil society groups raised of Somali refugees who can actually concerns about a dramatic increase be resettled, main challenges also in arbitrary arrests and attacks on include long resettlement processing refugees of Somali origin in Kenya. periods with average processing time They also criticised media coverage between selection and departure of that often links refugees to insecurity without evidence to corroborate such 31 Jesuit Refugee Service, Kenya, Civil society group urges government to end abuse of refugees, January 2013 30 Concern over planned relocation of refugees from 32 UNHCR Projected Global Resettlement Needs 2014 Kenya to Somalia www.irinnews.org/report/98308/ 33 Annex 3. UNHCR Global Resettlement Statistical concern-over-planned-relocation-of-refugees- Report 2012 in UNHCR Projected Global

Chapter III – Refugee Situations in Focus from-kenya-to-somalia Resettlement Needs 2014 53

Somali refugees being 458 days.34 in 2000, ongoing deterioration in the Some resettlement countries such as political and human rights situation in Canada, Australia and the UK tried Eritrea has again caused many to flee - to circumvent the security issue by in some cases for the second time - to using video conferencing tools for Eastern Sudan. selection interviews. While Somali refugees in Ethiopia have been listed This continued deterioration means by the EU as a common resettlement voluntary repatriation is not a viable priority for 2013, Somali refugees in durable solution for Eritrean refugees Kenya have not. in Eastern Sudan. Despite the long- standing nature of the Eritrean refugee Most Somali refugees are resettled population in Eastern Sudan, prospects to the US, Canada and Australia. In for local integration are also quite

Europe, particularly, Norway, Sweden limited. Sudan is a signatory to the CHAPTER III and the UK have received Somali 1951 Convention, its 1967 Protocol and refugees. the 1969 OAU Refugee Convention. However, the Sudanese Government 1.3 Eritrean refugees in Eastern has a reservation to Article 26 of Sudan the 1951 Convention pertaining to refugees’ freedom of movement, and CHAPTER IV Eastern Sudan hosts 112,283 Eritrean therefore has a legal basis to oblige refugees – 83,499 of whom live in refugees to remain in camps. Although camps and 28,784 in urban situ- some refugees have managed to leave ations.35 The first refugees arrived the camps and find work in urban in 1968 fleeing Eritrea’s war of inde- areas, these types of livelihoods are pendence with Ethiopia. Over the both precarious and very limited. course of the subsequent thirty-year CHAPTER V conflict, successive waves of people Naturalisation is in principle available to fleeing repression, insecurity, famine long-term residents.37 However, living and drought36 crossed the border into in Sudan as a refugee and being reco- Eastern Sudan. Although significant gnized as such by the authorities does numbers of Eritrean refugees returned not constitute ‘legal residence,’ making

home after a peace treaty was signed CHAPTER VI 37 Naturalisation in Sudan is regulated by the Nationality Act, according to which naturalisation is available to everyone of full age and capacity 34 Source: UNHCR & 2013 ATCR [who] has been domiciled in Sudan for a period of 35 UNHCR Projected Global Resettlement Needs 2014. ten years [& ], has an adequate knowledge of the Eritrean refugee population registered with UNHCR Arabic language [& ], is of good character and has in Eastern Sudan as of 1 January 2013. not previously been convicted of a criminal offence, 36 Eritrea became independent from Ethiopia in 1991. [and] if he is a national of any foreign country [has Prior to this, Eritrean refugees were effectively renounced and divested himself of the nationality of fleeing from Ethiopia. that country. CHAPTER VII 54

it impossible for Eritreans to be natu- 2. AMERICAS ralised through formal means.38 Some Eritreans have accessed Sudanese 2.1. The Colombian refugee citizenship, but have relied on personal situation connections and significant resources in order to do so. Both UNHCR and Nearly 50 years of armed conflict NGOs have raised concerns about an between guerrillas, paramilitaries increase in the number of kidnap- and the Colombian army resulted pings and trafficking activity targeting in the movement of over 4 million Eritrean refugees in Eastern Sudan, in Colombians - both within Colombia and particular in Shagarab camp.39 across its borders - since 1985. Around half a million have fled to neighbouring In 2012, 262 Eritrean refugees countries, mainly to Ecuador, but also departed for resettlement from to Costa Rica, Panama and Venezuela. Sudan.40 For 2014, UNHCR’s reset- At present, approximately 70,000 tlement submissions planned for Colombian refugees are registered Eritrean refugees represent 2,690 with UNHCR in the region.41 refugees, and UNHCR has projected that all of them are in need of reset- While the flow of refugees to neigh- tlement. UNHCR plans to submit bouring countries has decreased in 9,500 Eritrean refugees who arrived recent years, the need for protection in Sudan prior to January 1st 2005, remains high. Although members of and can be considered as living in the Revolutionary Armed Forces of a protracted refugee situation, for Colombia (FARC) have resumed peace resettlement. In Europe, Eritrean re- negotiations with representatives of fugees from Sudan were resettled the Colombian government in June to the Netherlands, Norway and 2013, continued violence in some parts Sweden. of Colombia makes that voluntary repatriation is not the preferred solution for most Colombian refugees.

Prospects for local integration are also limited. Ecuador has the largest population of recognised refugees in Latin 38 UNHCR, No turning back. A review of UNHCR’s America, 98% of whom are Colombians. response to the protracted refugee situation in Eastern Sudan, November 2011 Since 2010, there has been a rapid 39 UNHCR, UNHCR concern at refugee kidnappings, disappearances in eastern Sudan, January 2013 40 Annex 3. UNHCR Global Resettlement Statistical 41 Ibid. Colombian refugee population registered Report 2012 in UNHCR Projected Global with UNHCR in Ecuador, Costa Rica, Panama and

Chapter III – Refugee Situations in Focus Resettlement Needs 2014 Venezuela as of January 2013. 55

Colombian refugees in Ecuador/UNHCR/B.Heger CHAPTER III deterioration in the asylum and pro- factions crossing into Ecuador. They also tection space for Colombian refugees suffer through poor living conditions, a in Ecuador. While it is a signatory to the lack of access to health services, and very 1951 Refugee Convention and the 1984 limited livelihood opportunities. Violence Cartagena Declaration,42 the government against Colombian refugee women and recently modified its Refugee Act to girls in Ecuador is widespread. Secondary CHAPTER IV remove the expanded refugee definition movements of Colombian refugees within set out in the Declaration.43 It has severely Ecuador are common, and Colombian restricted access to the domestic asylum refugees generally suffer racism and dis- procedure, meaning many Colombians crimination, including police harassment are not legally recognised as refugees in some areas. and are unable to access basic services.44 Many live in inaccessible jungle set- The lack of local integration prospects CHAPTER V tings in border areas, and are vulnerable for Colombian refugees in Ecuador has to armed conflict between Colombian thus become a protection issue, and resettlement remains an important durable solution for some. Of par- 42 The 1984 Cartagena Declaration on Refugees replicates the 1951 Convention definition, and adds ticular concern are Afro-Colombian that the term ‘refugee’ shall include persons who

have fled their country because their lives, safety or refugees, unaccompanied minors and CHAPTER VI freedom have been threatened by generalised violence, foreign aggression, internal conflicts, massive refugee women at risk of exploitation.45 violation of human rights or other circumstances which have seriously disturbed public order. Whilst the Cartagena Declaration is not a treaty, its provisions have been incorporated into some national laws. 45 United States Conference of Catholic Bishops, 43 2013 UNHCR country operations profile Ecuador Colombian Refugees: No Solutions in Sight, http:// 44 According to a UNHCR survey, 80% of interviewed www.usccb.org/issues-and-action/human-life-andasylum-seekers who were not accepted to the dignity/migrants-refugees-and-travelers/columbi- asylum procedure had valid refugee claims. anrefugees.cfm CHAPTER VII 56

‘Gabriela came from a rural farming region capacity48 and a significant population of Putumayo, Colombia. Her family had fled of unregistered individuals make the on different occasions in her youth but had ongoing assessment of resettlement lived in relative peace for six years until FARC needs challenging. insurgents invaded her family’s farm. They murdered her brother and father. Gabriela In 2011, Colombian refugees were managed to escape and crossed the border identified as one of the populations into Ecuador. When she crossed the border prioritised for resettlement. A Contact she had no idea what a refugee was - she Group, chaired by the Governments of simply knew she couldn’t go home. Not far New Zealand and Uruguay was formed from a border town, she disclosed her story in February 2012 with the aim of maxi- to a man who reminded her of her brother. mising the strategic use of resettlement The man kidnapped her, locked her in a room of Colombians in Ecuador.49 Although and proceeded to prostitute her for some several EU Member States resettle time. Gabriela recalled many of her ‘clients’ Colombian refugees, the EU has not as wearing police uniforms. She managed to included this population as a priority escape thanks to a neighbour and approached for 2013. The EU does, however, offer UNHCR in Quito. Eight months later, she substantial humanitarian aid and assis- was granted refugee status. She struggled tance via ECHO.50 with complex trauma, alcohol abuse and depression, and shook whenever she encoun- Argentina, Brazil, Canada, Uruguay tered the police. Even as a recognised refugee, and the US have resettled Colombian she was unable to find a way to support herself. refugees. In Europe, Denmark, Norway When she applied for jobs cleaning houses, and Sweden have resettled refugees she was called a whore and told Colombian from Ecuador. women belonged in brothels.’

Gabriela, Colombian refugee in Ecuador, in Jesuit Refugee Service, Latin America: Colombian refugees face stark choices, April 2011

In 2012, 559 Colombian refugees46 were resettled. In total, UNHCR plans 48 For 2013, Ecuador ranks third in the world on to submit 2,054 Colombian refugees UNHCR’s ranking of needs versus capacity in resettlement. for resettlement in 2014, of whom 49 UNHCR Projected Global Resettlement Needs 2014 47 50 European Commission, Commission Staff Working 2,000 are in Ecuador. A lack of UNHCR Document, General Guidelines on Operational Priorities for Humanitarian Aid in 2013, November 2012. In 2013, 15% of the planned geographical humanitarian and food aid budget allocation has 46 Source: UNHCR & 2013 ATCR been earmarked for the forgotten crises identified

Chapter III – Refugee Situations in Focus 47 UNHCR Projected Global Resettlement Needs 2014 by ECHO. 57

3. ASIA AND PACIFIC 3.1.1. Afghan refugees in Pakistan Pakistan is not a signatory to the 1951 3.1. Afghan refugees in Iran and Convention or the 1967 Protocol. The Pakistan temporary stay of registered Afghan refugees in Pakistan is regularised by Afghan refugees in Iran and Pakistan means of Proof of Registration cards, constitute the largest and most pro- all of which expired on 31 December tracted refugee population under 2012.54 The Pakistani government UNHCR’s mandate. Pakistan hosts extended their right to stay for an addi- 1,637,730 refugees, and Iran 824,087.51 tional 6 months until the end of June The majority have been resident in 2013, and in July 2013 announced a both countries since fleeing the Soviet further extension. War in Afghanistan during the 1980s.

Despite the success of voluntary repa- In Pakistan, 36% of the Afghan refugee CHAPTER III triation programmes both in Pakistan population lives in refugee camps – and Iran, many Afghan refugees have known locally as ‘refugee villages’- and specific needs, vulnerabilities and pro- 63% in urban settings.55 In addition to tection concerns that prevent their the 1.7 million refugees registered with return. In addition, the volatile security the government, it is estimated that situation and human rights violations a further one million undocumented CHAPTER IV in Afghanistan remain an ongoing con- Afghans live in the country. 85.1% of cern.52 In May 2012, the governments the Afghans in Pakistan are Pashtun, of Pakistan, Iran, Afghanistan and and the remainder are Tajiks, Uzbeks UNHCR adopted the Solutions Strategy among others.56 One of the most for Afghan Refugees (SSAR).53 The vulnerable Afghan refugee groups is SSAR outlines the need for increased the ethnic Hazara, who face targeted voluntary repatriation, but also for killings and persecution by the Taliban CHAPTER V enhanced resettlement as a means of and anti-Shia factions in Afghanistan. international responsibility sharing, For the Hazara, and for other Afghan assistance to refugee affected and refugee groups, voluntary repatri- hosting areas (RAH) and alternative stay ation is therefore not a viable durable arrangements for refugees in Pakistan. solution.

Resettlement is considered to be a CHAPTER VI strategic component of the SSAR and a 54 The tripartite agreement between UNHCR and the governments of Pakistan and Afghanistan, vital tool for maintaining adequate pro- which grants refugees an official refugee status in Afghanistan was supposed to come to an end on 31 tection space. December 2012. 55 Source: UNHCR & 2013 ATCR 56 UNHCR, International Conference on the Solutions 51 Source: UNHCR. As of March 2013 Strategy for Afghan Refugees, to support Voluntary 52 UNHCR Projected Global Resettlement Needs 2013 Repatriation, Sustainable Reintegration and 53 Source: UNHCR & 2013 ATCR Assistance to Host Countries, May 2012 CHAPTER VII 58

Since 2002, some 5.7 million Afghan ethnic groups such as the Pashtuns.59 refugees have returned to Afghanistan. Most refugees in Iran reside in urban From 2002 to 2012, UNHCR facilitated areas, with only 3 per cent living in set- the largest voluntary repatriation tlements mostly located in rural areas. programme via which 3.8 million refugees returned from Pakistan to Prospects for local integration are limited Afghanistan.57 However, due to the and increasingly difficult due to the dete- volatile security in Afghanistan, vo- riorating economic situation. Refugees’ luntary repatriation was scaling down movements within Iran are limited to over the past years. Prospects for local so-called ‘No-Go Areas,’60 and the living integration remain low, as refugees standards of Afghan refugees have dete- have limited access to recognised legal riorated significantly in recent years.61 status and to related services. During 2002-12, UNHCR subsequently assisted the voluntary repatriation of In late 2012, a Contact Group approximately 902,000 Afghan refugees on Resettlement chaired by the resident in Iran. Due to the difficult eco- Government of Australia was formed nomic conditions in Iran, voluntary repa- to mobilize international support for triation to Afghanistan has risen in 2011. resettlement. Resettlement is therefore an important durable solution for the Afghan refugee UNHCR has projected a total multi- population although only a very small year resettlement need amongst the number of Afghan refugees in Iran have Afghan refugee population in Pakistan benefited from such solution so far. amounting to 26,800 persons. For 2014, UNHCR is planning to submit for reset- In 2011, the Refugee Contact Group on tlement 3,850 Afghans from Pakistan. Iran was established with the aim of In 2012, UNHCR assisted the departure enhancing the ongoing resettlement of of 283 Afghan refugees from Pakistan.58 Afghan refugees from Iran. Presently chaired by Sweden, with a membership 3.1.2. Afghan refugees in Iran comprising UNHCR and selected reset- Iran is a signatory to the 1951 tlement countries (Australia, Finland Convention and its 1967 Protocol. and Germany, with Brazil and Japan as Hazara and Tajiks represent over 70% of the Afghan refugee population in Iran, 59 UNHCR, International Conference on the Solutions Strategy for Afghan Refugees, to support Voluntary with the remainder consisting of other Repatriation, Sustainable Reintegration and Assistance to Host Countries, May 2012 60 Since 2008, the Government of Iran has declared certain parts of Iran as ’no go areas’: Afghans living 57 UNHCR Projected Global Resettlement Needs 2014 in those designated areas are asked to move to a 58 Annex 3. UNHCR Global Resettlement Statistical different province in Iran or repatriate. Report 2012 in UNHCR Projected Global 61 Danish Refugee Council, Living conditions for Afghan

Chapter III – Refugee Situations in Focus Resettlement Needs 2014 refugees in Iran are decreasing, March 2013 59 observers), the Contact Group works in 3.2. Bhutanese refugees in Nepal close cooperation with the Iranian government. It aims to increase the number Since 1991, approximately 18% of the of resettlement places available for Bhutanese population has fled the Afghan refugees in Iran, and to encourage country (108,000 refugees), mainly to multi-year commitments by resettlement Nepal and India. The vast majority of countries to make the process more pre- these refugees are Lhotshampa, a Hindu dictable and reliable for all parties. In population of ethnic Nepali descent. 2012, UNHCR assisted the departures of In the mid-1980s, the Nepalese gov- 1,427 Afghan refugees from Iran, three ernment passed citizenship laws that times the 2011 figure of 474 refugees.62 provided a legal basis for declaring In addition to resettlement, the Contact many Lhotshampa to be ‘non-nationals.’ Group has supported humanitarian Escalating discrimination throughout the

assistance to refugees in Iran. A Health 1980s and early 1990s led to the large- CHAPTER III Insurance Scheme (HIS) was implemented scale movement of Lhotshampa refugees. in 2011, ensuring that refugees continue As refugees departed, the government to benefit from free primary health care. resettled ‘citizens’ from other parts of the country onto their lands, and those Iran has been designated as one of the Lhotshampa that remained in Nepal con- seven priority refugee situations for the tinued to suffer routine discrimination, CHAPTER IV strategic use of resettlement. UNHCR arbitrary detention and restricted access has projected a total resettlement to education and employment. need of 82,000 persons among Afghan refugee populations in Iran.63 For 2013, Nepal is not a signatory to the 1951 UNHCR seeks as many as 5,000 places, Convention and has no national refugee including cases with special medical legislation. However, the Nepalese gov- needs and women and girls at risk. ernment recognises Bhutanese refugees CHAPTER V However, there has been a growing ret- living in camps on a prima facie basis,64 icence on the part of the resettlement and UNHCR conducts Refugee Status countries to accept refugees with Determination (RSD) for the far smaller medical needs. numbers living in urban settings. Although camp-based refugees are not allowed to

For Afghan refugees, the major coun- CHAPTER VI tries of resettlement include Australia, 64 UNHCR, Protection of refugees in mass influx situations: overall protection framework, Global Consultations on Sweden, Finland and Norway. International Protection 1st meeting, 19 February 2001: ‘Group determination on a prima facie basis means in essence the recognition by a State of refugee status on the basis of readily apparent, objective circumstances 62 Annex 3. UNHCR Global Resettlement Statistical in the country of origin giving rise to the exodus. Its Report 2012 in UNHCR Projected Global purpose is to ensure admission to safety, protection Resettlement Needs 2014 from refoulement and basic humanitarian treatment to 63 UNHCR Projected Global Resettlement Needs 2013 those patently in need of it.’ CHAPTER VII 60

Bhutanese refugees in Nepal/UNHCR/J.Rae leave the camps and are not granted work challenging terms of the discriminatory permits, many find informal employment. 1985 citizenship legislation, after a The Nepalese government considers 2-year probationary period spent in Bhutanese refugees in urban settings to a closed camp in Bhutan. Where this be illegal residents, and they are liable to condition was not applied, returning pay fines or be detained as overstayers. Bhutanese refugees would have no claim Local integration is therefore not a viable to their previous land or property.65 solution for either camp-based refugees or Voluntary repatriation is therefore not those living in urban settings. viable for many Bhutanese refugees, and resettlement remains the only durable In 2001, the Bhutanese and Nepalese solution realistically available for the vast governments collaborated on a pilot majority of this population. screening exercise of Bhutanese refugees in a single camp (Khudunabari) without Since 2007, 8 resettlement countries – the involvement of UNHCR or other Australia (3,837), Canada (5,296), Denmark agencies. Just over 12,000 refugees were (724), the Netherlands (326), New Zealand screened - 75% were deemed eligible to (710), Norway (546), the United Kingdom return to Bhutan, while 25% were found (257) and the United States (63,400) – have to be ‘non-Bhutanese’ with no right of together resettled over 75,000 Bhutanese appeal. Specific conditions were applied refugees from the camps in Nepal.66 During to the return of the 75% deemed eligible, which for the majority meant re-applying 65 Hutt, M. www.bhutaneserefugees.com, January 2013 for Bhutanese citizenship under the 66 IOM Nepal, Resettlement of Bhutan Refugees from

Chapter III – Refugee Situations in Focus Nepal Passes 75,000, December 2012 61 this period, the number of camps has 3.3.1. Burmese refugees in Malaysia been reduced from seven to two. In 2013, As of January 2013, 84,640 Burmese re- UNHCR will facilitate the resettlement of fugees were registered in Malaysia.72 up to 15,000 refugees.67 In March 2013, The Burmese refugee population in Canada announced that they would Malaysia is entirely urban, with most select 1,000 Bhutanese refugees over two living in or around major cities. This pop- years.68 For 2014, UNHCR is planning to ulation is made up of ethnic Burmese submit 7,240 Bhutanese refugees for reset- minorities who fled persecution by the tlement from Nepal.69 In January 2013, the former military regime, mainly the Chin, Bhutanese refugee population in Nepal Karen and Mon groups. The Burmese was estimated to be 40,971 individuals.70 refugee population in Malaysia also For 2014, Bhutanese refugees no longer includes a large group of Rohingya, a figure on the list of UNHCR priority situa- Muslim minority from Burma’s northern

tions. However, by the end of 2014, there Rakhine State that suffers routine dis- CHAPTER III will remain around 18-19,000 refugees for crimination and abuse by the Burmese whom a durable solution must be found. government. Peace negotiations with armed ethnic groups are ongoing, 3.3. Burmese refugees in and prospects for voluntary return are Thailand and Malaysia therefore expected to improve in 2013- 14.73 However, continuous persecution CHAPTER IV Prolonged conflict in Burma (Myanmar) and instability in some parts of Burma has led to one of the most protracted mean voluntary repatriation is still not refugee situations in Asia. For over a realistic prospect for the majority of 50 years, the Burmese military regime Burmese refugees in Malaysia. has persecuted many of the country’s numerous ethnic and minority groups, Prospects for local integration are also many of whom have sought greater extremely limited. Malaysia is not a CHAPTER V autonomy from the Burmese state. signatory to the 1951 Convention or Burma’s human rights situation remains its 1967 Protocol, and has no national poor, despite some actions by the gov- asylum legal framework or system ernment toward reform.71 (RSD is instead conducted by UNHCR). Urban environments can in some cases

67 2013 UNHCR country operations profile - Nepal offer more opportunities for self- CHAPTER VI 68 Those 1,000 Bhutanese refugees will come in addition to the 5,000 Bhutanese refugees Canada reliance and better prospects for inte- proposed to resettle over 5 years in 2007, bringing the total number to 6,500. gration. However, the 1963 Malaysian 69 UNHCR Projected Global Resettlement Needs 2014 70 UNHCR Projected Global Resettlement Needs 2014 Immigration Act does not distinguish 71 Human Rights Watch, World Report 2013. In April 2012, opposition leader Aung San Suu Kyi’s party won 43 out of 45 seats in a parliamentary by-election but a large majority of seats in the lower house are still 72 UNHCR Projected Global Resettlement Needs 2014 controlled by the government party and the military. 73 UNHCR Projected Global Resettlement Needs 2014 CHAPTER VII 62

Nam DarBu, Burmese (Karen) refugee living in Kuala Lumpur/Andrew McConnell/Panos Pictures/The IRC

between refugees and undocumented European countries including Czech migrants,74 and without a protected Republic, Denmark, Norway and Sweden legal status refugees are at constant have resettled Burmese refugees. risk of arrest, detention and depor- Identification of resettlement needs is tation. Refugees are unable to work challenging due to the urban context,76 legally, send their children to school, or although UNHCR accepts referrals for access healthcare or social services. resettlement assessment from refugee communities and NGOs, particularly For 2014, UNHCR plans to submit 14,150 those involved in health and community Burmese refugees for resettlement services in urban settings. from Malaysia, contributing to making it the country with the highest number Certain NGOs have pointed out that of resettlement submissions worldwide resettlement from Malaysia should be planned for 2014. Total resettlement used more strategically and be used needs are 123,760 Burmese refugees.75 to promote an adequate protection In addition to annual intakes by Canada, system in Malaysia, where most re- Australia, New Zealand and the US fugees have remained in this pro- have multi-year resettlement commit- tracted situation for decades without a ments with regard to this population. durable solution in sight.

74 2013 UNHCR country operations profile Malaysia 76 Amnesty International, Abused and Abandoned

Chapter III – Refugee Situations in Focus 75 UNHCR Projected Global Resettlement Needs 2014 Refugees denied rights in Malaysia, June 2010 63

3.3.2. Burmese refugees in Thailand clear when - or even if - the situation Since their arrival in Thailand in the will improve. Many Karen refugees 1980s, Burmese refugees have been are subsequently reluctant to take up confined to nine closed camps - known voluntary repatriation at the current as ‘temporary shelters’ - along the time, and it therefore remains limited Thai-Burma border. Access to these as a durable solution in this context. camps is regulated by the Thai government. As of January 2013, 83,317 Thailand is not a signatory to the 1951 Burmese refugees were registered Convention and has no national leg- as having been admitted to the nine islation governing the treatment of camps.77 Since 2006, the registration refugees. Burmese nationals, found and admission system in the camps living outside of the camps, are subject has not been fully functional, and to arrest, detention and deportation.79

approximately 46,000 camp residents The basic rights of refugees in Thailand CHAPTER III are estimated to be unregistered.78 are severely limited - they have no Unregistered camp residents are ineli- access to medical services and they do gible for resettlement. UNHCR con- not have the right to work - meaning ducts RSD for asylum seekers living in local integration is impossible. To date, Bangkok except for Burmese refugees resettlement has been the only durable who are required by the government to solution that offers adequate protection CHAPTER IV report to the camps on the border. for Burmese refugees in Thailand.

Most camp residents are ethnic Karen Resettlement began in 2005 and has who fled conflict with the military since provided a durable solution for regime in Burma. Following national more than 80,000 Burmese refugees elections in Burma in November 2010, in Thailand.80 UNHCR has projected a new clashes between armed ethni- total resettlement need for Burmese CHAPTER V cally affiliated groups and the Burmese refugees in Thailand of 4,000 persons, army erupted along the Thai-Burma and plans to submit 3,500 refugees border, leading to the rapid arrival of for resettlement in 2014.81 Although a further 16,000-18,000 refugees from resettlement from Thailand has been Burma. While recent ceasefire agree- conducted for over seven years, it has

ments between ethnic armed groups not led to an improvement in the pro- CHAPTER VI and the Burmese government have tection climate in Thailand. UNHCR presented some limited possibilities for a resolution to these conflicts, it is not 79 Human Rights Watch, Ad Hoc and Inadequate. Thailand’s Treatment of Refugees and Asylum Seekers, September 2012 77 UNHCR Projected Global Resettlement Needs 2014 80 UNHCR Projected Global Resettlement Needs 2014 78 Ibid. 81 Ibid. CHAPTER VII 64

is in the process of phasing out reset- both in the region and in their specific tlement and no longer lists it as a prio- countries of origin means voluntary rity for 2014. repatriation is very rarely a viable durable solution.

4. TURKEY AND MIDDLE ‘I’m originally from Iraq and came to Turkey EAST after seeking refuge in Syria. In Iraq I was kidnapped twice by two different militias. 4.1. Iranian and Iraqi refugees in Luckily, the Iraqi army was stationed near Turkey my family’s home and they saved my life by helping me to escape. After these incidents, Iraqi and Iranian refugees continue my father decided that I, at the age of 15, to form the largest refugee groups in should leave Iraq and go to Syria since the lan- Turkey. Many originally crossed into guage and cultural norms in the two countries Turkey in the 1980s, fleeing authori- are similar. I stayed in Damascus in Syria from tarian regimes and conflict including 2004 until February 2012. But I left because the Islamic Revolution in Iran, the the situation had become increasingly worse Iran-Iraq War and the subsequent 1991 for Iraqis. When the crisis started, armed Gulf War. gangs started asking for money in exchange for protection. So I left Damascus and came Following the US-led invasion of Iraq to Turkey. I want to live here in peace but I in 2003, the Turkish government face many difficulties, including the language took specific measures to prevent barrier and an inability to access the labour the movement of Iraqi refugees into market. Finally, I’m still awaiting news about Turkey, and so did not experience the the resettlement application I made while same increase in Iraqi arrivals as other in Syria. I would like to go to the US and join countries in the region. However, their my sister who has been living there for three numbers have significantly increased years.’ since 2011 due to the worsening security situation in Syria. By 2013, Almuthana Abdulmajeeed, Iraqi refugee in Iraqi and Iranian refugee populations Turkey; In Jesuit Refugee Service, Turkey: in Turkey registered with UNHCR Iraqis constantly on the move in search of a amounted to 9,478 and 3,040 persons, brighter future, February 2013 respectively.82

For both Iranian and Iraqi refugees, While Turkey is a signatory to the ongoing civil and political instability 1951 Convention and its 1967 Protocol, it maintains the Convention’s

Chapter III – Refugee Situations in Focus 82 Ibid. 65

‘geographical limitation’, meaning only refugees – and plans to submit 4,650 Europeans83 can be considered as re- Iraqi refugees and 2,650 Iranian refugees. Non-European refugees (mostly fugees in 2014.86 Resettlement will con- Iraqis, Iranians, Afghans and Somalis) tinue to be used strategically in Turkey are granted ‘temporary asylum seeker to enhance the protection space for all status,’ and UNHCR is responsible for refugees and it will continue to be the their registration, RSD, as well as for main durable solution available to non- finding durable solutions. To date, European refugees in 2013. the only exception is the temporary protection granted to Syrian nationals The US has historically accepted the seeking international protection, who majority of Iranian and Iraqi refugees began arriving in June 2011.84 resettled from Turkey. In 2011, for example, 67% of departures travelled to 87

The Turkish government recently the US. Canada, Australia and Norway CHAPTER III adopted a new migration and asylum have traditionally offered resettlement law which will strengthen refugee places specifically for Iranians and protection, while not lifting the geo- Iraqis from Turkey; while in Europe, graphical limitation.85 Finland, Germany, and Norway have resettled refugees from Turkey, and The lack of legal recognition of non- France, the Netherlands, Portugal and CHAPTER IV European refugees and their exclusion the UK occasionally consider a small from mainstream legal processes and number of cases for resettlement. services means resettlement is the only available durable solution for Iranian 4.2. Iraqi refugees in Jordan, and Iraqi refugees in Turkey. Lebanon and Syria

UNHCR has projected a total reset- ‘Ahmed joined the new Iraq army in 2004 CHAPTER V tlement need amongst Iranian and and was assigned to work in his home dis- Iraqi refugees of 18,600 persons – trict Al Sadr City. During this period, he sur- 13,710 Iraqi refugees and 4,890 Iranian vived several assassination attempts but was unable to escape being abducted in 2005. 83 Member States of the Council of Europe. Until his family paid his captors, he was held 84 They are granted temporary protection by the

Government and hosted in camps managed by the for a week and tortured. Ahmed fled to Syria CHAPTER VI Turkish authorities in close cooperation with the Turkish Red Crescent. in 2006 with his wife and four children. The 85 In April 2013, Turkey adopted a new asylum law, the Law on Foreigners and International Protection, which establishes a civil institution to handle all asylum matters and grants social and economic 86 UNHCR Projected Global Resettlement Needs 2014 rights to all asylum applicants. It also establishes 87 ICMC screens and prepares cases for adjudication procedural safeguards for the processing of claims, by the US immigration authorities through its however as there is a transitional period of one Resettlement Support Centre (RSC) in Turkey (cov- year, no major changes are expected in 2013. It also ering Turkey and the Middle East) formerly known maintains the geographical limitation. as the Overseas Processing Entity (OPE). CHAPTER VII 66

family lives off the modest proceeds from the Following the US-led invasion of Iraq sale of a small piece of land. Ahmed has not in 2003, Iraqi refugees in Syria were registered with the government out of fear offered protection by the Assad go- he will be targeted again. Compounding this, vernment. In the context of the current Ahmed is suffering from diabetes and has conflict in Syria many view Iraqi refugee chronic pain from being tortured. Although populations as potential supporters medication and treatment are available at of the Assad regime91, and they have health centres, Ahmed worries that should therefore been subject to targeted he seek treatment, he will be targeted by attacks and discrimination. The civil militias’. war and the particular insecurity of the Iraqi population in Syria has led many Ahmed, former soldier, in International Rescue Iraqi refugees to be ‘twice displaced’ Committee, A tough road home. Uprooted - from Iraq to Syria, and then from Iraqis in Jordan, Syria and Iraq, February 2010 Syria to neighbouring countries such as Lebanon and Jordan. Although less The first Iraqi refugees arrived in than 60,000 refugees returned to Iraq Jordan, Lebanon and Syria in the during the last few months of 2012, aftermath of the 1991 Gulf War. continued instability in Iraq and the loss Since the US-led invasion of Iraq in of land, houses and other assets means 2003, the three countries have again voluntary repatriation is not a viable become major destinations for Iraqi option for the majority. Additionally, refugees. many refugees fear religious or ethnic persecution if they return.92 The number of Iraqi refugees registered in Jordan has remained relatively Neither Jordan, Lebanon nor Syria are stable, with a current population of signatories to the 1951 Convention.93 27,814.88 Numbers in Lebanon have UNHCR is responsible for conducting decreased to a current total of 6,500.89 RSD in all three countries. Both the In both countries, Syrian refugees Jordanian and Lebanese govern- fleeing conflict in their own country ments have signed Memoranda of currently outnumber Iraqi refugee Understanding with UNHCR which populations.90 outline UNHCR’s responsibility to find

88 UNHCR Projected Global Resettlement Needs 2014. Iraqi refugee population registered with UNHCR in 91 International Rescue Committee, Syria: A Regional Jordan at January 2013. Crisis. The IRC Commission on Syrian Refugees, 89 Ibid. Iraqi refugee population registered with January 2013 UNHCR in Lebanon as of January 2013. 92 International Rescue Committee, A tough road 90 UNHCR, Syria Regional Refugee Response Inter- home. Uprooted Iraqis in Jordan, Syria and Iraq, agency Information Sharing Portal (http://data. February 2010 unhcr.org/syrianrefugees/regional.php). At July 93 Harper, A. Iraq’s refugees: ignored and unwanted, in 2013, 505,347 and 639,982 Syrian refugees regis- International Review of the Red Cross, Volume 90,

Chapter III – Refugee Situations in Focus tered in Jordan and Lebanon respectively. no.869, March 2008 67 durable solutions for recognised re- resettlement countries to suspend their fugees within limited periods of time. programmes during 2011-12, and the In Jordan, refugees are considered to accessibility of the country and refugee be ‘guests’, and subsequently have no populations within it remain serious access to employment or long-term concerns for 2013 and 2014. Alternative settlement. Legally, both refugees processing through video conferencing and all other foreigners are at risk tools is still ongoing as well as evacua- of deportation after a period of 6 tions to the ETCs. months residency in the country. The 2003 Memorandum of Understanding UNHCR has projected a total reset- between UNHCR and the Lebanese tlement need among Iraqi refugees in government stipulates that all refugees the three countries of 20,050 persons should be resettled within 9 months - 1,000 in Jordan, 3,515 in Lebanon and 96

of their recognition as refugees by 12,800 in Syria. While UNHCR Jordan CHAPTER III UNHCR.94 Many Iraqi refugees in is expected to submit 1,900 Iraqis Jordan have been displaced for as long for resettlement in 2013, the influx as five years. The current large-scale of Syrian refugees and the ongoing influx of Syrian refugees which Jordan arrivals of Iraqi refugees fleeing from and Lebanon are hosting (491,365 and Syria severely impact on resettlement 572,224 respectively) is presenting a operations.97 CHAPTER IV tremendous burden on the host countries, and due to these large numbers, 4.3. The Syrian refugee situation opportunities for local integration are not available. Over 2 years of civil conflict in Syria has forced hundreds of thousands of Syrians Resettlement is therefore the only to flee to neighbouring countries. As viable solution for the vast majority of of July 2013, 1,846,534 refugees were CHAPTER V refugees. In Lebanon, resettlement registered or awaiting registration in has been used strategically to establish Lebanon (639,982), Jordan (505,347), and maintain a temporary protection Turkey (428,246), Iraq (159,792) and regime for non-resettled refugees Egypt (99,167), with smaller numbers in remaining in the country. There is a con- other North African countries.98

tinuous need to respond to urgent pro- CHAPTER VI tection cases that do not meet criteria applied by larger resettlement countries.95 Insecurity in Syria led all major 96 UNHCR Projected Global Resettlement Needs 2014 97 Ibid. 98 UNHCR, Syria Regional Refugee Response. Inter- 94 UNHCR Projected Global Resettlement Needs 2013 agency Information Sharing Portal, figures at July 95 Source: UNHCR & 2013 ATCR 2013 CHAPTER VII 68

Syrian refugees in Iraq/UNHCR/N.Daoud

In Turkey, Syrian refugees who arrived of a national legal or administrative after June 2011 are granted temporary framework for refugee protection protection and hosted in one of the 14 leaves Syrian refugees vulnerable to camps managed by the Turkish autho- arrest, detention and deportation. rities in collaboration with the Turkish Most of the refugees live in urban Red Crescent. Camp-based refugees areas. have access to basic services and assistance. While Syrian refugees living in In Jordan, Syrian refugees have urban settings in Turkey have long been become the largest refugee population unable to register for assistance, the in the country. Most of them live with Turkish government recently launched host families or in collective centres in an operation to register refugees in towns and rural areas.99 The smaller urban areas. Some 40,000 Syrian re- numbers of camp-based refugees fugees in urban areas have since been can access basic services, including registered under the new policy. medical services, but living conditions in the camp are harsh. In urban areas, Lebanon has adopted a protection refugees can access medical services and humanitarian-oriented response and enrol their children in the public to the Syrian arrivals, but the absence

Chapter III – Refugee Situations in Focus 99 UNHCR Projected Global Resettlement Needs 2014 69 school system, but high rental costs, These refugees live mainly in Damascus increasing food prices and limited and its suburbs, and due to the fact that financial support have led to increasing they lack documentation and are visibly levels of destitution. Additionally, host ‘foreign’, face significant protection risks communities are becoming increas- during the current period of unrest and ingly hostile toward Syrian refugees. In violence.103 Jordan, Lebanon and Turkey refugees do not have the legal right to work, and ‘When Hayfa and her family first arrived those that find employment do so in in Syria from Iraq, they settled in Shaba, the informal sector. southwest of Damascus. Their son Akram found a job in a shop. After years of perse- As detailed earlier in this chapter, cution and fear in Iraq, Hayfa was hopeful the current situation in Syria has also they could all live peacefully again. That

caused many refugees to move to hope was shattered in September 2012 when CHAPTER III neighbouring countries, thus becoming heavy fighting broke out in Shaba between ‘twice displaced’.100 An estimated half the Syrian army and the armed resistance. a million Palestinian refugees reside in The family fled first to Jaramana, further Syria, with most living in ‘camps’ that south, but as soon as they settled there, an are indistinguishable from urban neigh- air raid set the house on fire. They fled to bourhoods. Thousands were displaced Damascus, where they still are now – though CHAPTER IV when their residence areas were hit by none the safer. Almost uninterrupted, nearby heavy shelling, and many have since explosions rock their house. When Akram – fled to Lebanon. Experts in the region the family’s sole breadwinner – was wounded are also warning that the Assad regime in the back by a nearby car bomb explosion, could potentially use Palestinian re- he lost his job. Hayfa and her family fled Iraq fugees as a tool to destabilise the Middle in 2006 when armed militias threatened to East by pushing them into Jordan101 or kill them because her son was working for CHAPTER V the Golan Heights.102 Approximately the government. They had to seek safety in 8,000 non-Iraqi refugees are registered neighbouring – and then peaceful – Syria. Six with UNHCR in Syria, the majority from years later, they found themselves packing Somalia, Afghanistan, Sudan and Yemen. their bags again and wondering whether they would ever be able to stop running away from

war zones.’ CHAPTER VI 100 International Rescue Committee, Syria: A Regional Crisis. The IRC Commission on Syrian refugees, January 2013 101 Since the beginning of the conflict, Jordan has wel- ICMC, EU-funded ICMC keeps helping Iraqi re- comed Syrian refugees but has reportedly turned away some Palestinian residents of Syria. There are fugees in Syria as aid may dwindle, March 2013 two million Palestinians in Jordan, and it has concerns about the impact of hosting many more. 102 International Rescue Committee, Syria: A Regional 103 Amnesty International, CCME, ECRE, Letter to the Crisis. The IRC Commission on Syrian refugees, Cyprus Presidency The Syrian refugee crisis and the January 2013 role of the European Union, October 2012 CHAPTER VII 70

In August 2012, UNHCR appealed to country. It is envisaged that the first countries to provide resettlement of these will arrive in Germany during places for up to 500 non-Iraqi refugees 2013. Humanitarian admission is subs- in Syria and to consider resettling them tantially different from resettlement on a dossier basis. The response from in that it grants a 2-year temporary resettlement countries was limited, status (with possibility of extension) in part due to the lack of flexibility to to those arriving, with the expectation provide emergency places within pre- that they will return to Syria when the defined annual resettlement quotas. conflict there has been resolved. 1,000 In 2013, UNHCR issued a document104 places will be allocated to the German setting out a strategy for enhancing embassies’ contingent while the the use of resettlement as a protection remaining 4,000 will be divided among tool for Syrian refugees (including the following 3 criteria: Palestinians who have lived in Syria under UNRWA’s protection). The  Family members (1,300) who reg- strategy consists in two phases. The istered in Lebanon at UNHCR or first phase consists in concerted efforts Caritas and who have requested to make individual referrals based resettlement before March 31st, upon specific needs and vulnerabilities, 2013. UNHCR Germany will send the while the second phase will consist in data collected through webforms large-scale referrals if the protection to UNHCR Lebanon for verification. situation in the region requires it. As needs are far greater than the During the latter, the flexible pool available places, places may be allo- for emergency places may be used cated based on lottery; as well as places secured under spe-  Humanitarian reasons (those parti- cific funding provided for emergency cularly in need of protection, resettlement.105 mothers with children, orphans and religious minorities); and In March 2013, Germany agreed to  Persons with a particular potential grant humanitarian admission to some to assist in the (post-conflict) recon- 5,000 Syrian refugees in Lebanon struction of Syrian society.106 who had fled ongoing violence in the

104 UNHCR, Strategy for Enhancing the Use of 106 Anordnung des Bundesministeriums des Resettlement as a Protection Tool for Durable Innern gemäß §23 Absatz 2, Absatz 3 i.V.m Solution for Syrian Refugees, 12 April 2013 §24 Aufenthaltsgesetz zur vorübergehenden 105 See Chapter V for more information about EU Aufnahme von Schutzbedürftigen aus Syrien und

Chapter III – Refugee Situations in Focus funding. Anrainerstaaten Syriens, 30 May 2013 71

At the time of writing, UNHCR is developing a strategy to enhance the use of resettlement for vulnerable Syrian refugees from Jordan and Lebanon that will aim to address the resettlement needs of women and children at risk, medical cases, survivors of violence and torture and refugees with family links abroad.107 CHAPTER III CHAPTER IV CHAPTER V CHAPTER VI

107 UNHCR Projected Global Resettlement Needs 2014 CHAPTER VII Chapter IV – The Resettlement Process: from Identification to Departure © Tunisia/IOM arranges acharter flight fromDjerba to Hannover onbehalf ofthe German government for the refugees from Shousha/IOM/2012 73

Resettlement is a coordinated activity 1. IDENTIFICATION undertaken in partnership with resettlement countries, IOM, UNHCR, 1.1. Forecasting resettlement NGOs and other actors. It includes a needs variety of specific processes shown in the chart below, from identification in UNHCR field offices forecast the the field of refugees in need of reset- overall resettlement needs for specific tlement, to screening, processing, refugee populations as well as their pre-departure orientation, travel, own capacity to address these needs. reception and integration of refugees Resettlement targets are set each year in the resettlement country. for the forthcoming calendar year, and are published in UNHCR’s annual Projected Global Resettlement Needs document. Additionally, UNHCR uses tools such as the proGres database,1 a

1 proGres is a UNHCR registration database which records information relating to individual refugees’ involvement with UNHCR, from initial registration to the implementation of a durable solution. CHAPTER IV

Flight Preparing receiving Country of communities rst asylum Identi cation & selection Pre- Refugee Status departure Arrival to the

Determination CO resettlement CHAPTER V (UNHCR) country Arrival in municipalities Travel to Resettlement State (IOM) Initial reception

Integration CHAPTER VI

Source: Austrian Red Cross CHAPTER VII 74

mobile refugee field kit that provides community capacities to respond an overall picture of protection risks to these risks. Participatory assess- and the application of durable solu- ments do not focus specifically on tions - including resettlement - for resettlement, but do enable UNHCR global refugee populations. to assess the feasibility of resettlement as a durable solution. 1.2. Identifying individuals in need of resettlement  In addition to internal referral mechanisms, UNHCR also accepts referrals The identification of refugees at risk of individuals potentially in need of and of those with specific needs among resettlement from NGO partners. the refugee population is established Referrals may be made through through interviews with refugees formal arrangements signed with the and their dependants - assuming NGOs, as a supplementary protection refugee status has been granted2 - and activity to their main function, or on through an assessment of background a case-by-case basis. When deliv- and country of origin information. ering services, NGOs may come Identification is one of the most critical across specific protection concerns tasks in the resettlement process, and that can only be addressed through several tools and sources of infor- resettlement. UNHCR field offices mation are available to UNHCR staff may also assess self-referrals from and partners to support this process: individuals who believe they are in need of resettlement, although an  Protection profiling involves using over-reliance on self-referrals in iden- the UNHCR proGres database and tification is considered indicative of identifying the characteristics which gaps in local protection frameworks put individuals at high risk. and operations.

 Participatory assessments3 are  The Heightened Risk Identification structured discussions undertaken Tool (HRIT)4 was developed by by UNCHR with refugee women and UNHCR to improve the identifi- men of all ages and backgrounds. cation process by linking group The discussions focus on ga- and individual assessments. The thering information on protection HRIT provides a methodology by needs and risks and their under- which UNHCR and its partners lying causes, and on individual and can assess the risks present in

2 See Chapter I, Section 3.2 for more details. 3 UNHCR Tool for Participatory Assessment in 4 UNHCR, The Heightened Risk Identification Tool,

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement Operations, May 2006 June 2010 75

individual re-fugees’ living situa- action affecting an individual child tions and identify those in need of concern to UNHCR is taken. A full of a protection intervention. It BID must be undertaken in specific can be used prior to and following circumstances – for example, when Refugee Status Determination (RSD) making temporary care arrange- processes or participatory assessments for a child or when considering ments, or as a standalone tool. removing them from their parents or primary caregiver – or to determine  The Best Interest Determination the most suitable durable solution (BID)/Best Interests Assessment for the child’s protection needs. (BIA)5 process is used by UNHCR to A BID is a participatory process determine the best course of action designed to involve the child in the to resolve the protection needs of decision-making process, and can be children.6 A BIA is required before any undertaken for both unaccompanied children and those living with family

5 UNHCR, Guidelines on Determining the Best members and/or guardians. A BID/ Interests of the Child, May 2008 UNHCR-IRC, Field Handbook for the Implementation of UNHCR BID BIA may identify resettlement as the Guidelines, 2011 most appropriate durable solution 6 ‘In all actions concerning children, whether undertaken by public or private social welfare for a child. institutions, courts of law, administrative authorities or legislative bodies, the best interests

of the child shall be a primary consideration.’ CHAPTER IV Article 3, UN General Assembly, Convention on the Rights of the Child, 20 November 1989, United Nations, Treaty Series, vol. 1577‘ The principle of the best interests of the child shall be a primary consideration in regard to all actions concerning children, EXCOM Conclusions No.107 (LVIII) on Children at Risk, 5 October 2007 CHAPTER V

Chart A: Identification of refugees in need of resettlement

Assessment of Participatory Best Interest eligibility/need for resettlement Assessment Determination (BID) CHAPTER VI Refugee claim Decision to resettle a refugee Continued need for Viability of protection Yes No other solutions CHAPTER VII 76

UNHCR field office staff will conduct individual identification, is often used a resettlement needs assessment for in durable solutions strategies to assess each refugee potentially in need of large numbers of prima facie refugees.7 resettlement. The needs assessment: Processing groups of refugees in a  determines if sufficient information similar protection situation can con- is available to assess the need for tribute to resolving protracted refugee resettlement, and identifies any situations, and can also represent a additional information needed; strategic use of resettlement poten-  assesses the prospects for durable tially causing other protection benefits solutions and the current protection to accrue. environment;  reviews family links, child protection To support the use of group identi- concerns and any signs of fraud fication by field offices, UNHCR has associated with the case; and developed a group resettlement metho-  assesses the resettlement need, and dology.8 A ‘group’ will ideally share a identifies the priority of the case specific nationality and/or basis for a and which of the resettlement sub- refugee claim, possess some form of mission categories (see Chapter I identification, and be finite - in the and Annex I) applies. sense that it will not be replenished when numbers decrease, for example The assessment will produce one of the through resettlement. The group should following three conclusions: also be defined by one or more shared  the case is founded and should and verifiable characteristics, such as proceed for resettlement submission; political, religious or ethnic background,  the case is unfounded and reset- date of arrival or period of residency in tlement should not be pursued; or a particular situation.  additional information is required. UNHCR field offices wishing to employ 1.3. Identifying groups in need the group methodology must first of resettlement consult with and receive clearances

Identifying an entire group of refugees 7 Refugee status is determined on an individual basis, except where large groups of people are displaced as being in need of resettlement can under circumstances indicating that most members of the group could be considered individually as form an important component of a refugees. In such situations, the need to provide protection and assistance is often extremely urgent wider protection and durable solution and it may not be possible, for purely practical reasons, to determine refugee status individually. strategy, as developed by UNHCR for In these cases, group determination of refugee status is used, whereby each member of the popu- specific refugee situations. Group lation in question is regarded prima facie (‘at first appearance’) as a refugee, in the absence of evi- identification, which supplements dence to the contrary.

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 8 UNHCR Resettlement Handbook, 2011 77 from UNHCR Headquarters, and await and the United Kingdom (257).9 These reset- final permission prior to submitting a tlement departures enabled the government group proposal to one or more reset- of Nepal, together with the support of UNHCR, tlement states. Depending on the to reduce the number of refugee camps from resettlement country, group reset- seven to two. In this context, group resettlement documentation will serve in tlement was used to enable processing of lieu of individual RRFs or will replace large numbers of refugees and strategically the refugee claim and resettlement to encourage the Bhutanese and Nepalese need on abridged RRFs (see Section 2 governments to improve the protection of the present Chapter). environment for refugees not considered for resettlement. Case study: Group resettlement of Bhutanese refugees in Nepal 1.4. Identification challenges

In November 2005, seven countries formed Identification of resettlement needs the Core Group on Bhutanese Refugees in is a crucial phase of the resettlement Nepal, with the dual objective of providing process. Failure to correctly identify political support to UNHCR and encouraging refugees in need of resettlement the governments of Nepal and Bhutan to can have dramatic consequences. work toward a comprehensive solution for Resettlement can be life-saving. CHAPTER IV the situation of Bhutanese refugees living in a protracted situation in refugee camps (see A number of key challenges currently Chapter III). In November 2007, as a result of exist for resettlement identification. the work of the Core Group, UNHCR - in part- As with identifcation processes for nership with IOM and with the cooperation other protection needs, correct iden- of the Nepalese government - launched a tification for resettlement depends large-scale resettlement programme for on accurate refugee registration data. CHAPTER V Bhutanese, mostly Hindu populations of Refugee registration on interview is a ethnic Nepalese descent. resource-intensive process dependent on ongoing access to refugee popu- By December 2012, over 75,000 of the lations and careful maintenance of total 108,000 Bhutanese refugees had been registration data. Remote and urban

resettled to eight resettlement countries: refugee populations that do not have CHAPTER VI the United States (63,400), Canada (5,296), easy access to UNHCR can present Australia (3,837), Denmark (724), New Zealand additional challenges for registration (710), Norway (546), the Netherlands (326) and monitoring.

9 IOM, Resettlement of Bhutan Refugees from Nepal Passes 75,000, December 2012 CHAPTER VII 78

Nonetheless, in large part due to advocates that governments are more improved resettlement identification flexible in accepting for resettlement, processes, the number of refugees refugees who do not fall under the identified by UNHCR as being in 1951 Convention. need of resettlement has substantially grown during the past decade. However, the number of places 2. RESETTLEMENT offered by resettlement countries SUBMISSION has not kept pace with this increase. This introduces new challenges for 2.1. Resettlement interview and resettlement identification, including RRF prioritising the most needy and vulnerable among those identified for In cases where a resettlement needs resettlement, establishing a sequence assessment recommends submitting for resettlement submissions and the case for resettlement (see section advocating for the allocation of quotas 1.2 of the present chapter), refugees and resources for particular refugee and their family members are invited populations. to a resettlement interview. This interview is conducted by the UNHCR In protracted refugee situations, iden- Resettlement Officer/UNHCR staff tifying individual refugees in need of member designated as accountable resettlement can be an especially dif- for resettlement, or staff from other ficult task. Many refugees have spent organisations12 deployed to support years in camps as prima facie refugees UNHCR operations. All family members without any individual refugee status attend interviews, and all adults in the determination taking place. Most family are interviewed individually. resettlement countries only accept refugees that strictly fit the 1951 The purpose of the resettlement Convention definition of a refugee, interview is to prepare a case for sub- and not those who have fled gener- mission to a resettlement country. The alised violence such as that described interviewing staff member will: in the Organisation of African Unity  verify the composition of the family (OAU) Convention10 and the Cartagena unit, and determine which family Declaration in Latin America.11 UNHCR 12 In 1998, in this context, UNHCR and ICMC established the UNHCR-ICMC Resettlement Deployment Scheme. Through this partnership, ICMC deploys 10 Organization of African Unity, 1969 Convention resettlement caseworkers to UNHCR field duty Governing the Specific Aspects of Refugee Problems offices to boost UNHCR capacity to identify and in Africa refer refugees for resettlement. (for more details, 11 1984 Cartagena Declaration on Refugees see Chapter II). Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 79

Chart B: Resettlement case submission

Compilation of Resettlement Resettlement Submission Categories Registration Form (RRF) and  Legal and/or physical protection documentation needs  Survivors of violence and/or torture  Medical needs Decision of quality of submission  Women and girls at risk  Family reunification  Children and adolescents at risk Submission to resettlement country  Lack of foreseeable alternative durable solutions

Submission denied Submission approved

UNHCR considers submission to other countries or other durable solutions are pursued CHAPTER IV

member is the Principal Applicant  confirm the family’s resettlement for resettlement (PRA);13 need, and gather details on any spe-  record biographical data (‘biodata’) cific or special needs; and about the refugee and their family  determine the resettlement sub- members, and check against regis- mission category. tration data held by UNHCR; CHAPTER V  review each Refugee Status During the interview biographical Determination completed for the data, a summary of the refugee refugee and their family members claim and details of the resettlement and/or dependants and clarify any needs assessment are recorded on inconsistencies; the Resettlement Registration Form

(RRF). The RRF is the primary tool for CHAPTER VI presenting the resettlement needs of 13 The PRA is generally the same individual who is designated as head of household (HR1) at the time of individual refugees and their family registration. However, if the resettlement need of another adult member of the family has triggered members to resettlement countries. the submission, then this adult is noted as the PRA for the purposes of resettlement submission. Children are not normally designated as the PRA, even where their resettlement need is the strongest in the family. CHAPTER VII 80

By signing the RRF, refugees can give  an abridged RRF template for groups permission for resettlement countries submission that may be used when to share information on their specific one or more resettlement countries needs, such as medical conditions, agree to process a refugee group with service providers and/or local proposed by UNHCR (see section authorities. 1.3 of the present chapter for more details about the group submission A single RRF is completed for each methodology);14 and resettlement case, meaning that  an abridged RRF for individual sub- details of all members of a family due mission that may be used when re- to be resettled together are included fugees share similar refugee claims on one RRF. The RRF is signed by the and/or resettlement needs but were refugee(s), the UNHCR staff member or not designated as a group.15 deployee from another organisation, and the interpreter (if engaged). For a 2.2. Resettlement priority levels complete overview of sections of the RRF, please refer to Annex II. Throughout the identification, needs assessment and interview processes, To submit cases identified as in UNHCR and its partner agencies will need of resettlement via the group constantly assess the protection situa- resettlement methodology (see 1.3, tion of the refugee(s) concerned, and above), an ‘abridged’ RRF is used. Since the subsequent urgency with which members of a defined refugee ‘group’ resettlement needs take place. UNHCR normally share common refugee resettlement submissions have three claims and needs for resettlement, possible priority levels: the abridged RRF does not include details on individual claims and reset-  Emergency priority - cases where tlement needs. Use of the abridged there is an immediate threat to RRF (see Annex II) thus considerable safety, risk of refoulement, urgency reduces processing times. UNHCR has of medical condition or other developed standard abridged RRFs that serious or life-threatening factors. resettlement countries are encouraged Ideally, emergency cases should be to accept in order to harmonise and simplify procedures. 14 Since members of the ‘group’ normally share common refugee claims and needs for resettlement which are detailed in the Group Profile and Proposal Two global templates for abridged RRFs Document submitted by UNHCR, sections 4 (refugee claim), 5 (need for resettlement) and 6 (specific have been developed to enhance expe- needs assessment) of the RRF are not required. 15 UNHCR, Operational Guidance Note: Preparing ditious resettlement processing: Abridged Resettlement Registration Forms (RRFs)

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement for Expedited Resettlement Processing 81

submitted within 24 hours of iden- as emergency cases.16 Many reset- tification. UNHCR stipulates an ideal tlement countries require a direct, period of seven days between sub- face-to-face interview with refugees mitting emergency cases for consid- prior to taking a decision on accepting eration by a resettlement country their submission, and few countries and the refugee departing. UNHCR are therefore able to assist those field offices are responsible for pro- in need of emergency, and in some viding temporary protection mea- cases urgent, resettlement. Several sures pending resettlement. European countries can process  Urgent priority - cases where serious emergency and urgent cases within medical risks or other vulnerabilities very short time limits. Denmark, require expedited resettlement. Finland, Norway and the Netherlands UNHCR aims to submit cases clas- accept emergency and urgent cases sified as ‘urgent’ to a resettlement on a dossier basis by receiving elec- country within two weeks of iden- tronic files directly from UNHCR, tification, and requires departure strengthening the use of resettlement to take place within six weeks of as a life-saving instrument. Other submission. countries use the Emergency Transit  Normal priority - cases where there Facilities (See 3.3.2 of this Chapter). are no immediate concerns or CHAPTER IV factors that would merit expedited 2.3. Selecting a resettlement resettlement. UNHCR stipulates country departures of these cases within 12 months of submission to a reset- After the decision to submit a case tlement country. for resettlement, UNHCR selects the resettlement country to which the sub- RRFs used in submissions identified mission will be presented. Submitting CHAPTER V as ‘emergency’ or ‘urgent’ priority a case for resettlement does not gua- will specify if the need is for an rantee that it will be accepted by emergency/urgent decision by the the resettlement country. However, resettlement country, an emergency/ selecting a country that is likely to urgent departure, or both. accept the submission can expedite

the entire resettlement process sig- CHAPTER VI In 2012, the majority of cases sub- nificantly for individual refugees and mitted for resettlement by UNHCR their families. Some major consider- were categorised as normal priority ations for UNHCR in selecting a reset- (87.9%), 10.8% as urgent and 1.3% tlement country are:

16 UNHCR Projected Global Resettlement Needs 2014 CHAPTER VII 82

 The submission priority of the UNHCR field offices are responsible resettlement case. Some reset- for selecting the resettlement country tlement countries have allocated to which a case will be submitted. specific numbers (sub-quotas) of UNHCR’s Resettlement Service sup- resettlement places for emergency ports this process by providing infor- or urgent cases and developed mation on resettlement countries’ accelerated procedures for their quota allocations and submission departure. procedures.  Family links of the submitted refugee(s) in resettlement countries. 2.4. The resettlement  Special allocations within reset- submission tlement quotas by resettlement countries. Most resettlement coun- A resettlement submission consists tries allocate part or all of their of the RRF, any supporting docu- resettlement places to specific mentation and a covering memo or refugee populations. Some also email from the UNHCR Accountable allocate quotas for specific sub- Officer for resettlement activities19 mission categories such as women authorising the submission. and girls at risk, children and adolescents at risk, and medical cases Depending on the policy of the for example via the Twenty-or-More selected resettlement country, reset- programme17. tlement submissions are routed from  Selection criteria and admission field offices through UNHCR’s Regional priorities of resettlement countries Resettlement Hubs or Regional which may affect the likelihood Offices, through the Processing Unit of particular submissions being at UNHCR Headquarters or directly to accepted for resettlement. resettlement countries.  Health requirements of the refugee(s) and their family members The Processing Unit of the and the availability of appropriate Resettlement Service at UNHCR head- treatment in resettlement countries. quarters coordinates all resettlement  Language ability of the refugee(s) submissions on a dossier basis that are and their family members. designated as emergency or urgent,  The refugee’s expressed preference acting as a central liaison between for a particular resettlement country 18 (where possible). 19 The UNHCR officer accountable for resettlement activities within the field office is designated by the UNHCR representative/Head of Office and senior staff in charge of protection. In the absence of a des- 17 See Chapter VI for more details ignated Resettlement Officer, a member of UNHCR‘s

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 18 UNHCR Resettlement Handbook, 2011 protection staff is designated as accountable. 83 the field office, resettlement country SOPs that fit their local operational and - for rapid coordination of travel context using guidance developed - the International Organisation for by the Resettlement Service20, and Migration (IOM). review and update their resettlement SOPs annually using the Baseline 2.5. Transparency and fraud Standards Checklist.21 prevention SOPs include safeguards against All UNHCR staff, irrespective of grade fraud in the resettlement process, or function, have the responsibility including: of ensuring that protection activities  guidance on document recognition; - including resettlement - are carried  document authentication processes; out to the highest standards possible.  maintenance and efficient use of All UNHCR staff are also responsible progres as an identification and for preventing fraud and malfea- verification tool; sance in all protection activities,  clear authorisation and accountability again including resettlement. Overall in the resettlement process; and accountability for resettlement  oversight and quality assurance, activities within specific countries including periodic random checks or regions rests with the UNHCR by staff external to the reset- CHAPTER IV Representative/Head of Office and tlement process. the senior protection staff, and the UNHCR Resettlement Officer or de- Other anti-fraud measures instituted signated staff member is accountable by UNHCR and its partner agencies for the resettlement activities in include counselling refugees on the each field/regional office. Other staff implications of individual fraud in the members with resettlement respon- resettlement process, and running CHAPTER V sibilities - including those from other local public information campaigns organisations deployed to support on payment, preferential treatment UNHCR resettlement activities - are and sexual exploitation as fraudulent provided with terms of reference and abusive practices in the context describing their resettlement respon- of resettlement.

sibilities and local reporting and CHAPTER VI supervision structures.

UNHCR resettlement operations 20 UNHCR, Baseline Standard Operating Procedures on follow Standard Operating Procedures Resettlement, 2011 21 UNHCR, Baseline Standards Checklist (annex (SOPs). UNHCR field offices develop to Baseline Standard Operating Procedures on Resettlement), 2011 CHAPTER VII 84

3. SELECTION OF determine the cost of resettlement REFUGEES BY on their social security systems, and RESETTLEMENT how likely refugees will integrate suc- COUNTRIES cessfully in their country. However, selection criteria based on these There is no obligation for states to notions are often quite opaque and engage in resettlement. Some coun- intransparent. For instance, section tries participate in resettlement 8 (4) of the Danish Aliens Act, which through established and regular provides the legal basis for the Danish programmes. They agree to make resettlement programme, mentions available a specified number of ‘motivation’ as one of the criteria to be resettlement places within a defined taken into account during selection.22 period, and to consider submissions from UNHCR to fill those places. Other The experiences of service providers countries may resettle refugees on an have consistently demonstrated that ad-hoc basis and/or through special future integration prospects cannot resettlement programmes benefiting be assessed prior to departure. refugees with particular needs. Integration in the resettlement country is rather facilitated by ade- 3.1. Selection Criteria quate pre-departure needs assessments, pre-departure orientation Although all resettlement countries measures and information, and accept UNHCR resettlement sub- planning of services in the reset- mission categories as a basis for their tlement country. Resettlement is a resettlement selection, many also protection mechanism and must focus apply individual selection criteria on those most in need and the use of based on factors extra to UNHCR’s selection criteria based on integration resettlement submission categories. potential risks excluding refugees on These can include age, education, the basis of the very needs and vul- religion, health status, foreign lan- nerabilities for which resettlement is guage ability, employment experience designed to provide a solution.23 and skills, networks in the resettlement country and individual moti- 3.2. Selection methods vation for integration in the receiving country. Resettlement countries consider cases submitted by UNHCR on either By assessing these types of factors,

resettlement countries hope to 22 See Denmark section in Chapter VI

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 23 See Chapter VI and VII for more details 85 a dossier basis - where the decision are organised to select larger groups is based solely on the information of refugees for resettlement. contained in the RRF and related documentation - or based on both the While UNHCR generally prepares RRF and a personal interview carried the logistical aspects of selection out by representatives of the reset- missions, such as finding suitable tlement country during a selection interview rooms, sourcing inter- mission to the country of asylum. pretation, preparing an interview schedule and informing refugees of Many countries in Europe, including, interview arrangements, the capacity Denmark, Finland, Norway, Sweden of UNHCR field offices to support and the Netherlands, allocate a selection missions is often limited. A specific number of their total reset- comprehensive pre-mission question- tlement places for dossier submis- naire25 and pre-mission checklist26 sions, which may include emergency were developed by UNHCR to assist and medical cases and conduct with the planning and coordination selection missions for the remainder. of selection missions, and UNHCR re- France and Portugal only accept commends that visiting selection mis- dossier submissions.24 sions rely on their own resources for arranging interview space, transport CHAPTER IV 3.2.1. Selection missions and equipment, in order to minimise Selection missions usually consist of disruption to UNHCR operations in a delegation of government officials the country concerned. from the resettlement country, often from the Ministry of Interior or Home Many resettlement countries prefer Affairs, travelling to the country of to conduct selection missions, some- asylum from which they have planned times because the requirement for CHAPTER V to resettle refugees. The delegation face-to-face interviews is a legal conducts individual interviews with requirement in a resettlement refugees and their dependants, incor- country, and also because it affords porating a review of the refugee the opportunity to exert control over claim and exploring the respective the selection process. Face-to-face

country’s individual resettlement interviews can also enable countries CHAPTER VI selection criteria. Selection missions to clarify aspects of the resettlement

25 UNHCR, Pre-Mission Questionnaire for Resettlement 24 Belgium accepted dossiers from Shousha and the Interview Missions http://www.refworld.org/ UK began considering refugees referred for reset- pdfid/49631d782.pdf tlement on a dossier basis in 2011-2012, when 150 26 UNHCR, Pre-Mission Checklist for Resettlement Bhutanese refugees from Nepal were accepted in Interview Missions http://www.refworld.org/ this manner. pdfid/49631d2e2.pdf CHAPTER VII 86

submission that were not clear on the missions.27 Although after submission RRF or accompanying documentation. resettlement countries can request In-depth assessments can also assist information from UNHCR additional in planning reception and integration to that included on the RRFs, some arrangements responsive to the resettlement countries have stated needs of individual refugees. that missing, insufficient or incorrect information on RRFs frequently results Despite these advantages, the in refusals. Resettlement countries stressful nature of the interview have also expressed concerns that process and the need - perceived Refugee Status Determination does not or otherwise - to ‘perform’ at the always meet national standards, neces- interview can adversely affect both sitating further examination during a the refugee and the subsequent selection mission interview, and often resettlement decision. Selection mis- cite security concerns as a further sions also require significant human reason for the rejection of dossier and financial resources from both submissions. resettlement countries and UNHCR. 3.3. Selection challenges 3.2.2. Dossier selection Dossier selection is a flexible selection Access to refugee populations is an method, in that it enables consider- ongoing challenge for governments ation of individual refugees, smaller wishing to conduct face-to-face groups and large groups from a wide interviews with refugees during range of locations across the world. selection missions. The precarious, Dossiers are generally less resource- changeable and insecure nature intensive for both the resettlement of many refugee situations often country and UNHCR, and for refugees makes selection missions difficult or it removes the need for multiple inter- impossible to carry out. views. Dossier submissions are also an effective approach for countries From 2012 to the time of writing, starting with resettlement, particu- access to refugee populations for larly where a small number of cases resettlement processing in the are to be considered. Dadaab refugee camp in eastern Kenya has been complicated by Rejection rates for dossier submissions growing insecurity. This situation has are often significantly higher than for led to a substantial decrease in the cases interviewed during selection number of resettlement submissions

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 27 ICMC, Welcome to Europe, 2009 edition 87 made by UNHCR from 8,143 refugees to ensure that confidentiality is in 2010 to 2,170 in 2012.28 In Ecuador, fully maintained. Additionally, for ongoing conflict and violence causes refugees unfamiliar with this type of Colombian refugees in border jungle technology, participating in video- areas to move around very fre- conference interviews could be an quently, sometimes preventing their intimidating or confusing experience. attendance at pre-arranged selection Video-conferencing is also not an interviews. In Syria, the civil conflict appropriate method for complex or that began in March 2011 has led to sensitive cases. Adequate preparation the suspension of major resettlement of refugees for video-conference programmes in that country. interviews is therefore crucial to the successful application of this tech- 3.3.1. Video-conferencing nology in the resettlement selection Some resettlement countries have process.29 begun to explore the potential of new technologies to overcome challenges The use of videoconferencing in selecting refugees for resettlement by the Dutch government when access to refugees is complicated or impossible. The possibility of conducting interviews using video-conferencing was discussed at the CHAPTER IV Video-conferencing offers the possi- launch meeting of IOM, UNHCR and ICMC’s bility to conduct selection interviews joint project ‘Practical cooperation in EU with refugees in inaccessible and/or Resettlement,’ held in Timisoara, Romania, in insecure areas. By removing the need March 2010. Subsequently, a Video Interview to travel to a specific refugee situation Pilot was carried out with refugees in the and organise the practical aspects Emergency Transit Facility (ETF - see 3.3.2, of a selection mission, video-confer- below) in Timisoara. Two observers from the CHAPTER V encing may also significantly reduce Hungarian government also participated in the human and financial resources the pilot. required for selection interviews. In June 2009, the Dutch Justice Minister However, conducting interviews via approved the selection of refugees for reset-

video-conferencing presents new tlement from the ETF in Timisoara. CHAPTER VI challenges. Some UNHCR offices do not have the necessary technical equipment or the reliable and secure 29 Emphasised by UNHCR, and among the recommendations formulated by the Dutch government data connections that are required following the implementation of the video- conferencing pilot project. Dutch Immigration and Naturalisation Service, Video Interview Pilot, 28 UNHCR Projected Global Resettlement Needs 2014 February 2011. CHAPTER VII 88

In consultation with UNHCR, the Dutch go- 3.3.2. Emergency Transit Facilities vernment selected a group of fifteen Eritrean The concept of Emergency Transit refugees living in Yemen to participate in the Facilities (ETFs) was developed in pilot to test selection interviews through response to the emergency protection video-conferencing. needs of refugees. UNHCR, in cooperation with governments in Romania, In January 2011, the group was transferred Slovakia and the Philippines,31 has from a detention centre in Yemen to the opened ETFs in Timisoara (established ETF. Among them, four persons were inter- in 2008) and Humenné (established viewed by means of video-conferencing, and in 2009), and an Emergency Transit interviews were recorded for further evalu- Mechanism (ETM) in Manila (also ation. The emphasis of the pilot was on the established in 2009). Together, these technical feasibility of the interview rather facilities have a capacity of 400 places than the interview technique. Although the for refugees in need of a safe location total number of interviews was too low to while they await resettlement. In June conclude that the use of video-conferencing 2012, Slovakia increased its capacity by would be cost effective in the long-term, the 50%, and now provides places for 150 technical quality of the interview was widely refugees. acknowledged.30 ETFs offer a secure environment for Source: Dutch Immigration and Naturalisation conducting interviews and medical Service, Video Interview Pilot, February 2011 examinations, as well as for providing cultural orientation and language classes. ETFs are now also used in situations where resettlement countries experience difficulties in accessing refugees, due to security or political reasons in the country of asylum, and so require refugees to be moved for the purpose of further processing.32 These situations are not emergencies as such, and the use of ETFs in this context marks an expansion of their role within Palestinian refugees waiting for resettlement at the Evacuation Transit Centre in Timisoara, the wider resettlement process. Romania/UNHCR/F.Chiu

31 Tripartite agreements establishing ETFs were con- 30 Recommendations for future interviewing by video- cluded by UNHCR, IOM and the governments of conference can be found at: www.resettlement.eu/ Romania, Slovakia and the Philippines, respectively. resource/video-interview-pilot. 32 UNHCR Guidance note on Emergency Transit

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement Facilities, 4 May 2011 89

Cases of individuals or groups that Any transfer to an ETF is conditional may be considered for evacuation to on a resettlement country agreeing an ETF include refugees: to undertake further resettlement  at immediate risk of refoulement processing for the specific case(s) at or facing other acute, life-threat- the ETF. Although no guarantee of ening situations; actual acceptance for resettlement  in detention conditions that is provided at the time of transfer, warrant resettlement as the most this condition aims at limiting the appropriate form of protection; risk that a refugee is stranded at  whose cases are particularly sen- the ETF. Evacuated refugees spend sitive or high-profile, and who face a maximum of 6 months at the ETF, imminent or serious protection although individual exceptions may problems; be made. In most cases, a reset-  for whom resettlement processing tlement country that has agreed in cannot be completed in the host principle to resettle refugees from country due to inaccessibility; the ETF will wish to visit the ETF to  in need of resettlement, and for conduct interviews. If interviews are whom the resettlement country required, the resettlement country and/or UNHCR requires that their may arrange a mission to the ETF final destination for permanent or may interview the refugees CHAPTER IV resettlement not be disclosed to using video-conferencing tech- the asylum country; nology. Medical examinations may  in situations where it is more be required and the resettlement expedient and incurs lower costs country may arrange cultural orien- to process the cases at the ETF, tation and language lessons prior to even if the refugees concerned are departure. not necessarily at immediate risk; CHAPTER V and/or ETFs are mostly used by the United  in other situations as appropriate.33 States, but European countries such as the Netherlands and the UK also A total of 1,234 refugees have make use of the facilities. In 2009, departed to 11 resettlement coun- for example, the UK used the ETF

tries via ETFs and the ETM since the in Romania to select 81 Palestinians CHAPTER VI beginning of operations in 2008 and ex-Iraq for resettlement, thereby 2009. allowing the selection of emergency and urgent resettlement cases which are normally not included in their programme. 33 UNHCR Resettlement Handbook, 2011 CHAPTER VII 90

3.4. NGO involvement in composed of both DRC and DIS rep- selection resentatives. After interviews have taken place, the teams discuss their Participation in the selection of cases and conclude if resettlement refugees for resettlement is usually to Denmark is appropriate. While limited to representatives of the gov- the DIS takes all final decisions on ernment of the resettlement country. selection, the DRC is considered a In both Denmark and Iceland, ‘hearing partner’, involved in discus- however, NGOs also participate in the sions leading up to the final selection selection process. decision and exercising oversight and scrutiny of the resettlement selection In Denmark, the Danish Refugee process. Council (DRC) participates in selection missions together with the Danish A summary of the involvement of Immigration Service (DIS). A written the Icelandic Red Cross in the reset- contract specifies the DRC’s role tlement selection process is included in the process, including activities in the Iceland country section in before, during and after the selection Chapter VI. mission.

When a group is identified for reset- 4. PREPARING tlement by DIS, DRC and DIS par- REFUGEES TO LEAVE ticipate in a preparatory meeting to plan the selection mission. On arrival Resettlement countries that have in the country of asylum, the DIS/DRC selected one or more refugees to be delegation participates in a briefing resettled are responsible for putting given by UNHCR regarding the situ- a number of pre-departure arrange- ation of the refugees in their country ments and measures in place. The of origin and the country of asylum. majority of refugees selected for Before selection interviews are con- resettlement in the ‘normal’ priority ducted, DIS and DRC run a session category will travel to the reset- for the refugee group that provides tlement country within six months of general information about the Danish the decision to accept them. During resettlement programme and Danish the period prior to departure, reset- society. tlement countries will also prepare for the refugees’ arrival.34 Selection interviews are facilitated

by teams from the Danish delegation 34 See Chapter VI for summaries of European reset-

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement tlement countries’ pre-arrival planning processes. 91

Preparing refugees to depart to their resettlement countries. IOM conducts new resettlement country includes a pre-departure health assessments for variety of different activities such as many resettlement countries,35 while arranging travel documentation, pro- others such as the Netherlands and viding refugees with pre-departure Sweden use their own medical per- orientation training and information, sonnel to carry out health checks, pre-embarkation briefings, con- usually in conjunction with a selection ducting health assessments and pro- mission. viding travel health assistance. Travel health assistance is provided to Each resettlement country sets their refugees to travel safely and to avoid own pre-departure requirements in-flight medical emergencies or and measures, and decides whether flight deviations.36 Refugees in need to carry out pre-departure activities of travel health assistance are iden- independently or to outsource some tified during the pre-departure health or all of these to organisations most assessment. In certain situations, often to IOM or to NGOs. travel cannot be delayed even though the person concerned has a signif- 4.1. Health assessments & icant medical condition, and in these travel health assistance cases a medical escort (for example a CHAPTER IV physician or nurse) is allocated to an Pre-departure health assessments are individual or a group of travellers to conducted to ensure that refugees ensure continuity of care throughout travel in a safe and dignified manner the travel process. - that they are fit to travel, receive appropriate health assistance and do 4.2. Pre-departure cultural not pose a risk, either to other trav- orientation CHAPTER V ellers or to the receiving community. Refugee health profiles vary widely Pre-departure cultural orientation according to pre-existing health con- (CO) refers to measures and inter- ditions, experiences of displacement ventions that provide refugees with and factors such as access to information about the travel process

healthcare in the country of asylum. and the resettlement country prior CHAPTER VI Pre-departure health assessments to their departure. CO programmes are not routinely carried out for all are generally designed to prepare refugees selected for resettlement refugees for their initial period of - they are instead carried out at 35 See comparative table on pre-departure assistance the request and at the expense of in Europe below. 36 IOM, IOM Resettlement Services, 2012 CHAPTER VII 92

systems, and social and cultural norms and expectations;  typical integration challenges and ways to solve them;  an introduction to the language of the resettlement country;  travel arrangements (often discussed in a separate pre-embarkation briefing delivered by IOM).

CO course for refugees from Shousha to be Cultural Orientation for Refugees due to resettled to Germany/IOM/2012 travel to Norway (NORCO - IOM)

resettlement, and address both Since 2003, Norway has exclusively used factual information as well as skills bi-cultural or cross-cultural trainers for the and attitudes which facilitate inte- delivery of pre-departure CO. Following a gration prospects. Pre-departure ori- study carried out by the government, munici- entation is often designed to address palities in Norway reported that resettled the challenges inherent to the tran- refugees had more problems integrating sition to life in a resettlement country, than other migrants and therefore needed and to manage refugees’ expectations more information and support about their of what their ‘new life’ will consist of. new community. In consultation with IOM, enhanced CO was developed and is now The majority of European resettlement delivered by bi-cultural trainers. countries organise some form of pre- departure CO programme, which typi- ‘As a trainer you need to have a balanced cally involves refugees attending one discussion. You cannot give only negative or or more training or briefing sessions. only positive information….when I interview The content and length of CO pro- potential trainers they must be able to grammes and the actors involved in describe the differences between Norwegian delivering it vary across resettlement culture and their own and the challenges that countries, but most programmes gen- come with the differences.’ erally cover the following topics: [William Paintsil, IOM Norway]

 the reception process and role(s) of the receiving agencies; Pre-departure CO is often conceptu-  basic information about the alised as the first stage of the inte- receiving society’s legal framework, gration process for resettled refugees, Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 93 and some programmes explicitly link related to the Resettlement and the content of pre-departure pro- Reception of Refugees’), led by the grammes with reception and inte- Ministry of Labour in Finland, suggest gration programmes and services in that activities undertaken in the pre- the resettlement country. departure period do influence later stages of the resettlement process in While refugees selected on a dossier the resettlement country.37 However, basis cannot normally attend a CO pro- the consultation also found that stress gramme, some resettlement countries experienced by individual refugees do provide written CO information in during the pre-departure period these cases, generally in the form of a caused them to be less receptive to leaflet or brochure. The Netherlands complex information. established an innovative approach to providing CO for dossier cases in coop- 4.3. Movement assistance eration with IOM. The Netherlands Cultural Orientation programme for To travel from the country of asylum dossier cases (NLCO), implemented to the resettlement country, resettled since January 2010, aims to provide refugees must first obtain travel doc- refugees selected on a dossier basis uments. The provision of travel docu- with factual information about the ments (laissez-passer, ICRC travel doc- CHAPTER IV Netherlands that creates realistic ument or transfer forms, depending expectations of their ‘new life’ there. In on the country) is usually facilitated a new phase of the project, NLCO II, the by the resettlement country through CO programme has been extended to 4 embassies and consulates in the days. A key element of the programme country of asylum. Depending on the is the website www.nlco.iom.int which country in which refugees are staying provides an updated curriculum and in and/or transiting, exit permits and CHAPTER V training materials, and is accessible transit visas may also be required. as a remote tool for all IOM trainers involved in the project. At major airports, transit assistance is normally provided to ensure that It is not clear to what extent or to refugees catch the correct connecting

what level of detail resettled re- flights. Transit staff also assist pas- CHAPTER VI fugees understand or retain infor- sengers and notify receiving authorities mation that they receive prior to where flights are delayed or changed. departure. Findings from the 2008 Arranging travel for resettled refugees EU-funded MOST project (‘Modelling of Orientation, Services and Training 37 MOST project, Pre-departure Orientation for Resettled Refugees: a Guide, 2008 CHAPTER VII 94

and other vulnerable persons is part of out 24 to 72 hours prior to departure. IOM’s constitutional mandate, and IOM These are carried out by IOM physicians generally makes all arrangements for and nurses in clinics and transit centres, travel to European resettlement coun- by mobile health teams or in collabo- tries. IOM has a worldwide network of ration with field partners. In some cases, movement operations staff to facilitate travel will be postponed for refugees this process. with specific health conditions (deteriorating pre-existing conditions or new/ Many refugees will not previously have previously undetected conditions) or travelled on an aeroplane or on an inter- injuries that render them unfit to travel. national flight, and IOM provides pre- embarkation briefings - at the request In some locations, the prevalence of of resettlement countries - in order to diseases such as malaria and intestinal prepare them for the journey. To verify parasites can necessitate pre-departure that refugees are fit to travel and that treatment for all departing refugees. In appropriate pre-departure treatment these cases, treatment is documented for identified diseases has been admin- and individual treatment records travel istered, Pre-Embarkation Checks (PECs) with refugees to the resettlement and Fit for Travel assessments are carried country.

39 Only medical escorts. 40 FINCO has been carried out by IOM since 2004, with over 3000 Finland-bound refugees receiving cultural orientation under the programme. A brief interruption of CO took place during 2011-2012, when the programme did not operate. IOM is currently developing a new FINCO programme at the request of the Finnish Immigration Service (MIGRI), anticipated to be in place as of late 2013. 41 Services currently under discussion with IOM. 42 Pre-departure CO was previously carried out at the end of each selection mission, followed by a 6-week post-arrival CO in Ireland. No pre-departure CO has been carried out since the last selection mission, which took place in 2009. Post-arrival CO is provided by local authorities and the Office for the Promotion of Migrant Integration (OPMI) in the Department for Justice and Equality.

Chapter IV – The Resettlement Process: from Identification to Departure from Process: Chapter IV – The Resettlement 43 Serviço de Estrangeiros e Fronteiras 95

Pre-departure assistance in Europe 40

O of C of io n durat g e vera A 3 days, including pre-embarkation training for quota refugees aged aged refugees quota for training including pre-embarkation 3 days, seminars and information special cases, for given CO 15+. Post-arrival communities. municipalities/receiving for CO leaflet prepared by CPR is usually handed out via UNHCR before before CPR is usually handed out via UNHCR by prepared leaflet CO departure - 9 days - government course for interviewed refugees (adults and refugees interviewed for course - government - 9 days 11). over children dossier cases. for days 4 (extended) of 1 (basic) to - IOM course 3 days in total - 2 days by Fedasil, and 1 day by IOM by and 1 day Fedasil, by - 2 days in total 3 days No pre-departure CO. Leaflet created by Forum Réfugiés-Cosi but not Réfugiés-Cosi Forum by created Leaflet CO. pre-departure No cases. in many refugees by received 2-hour pre-departure information information 2-hour pre-departure 10 hours (2 days) for children; 20 hours (4 days) for adults; 5 days if adults; 5 days for (4 days) 20 hours children; for (2 days) 10 hours only trs Pilot project of a 2.5 day CO programme implemented in 2012. Future in 2012. Future implemented programme CO of a 2.5 day Pilot project is under discussion. programme CO of the content 4-5 day course. New curriculum currently under development, sup - development, under curriculum currently New course. 4-5 day IOM. by ported 9-10 hours of information, discussions, film viewing etc film viewing discussions, of information, 9-10 hours attend. and adults may Both children 1 week No pre-departure CO at the time of writing. time the at CO pre-departure No IOM provides a 5-hour pre-embarkation and CO briefing in selected in selected briefing and CO a 5-hour pre-embarkation IOM provides only locations CHAPTER IV

38 C O IOM NGO Portuguese Refugee Refugee Portuguese NGO Council (CPR) Government for interviewed interviewed for Government dossier cases and IOM for refugees Fedasil in cooperation with IOM in cooperation Fedasil Pre-departure leaflet - Forum - Forum leaflet Pre-departure Réfugiés-Cosi Government Government IOM NGO Burma Centre Prague Burma Centre NGO NGOs (Diakonie or others) / IOM or others) (Diakonie NGOs Government & municipalities & municipalities Government Danish Immigration Service. Both DRCDanish Immigration participate and municipalities can - Government & IOM Government CHAPTER V

37 health checks - Government & Government IOM IOM IOM IOM IOM IOM IOM IOM IOM IOM IOM IOM 41 CHAPTER VI travel IOM IOM IOM IOM IOM IOM IOM IOM SEF IOM IOM IOM IOM y untr Co Netherlands Belgium France Spain Norway Czech Czech Republic Germany Sweden Portugal Denmark Ireland UK Finland

Source: IOM Resettlement Coordinators in Europe & national governments CHAPTER VII Chapter V - Resettlement in Europe: Rising Slowly but Surely with refugee family leaving for Tunesia atDjerba © Germanambassador to Germany,Jen Plötner, airport/IOM Tunis/2012 97

This chapter gives an overview of the during the 1970s by the Nordic coun- way resettlement is taking place in tries and the Netherlands. They Europe both at the policy level and in established numerical targets for the practice, looking at the evolution of the number of refugees to be resettled European resettlement policy, planning during a single year or other specified for the future and making the case for period. why Europe should resettle more. These annual quota programmes still form the backbone of contemporary 1. MORE COUNTRIES, European resettlement. European SMALL NUMBERS countries have also responded to refugee crises through ad-hoc reset- Resettlement is deeply grounded in tlement, humanitarian admission Europe’s long-standing humanitarian programmes2 and Protected Entry tradition of protecting refugees and Procedures (PEPs). The two latter share showing solidarity with developing many characteristics with resettlement countries that host the majority - cur- and leave an important legacy of rel- rently more than 80% - of them.1 evant knowledge and expertise.

European resettlement began during More than half a century has passed the 1950s, following mass movements since the first European resettlement of refugees and migrants both during programme was established, and and after the Second World War and the number of European countries the adoption of the 1951 Refugee that engage in resettlement has Convention. Europe has since offered since grown considerably. In 2013, 13 resettlement to many thousands of ref- Member States - Belgium, the Czech ugees, including Hungarians fleeing fol- Republic, Denmark, Finland, France, CHAPTER V lowing the 1956 revolution, Vietnamese Germany, Ireland, the Netherlands, ‘boat people’ escaping the Vietnam War Portugal, Romania, Spain, Sweden and and its aftermath in the late 1970s and the UK - implement annual refugee 1980s, and those fleeing conflict and the break-up of the former Yugoslavia in 2 ‘Humanitarian admission’ is the process by which the 1990s. countries admit groups from vulnerable refugee CHAPTER VI populations in third countries onto their territory, so as to provide temporary protection on humanitarian grounds. Beneficiaries of humanitarian The first of Europe’s national reset- admission are granted short-term residence in receiving countries, with the expectation that their tlement quota programmes were ongoing need for protection will be reviewed in the future. Humanitarian admission is generally used developed in cooperation with UNHCR for an identified refugee population in an extremely insecure or vulnerable situation, but where there is some expectation that return may be possible 1 UNHCR Global Trends 2012 within a relatively short period. CHAPTER VII 98

resettlement programmes, nearly all Start of 2013 with annual quotas.3 Outside the EU, the annual Quota Country quota (persons) Norway and Iceland also implement annual resettlement quota programmes UK 2004 750 and - at the time of writing - new pro- PT 2007 30 grammes are being developed by coun- FR 2008 100 cases tries such as Bulgaria and Switzerland. RO 2008 40 A picture of growing European CZ 2008 40 solidarity: 15 European resettlement ES 2011-12 100 countries by 2013 Many European countries estalished DE 2012 300 formal resettlement programmes in BE 2013 100 partnership with UNHCR during the HU 2013 10 latter part of the 20th century, from the 1970s onwards: BG 2014 n/a

Start of 2013 Several European countries - Denmark, the annual Quota the Netherlands, Spain, Austria and Country quota (persons) Italy - have Protected Entry Procedures SE 1950 1,900 (PEPs) in place. PEPs enable non- DK 1979 500 nationals to approach these countries outside of their territory with a claim NL 1984 500 for asylum or other form of interna- FI 1985 750 tional protection, and to be granted NO 1980s 1,200 an entry permit in cases of a positive response to the claim.4 Many European IS 1996 Rev. countries, namely the UK, France, IE 1998 200 Germany, Austria and Italy have received beneficiaries of international European resettlement has expanded protection as part of Humanitarian considerably since the turn of the Evacuation Programmes (HEPs). century, with 10 further Member States establishing programmes, many More recently, 16 European countries with relatively small numbers: - Bulgaria, Denmark, France, Germany,

3 There is currently no permanent annual reset- 4 Noll, G., Study on the feasibility of processing asylum tlement quota in the Czech Republic, although the claims outside the EU against the background of the government considers resettlement to be an estab- Common European asylum system and the goal of a

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement lished national activity. common asylum procedure, 2002 99

Hungary, Ireland, Lithuania, Latvia, more resettlement places, the rate of the Netherlands, Poland, Portugal, their creation has not kept pace with Romania, Slovenia, Spain, Slovakia that of other resettlement countries in and the UK - have become involved in the world. another type of solidarity mechanism known as ‘intra-EU relocation’: (here- Globally, the number of people currently after referred to as ‘relocation’). in situations of forced displacement has reached 45.2 million, the highest Some EU countries have never been figure recorded by UNHCR for 14 years. involved in any of these activities. 10.5 million7 of these are refugees,8 of whom UNHCR reports resettlement to be the only solution for 700,000 (not 2. LOOKING TO THE including the potential resettlement FUTURE - responding needs of the large numbers of refugees to INCREASING NEEDS fleeing the current crisis in the Syrian Arab Republic). The total number of individuals that European countries5 have committed The global total of 86,000 resettlement to resettle in 2013 is approximately places provided by resettlement coun- 5,500. During 2012, Europe received tries around the world thus provides 5,796 refugees6 who arrived with for just 12.5% of global resettlement UNHCR assistance. During the same needs. A vastly improved European period, the United States resettled resettlement offer is thus more ne- 50,097 refugees, Australia 9,988 re- cessary than ever. fugees and Canada 6,226 refugees. In March 2013, in view of the acute and Despite the fact that an increasing growing protection needs of refugees CHAPTER V number of Member States have partici- from Syria, Germany announced that pated in resettlement in recent years, it would implement a pilot humani- Europe’s contribution to global reset- tarian admissions programme (HAP) to tlement has remained approximately admit 5,000 Syrian refugees primarily the same - 7.9% of the total number from Lebanon into Germany. Refugees

of refugees resettled in 2007 and 8.3% will receive a residence permit with CHAPTER VI in 2012. So while Europe has created an initial validity of two years, with

5 EU Member States and European Economic Area 7 This figure does not include the 4.9 million (EEA) countries Palestinian refugees under the mandate of the 6 CZ (25), DE(307), DK(500), ES (80), FI (689), FR(8), United Nations Relief and Works Agency for IE(49), IS (9), NL(236), NO(1,300), PT(23), SE(1,728) Palestinian Refugees (UNRWA) and UK (752) 8 UNHCR Global Trends 2012 CHAPTER VII 100

the possibility of renewal if the con- 1999 Tampere Conference asserted the flict in Syria persists. In addition to political direction for developing the the HAP pilot, UNHCR is preparing a EU as an ‘Area of Freedom, Security humanitarian admission scheme to and Justice’, and produced Member admit 10,000 Syrian refugees - initially State agreement on the development from Lebanon, but possibly also from of a Common European Asylum Jordan, Turkey, Iraq, and Egypt - to System (CEAS).9 Asylum and migration third countries. were included as key elements in the external relations of the EU, and reset- UNHCR is simultaneously developing tlement conceived of as an organised an enhanced resettlement strategy mechanism by which refugees could for Syrian refugees from the region, enter the EU without resort to traf- initially aiming to evacuate 2,000 fickers or precarious and dangerous particularly vulnerable cases, such journeys. as those with immediate and serious medical needs and disabled persons, In 2000, the European Commission during 2013. UNHCR will continue to commissioned the Migration Policy assess the longer term need for more Institute (MPI) to carry out a feasi- extensive resettlement actions and the bility study to ‘explore methods of scope of these actions. To date, the increasing the orderly arrival into the response of European resettlement EU of persons in need of international countries to the Syrian crisis has been protection, notably through the esta- lukewarm - those that have offered blishment of resettlement schemes’.10 places for refugees ex-Syria have done Published in 2003, the MPI study con- so only within their current quotas and cluded that ‘there could be political will without creating any new resettlement to establish an EU-wide resettlement places. Main refugee situations are programme’.11 detailed in Chapter III.

9 European Council Presidency Conclusions, Tampere, 15-16 October 1999 3. RESETTLEMENT AND 10 European Commission, Communication from the Commission to the Council and the European THE EUROPEAN ASYLUM Parliament Towards a common asylum procedure and a uniform status, valid throughout the Union, SYSTEM for persons granted asylum, November 2000 11 ‘For Member States that did not conduct resettlement at that time, some were willing to consider Toward the turn of the millennium, the the establishment of a resettlement programme, although a certain confusion between resettlement EU began to reflect on including reset- and return was noticed among state officials.’ Migration Policy Institute, Study on the feasibility tlement policies within the external of setting up resettlement schemes in EU Member States or at EU level against the background of the dimension of its asylum policy. The Common European Asylum System and the goal of a

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement Common Asylum Procedure, 2003. 101

In 2004, the Commission issued a 4. REGIONAL PROTECTION Communication on durable solutions12 PROGRAMMES (RPPS) that explored ‘all parameters in order AND RESETTLEMENT to ensure more orderly and managed entry in the EU of persons in need The 2005 ‘Communication from the of international protection’.13 The Commission to the Council and the Communication proposed a ‘situation- European Parliament on Regional specific’ EU resettlement scheme, in Protection Programmes’ created which the participation of Member Regional Protection Programmes States would be ‘flexible’ (although the (RPPs). RPPs are international pro- term ‘voluntary’ was not present in the tection instruments that aim to improve text in this regard). refugee protection in target regions through the provision of durable solu- Although the Communication envisaged tions. Voluntary repatriation and local that the European Commission would integration are the primary durable submit a proposal for an EU reset- solutions considered within RPPs, tlement scheme to the Council by with resettlement to a third country July 2005, a lack of political impetus considered when neither of these is from Member States delayed delivery feasible.15 of the proposal until the Swedish EU Presidency in September 2009. In the There is no specific financial instrument intervening period, resettlement was dedicated to RPPs, which are instead introduced as one component within mainly funded under the Thematic EU Regional Protection Programmes Programme ‘Cooperation with Third (RPPs) which Member States could Countries in the areas of Migration implement on a voluntary basis.14 and Asylum’, within the development A discussion of RPPs and European budget of the European Commission.16 CHAPTER V funding for resettlement follows in the For the period 2011-2013, 20-30 sections below. per cent of the ‘thematic priorities’

15 See Chapter I for more information on durable

12 European Commission Communication from the solutions. CHAPTER VI Commission to the Council and the European 16 Thematic Programme ‘Cooperation with Third Parliament on the Managed Entry in the EU of Countries in the areas of Migration and Asylum’ - persons in need of international protection and 2011-2013 Multi-Annual Strategy Paper. Some RPP the enhancement of the protection capacity of the projects were also funded through the following regions of origin ‘improving access to durable solu- EU instruments: AENEAS 5 - financial and technical tions’, 4 June 2004 assistance to third countries in the field of migration 13 First objective Conclusion 26, ibid. and asylum;TACIS Programme 2000-2006 - aimed at 14 European Commission, Communication from the promoting the transition to a market economy and Commission to the Council and the European reinforcing democracy and the rule of law in the Parliament on Regional Protection Programmes, 1 partner states in Eastern Europe and Central Asia; September 2005, COM(2005) 388 final andthe European Development Fund. CHAPTER VII 102

financial envelope17 is allocated to Under the proposed Multiannual the implementation of RPPs. The RPP Financial Framework (MFF) 2014-20, resettlement component is stimulated funding for RPP programmes and their by the European Refugee Fund (ERF), resettlement component will be main- which lists resettlement activities for tained (AMF - see 8.1, below).21 The ‘persons from a country or region des- fact that a country resettles from a ignated for the implementation of an RPP region does not necessarily mean RPP’ as a category for which Member that resettlement is carried out in the States can receive financial support framework of an RPP. (see 6.2, below).18 Five RPPs have been implemented A 2009 external evaluation assessed since 2004, all of which are still ongoing both the general concept of the at the time of writing. Resettlement RPPs and the two pilot RPPs tar- accounted for a relatively small part geted at Eastern Europe (WNIS) and of the durable solutions provided to in the Great Lakes Region (Tanzania). refugees in these contexts, as detailed The study concluded that a very below. small number of refugees had been resettled in Member States within the 4.1. RPP in Tanzania and framework of RPPs, that RPPs had suf- the Great Lakes Region fered through a lack of coordination (2004-present) between EU Directorate Generals19 and that the concept of RPPs was gen- Implemented by UNHCR, the RPP in erally not visible or well understood in Tanzania and the Great Lakes Region the beneficiary countries.20 mainly focuses on local integration through naturalisation and voluntary repatriation.22 During 2004-8, 434 refugees were resettled under the 17 Thematic Programme ‘Cooperation with Third Countries in the areas of Migration and Asylum’ RPP to seven EU Member States - 2011-2013 Multi-Annual Strategy Paper. The (Belgium, Denmark, Finland, Ireland, indicative budget for 2011-2013 for the Thematic Programme for cooperation with third countries in the Netherlands, Sweden and the the areas of migration and asylum is 179 million. 53 million is allocated to ‘targeted thematic priorities’. UK). The majority of these (61%) were 18 Decision No 573/2007/EC of the European Parliament and of the Council of 23 May 2007 resettled to the Netherlands. The establishing the European Refugee Fund for the period 2008 to 2013 (called: ERF III) as part of the General programme Solidarity and Management of Migration Flows and repealing Council Decision 21 See article 7, 17, 21 of the Proposal for a regu- 2004/904/EC, hereafter referred to as the ‘ERF III lation of the European Parliament and the Council Decision’ establishing the Asylum and Migration Fund, 15 19 DG Development and Cooperation (EuropeAid), DG November 2011 (hereafter referred to as the AMF Humanitarian Aid and Civil Protection (ECHO) and draft regulation ) European External Action Service (EEAS) 22 Since 2002, UNHCR has assisted in the voluntary 20 European Commission, Evaluation of Pilot Regional repatriation and local integration of 417,000

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement Protection Programmes, 2009 Burundian refugees. 103 contribution of EU Member States the majority (79%) of the refugees in this context compares to 12,471 resettled during this period.25 refugees from Tanzania resettled to the US, Canada and Australia during 4.3. RPP in the Horn of Africa the same period.23 Within the joint (2011-present) EU resettlement programme for 2013, Belgium has pledged to resettle 40 The RPP in the Horn of Africa (involving Burundian refugees from this RPP Djibouti, Kenya and Yemen) began in region. September 2011. It aims to strengthen protection and enhance assistance for 4.2. RPP in the Western Newly refugees and asylum seekers in the Independent States (WNIS) region, as well as providing border (2009-present) security and protection against trafficking.26 The resettlement process in Begun in 2009, the RPP project in the Dadaab refugee camp in Kenya has been WNIS states supports three coun- complicated by growing insecurity in tries at the eastern border of the EU the camps and subsequent difficulties in - Belarus, Moldova and Ukraine24 - to accessing the populations living there. implement their protection obligations under the 1951 Refugee Convention. 4.4. RPP in eastern North Africa Most projects in the WNIS RPP are (2011-present) implemented by international and local NGOs, and focus on activities to Established in December 2011 and improve the general protection situ- implemented in partnership with ation for refugees and asylum seekers UNHCR, the RPP in eastern North Africa in the three countries. focuses on Egypt, Tunisia and Libya. The programme includes a resettlement CHAPTER V 204 refugees were resettled from WNIS component inserted at the request of during 2004-8. Similarly to the Tanzania the European Commission. and Great Lakes RPP, receiving Member States include Belgium, Denmark, Eight Member States - Denmark, Finland, Ireland, the Netherlands, Finland, Germany, Ireland, the

Sweden and the UK. Sweden resettled Netherlands, Portugal, Spain and CHAPTER VI Sweden - agreed to resettle from Shousha camp in Tunisia, which falls 23 European Commission, Evaluation of Pilot Regional Protection Programmes, 2009 24 Belarus and Moldova acceded to the 1951 UN Convention Relating to the Status of Refugees 25 European Commission, Evaluation of Pilot Regional in 2001, followed by Ukraine in 2002. All three Protection Programmes, 2009 countries thus formally committed to protecting 26 Council Conclusions on the Horn of Africa, 14 refugees. November 2011 CHAPTER VII 104

under the North Africa RPP region, has introduced a system of funding from within their existing resettlement and financial incentives for states’ quotas, and Belgium resettled 25 resettlement activities under the refugees from Shousha as part of European Refugee Fund (ERF) 2008- an ad-hoc resttlement initiative. At 2013.28 Indeed, funding remains the March 2013, of the total of 3,733 main mechanism through which the refugees from Shousha (Tunisia) and EU promotes that more Member Salloum (Egypt) camps accepted for States engage in resettlement, and resettlement, 802 refugees have been encourages existing resettlement resettled to Member States.27 countries to increase their quotas. ERF funding has also become a vital 4.5. RPP in the Middle East tool for developing a European policy framework for resettlement. In 2012, the JHA Council approved the Commission’s proposal to establish an 5.1. ERF funding for resettlement RPP in response to the Syrian crisis. Due to be finalised by the end of 2013, Virtually all types of Member State the aim of the RPP will be to support activities related to resettlement can Jordan and Lebanon to develop sus- be financed under the ERF, including tainable capacities to respond to the those taking place both pre-departure crisis in the medium and longer term. in countries of asylum and after arrival The RPP will focus on promoting local in Europe. For the purposes of the ERF, integration, and is also expected to the European Commission defines have a resettlement component. resettlement as:

‘The process whereby, on a request 5. THE EUROPEAN from UNHCR based on a person’s need REFUGEE FUND (ERF) for international protection, third- - A TOOL TO INCREASE country nationals or stateless persons RESETTLEMENT IN THE EU are transferred from a third country to a Member State where they are per- State participation in resettlement is mitted to reside with refugee status voluntary. To promote resettlement (within the meaning of Article 2(d) in Europe, the European Commission of the European Union ‘Qualification

28 The ERF III, established by Decision No 573/2007/EC. 27 Belgium, Denmark, Finland, Germany, Ireland, the The ERF is part of the general programme Solidarity

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement Netherlands, Portugal, Spain, Sweden and Management of Migration of Migration Flows . 105

Directive’ 2004/83/EC29) or a status including Member State reports, which offers the same rights and bene- requests for Member States to provide fits under national and Community law additional information and unan- as refugee status.’30 nounced ‘spot-checks’.

The definition stipulates two clear con- ERF funding for resettlement31 is allo- ditions which must be satisfied before cated through three channels: an action can be considered as ‘reset- 1) National programmes - the major tlement’ and therefore eligible for ERF part of ERF resettlement funds are financing: allocated to national programmes (where Member States include  Eligibility assessment by UNHCR - refugee resettlement in national ERF only actions undertaken by Member programmes).32 An ERF contribution States for the resettlement of in this context normally cannot persons who have been identified exceed 50% of the total costs of the as eligible for resettlement by specific action.33 UNHCR (according to the criteria 2) Lump sum per resettled refugee - set out in the UNHCR Resettlement the ERF provides Member States Handbook) can be financed under with a lump sum amount of €4,000 the ERF. for each resettled refugee falling  Status of resettled persons on arrival into one of the following categories: - Member States must grant persons  persons from a country or region resettled on their territory either designated for the implemen- refugee status or an equivalent tation of a Regional Protection status offering the same rights and Programme (RPP); benefits, so as to guarantee effec-  unaccompanied minors; tiveness and the durability of the  children and women at risk, CHAPTER V protection solution. particularly from psychological, physical or sexual violence, or Additionally, ERF requires that refugees exploitation; or must be resettled within the calendar year of the respective annual ERF pro- 31 ERF III Decision. The ERF III has supported actions in Member States relating to the resettlement of gramme. The European Commission persons ‘resettled or being resettled’. CHAPTER VI 32 Article 3(5), ERF III Decision uses a number of different methods to 33 The ERF contribution may be increased to 75% for projects that address specific priorities identified in monitor fulfilment of these conditions, the strategic guidelines adopted by the European Commission in relation to multiannual programming. Strategic guidelines for 2008-2013 can be found on the ERF website. As far as resettlement is concerned, 29 The recast (Directive 2011/95/EC) of the qualifi- ‘actions relating to the resettlement of persons from cation directive has enhanced the rights of benefi- a country or region designated for the implemen- ciaries of subsidiary protection. tation of a Regional Protection Programme’ is a spe- 30 Article 3(1)(d), ERF III Decision cific priority. CHAPTER VII 106

 persons with serious medical  piloting the selection of refugees for needs that can only be addressed resettlement via video interviewing; through resettlement.34  developing new approaches to In order to receive the lump sum pay- pre-departure cultural orientation, ments, Member States must com- including specific measures for municate in advance to the European dossier cases; Commission how many refugees they  adapting reception arrangements, plan to receive under the above cate- for example by receiving resettled gories for the coming year. This mecha- refugees directly into municipalities nism is known as the annual ‘pledging rather than reception centres; and exercise’, and normally takes place in  promoting targeted integration May of each year.35 support programmes for resettled 3) ERF Community Actions - amounting refugees involving NGO counselling, to 4% of available ERF resources and volunteering, translation, national managed centrally by the European networking, language learning, Commission, this element of the employment support and housing ERF is designed to promote prac- arrangements. tical cooperation in resettlement between actors in two or more EU 5.2. Use of ERF funding Member States.36 - challenges

The ERF 2008-13, also known as ERF While existing resettlement has thus III, has been widely used to support been improved via ERF III funding, civil Member States such as the Czech society partners have highlighted a Republic and Romania to initiate or number of constraints in its operation. pilot new national resettlement pro- These include delays in the distribution grammes or to expand and/or improve of funds to NGOs by national govern- national programmes (the Netherlands, ments, and difficulties in administering Sweden and the UK). The country sec- initiatives in which ERF beneficiaries tions in chapter VI highlight examples must be separated from other groups of how ERF funding has been used to using the same services. support initiatives to improve national resettlement programmes, including: One can question how far the additional ERF III objective of increasing 34 Article 13 (3), ERF III Decision the number of refugees resettled to 35 By 1 May each year, Member States provide the Commission with an estimate of the number of persons Member States has been achieved. from the above categories that they will resettle during the following year. Article 13(6), ERF III Decision. More than 75% of the 15,292 reset- 36 European Commission European Refugee Fund 2008-13 - Community Actions Work Programme for tlement places pledged under ERF III

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement 2012 107 for the period 2008-12 were offered 6. EU POLICIES TO by countries already engaged in COORDINATE JOINT resettlement. ACTION AND RESPOND TO URGENT AND PROTRACTED REFUGEE SITUATIONS 2008-2012 In order to strengthen and give ERF Resettlement ‘pledging exercise’ meaning to the external dimension of by EU Member States the Common European Asylum System (in % of total number of places pledged in (CEAS), and to link resettlement to EU 2008-2012) external and development action, the EU has on several occasions called for joint European responses to refugee Sweden: 47,77% Spain: 1,14% displacement and protection needs. United Kingdom: 15,24% Portugal: 0,98% Additionally, within the ERF funding Germany: 14,13% Italy: 0,65% Finland: 8,63% Czech Republic: 0,39% mechanism, the European Commission Netherlands: 5,62% Romania: 0,13% has prioritised the resettlement of Ireland: 3,14% Hungary: 0,03% particular categories of refugees, and France: 2,14% offers incentives to Member States so Source: European Commission, 2013 as to facilitate coordinated EU resettlement efforts and stimulate reset- Sweden, for example, requested tlement from RPP regions. funding for the resettlement of 8,955 persons, accounting for almost 50% 6.1. 2008 Joint EU Action for of the places pledged by Member refugees from Iraq States during this period. Despite CHAPTER V this, the ERF III has enabled new and The most significant example of a joint - in the European context - extremely EU response to a refugee crisis is the important countries such as Germany 2008 joint action for the resettlement to engage in regular resettlement. of 10,000 refugees from Iraq. The action The chart above provides an overview followed directly from the landmark

of the number of resettlement places Justice and Home Affairs Council CHAPTER VI pledged by Member States during Conclusions calling on Member States 2008-12. to resettle 10,000 refugees from Iraq.37

37 European Union Council, Council Conclusions on the reception of Iraqi refugees, 2987th Justice and Home Affairs Council meeting, Brussels, 27-28 November 2008 CHAPTER VII 108

In 2009 alone, twelve Member States Luxembourg. The largest single contri- responded to this call by offering bution was made by Germany, which resettlement places for 5,100 refugees, received 2,501 Iraqi refugees. bringing the total number of refugees resettled to Europe from Iraq since This action demonstrated for the first 2007 to 8,400.38 Thus while only six time that a coordinated European of the then twenty-seven Member resettlement effort could be pro- States were involved in resettlement ductive in terms of engaging Member activities in 2007, by 2009 this number States that had not yet participated had doubled. As illustrated in the chart in resettlement. The joint response below, this included both Member also led directly to European countries States with established annual reset- offering resettlement not only to Iraqi tlement programmes - Denmark, nationals but also to 1,285 Palestinians Finland, France,39 Ireland, the living in dire humanitarian conditions Netherlands, Portugal, Sweden and the in Al-Tanf refugee camp on the Iraq- UK - and those providing ad-hoc quotas Syria border, permitting its closure in specifically for Iraqi refugees, namely February 2010.41 Belgium, France,40 Germany, Italy and 6.2. The Joint EU Resettlement Programme

Inspired by the success of the joint Joint EU Action action to resettle Iraqi refugees, in 2009 for refugees the European Commission published from Iraq the ‘Communication on the estab- (persons) lishment of a Joint EU Resettlement Programme’.42 The programme proposed in the Communication formulated the Commission’s aspirations DE: 2.500 FI: 838 BE: 47 for Europe to play a more substantial SE: 2.051 NL: 434 LU: 28 FR: 1.217 IT: 176 IE: 20 and strategically coordinated role in UK: 856 DK: 126 PT: 9 global resettlement, with three specific goals: Source: ICMC & IRC, 10 000 refugees from Iraq, A Report on Joint Resettlement in the European Union, 2010

38 ICMC & IRC, 10 000 refugees from Iraq, A Report on Joint Resettlement in the European Union, 2010 41 ICMC & IRC, 10 000 refugees from Iraq, A Report on 39 France selected Iraqi refugees under two separate Joint Resettlement in the European Union, 2010 programmes - its annual resettlement quota and 42 European Commission, Communication from the 2-year ‘Irak 500’ national ad-hoc resettlement the Commission to the European Parliament and programme. the Council on the Establishment of a Joint EU

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement 40 Ibid. Resettlement Programme, September 2009 109

 increasing the humanitarian impact coordinate Member State resettlement of the EU by ensuring that it gives efforts. In real terms, the programme greater and better targeted support thus constituted a political framework to the international protection of and an amendment to the resettlement refugees through resettlement; funding rules in the ERF Decision.  enhancing the strategic use of resettlement by promoting joint priorities The proposal to set annual common to guide Member State resettlement EU resettlement priorities led to a dis- activities; and agreement between the European  better streamlining the EU’s reset- Commission, the Council of the European tlement efforts so as to ensure the Union and the European Parliament con- benefits are delivered in the most cerning the procedure by which the prio- cost-effective manner possible.43 rities would be established.46 In March 2012, after more than two years of Together with the Communication, the negotiations between the Commission, European Commission issued a pro- the Parliament (led by LIBE47 MEP posal to amend the ERF.44 The proposed Rapporteur Rui Tavares) and the Council, amendment introduced a system of a compromise text48 was adopted that financial support linked to common, amended the Council ERF Decision,49 annually set EU resettlement priorities establishing common EU resettlement designed to maximise the strategic priorities for 2013 and setting new rules impact of resettlement through better for the financial support that Member targeting of those in greatest need.45 States would receive for resettlement activities via the ERF. Although rich in aspiration, the proposed joint programme maintained Under the Joint EU Resettlement that Member State engagement in Programme changes to the ERF CHAPTER V resettlement is entirely voluntary, did not propose or set numerical targets for 46 The Lisbon Treaty of 1 December 2009 introduced a European resettlement quota and did ‘delegated acts’, a procedure that permits the Commission to adopt measures to amend or sup- not include operational mechanisms to plement certain elements of legislation. Initially, the European Parliament considered that the setting of common EU priorities for resettlement was not an action that could be delegated to the Commission,

43 European Commission Communication from the but rather a matter in which the European Parliament CHAPTER VI Commission to the European Parliament and has the right of co-decision. The European Parliament the Council on the Establishment of a Joint EU finally agreed that resettlement priorities would be Resettlement Programme, September 2009 adopted by delegated acts. 44 European Commission Proposal for a Decision of 47 Committee on Civil Liberties, Justice and Home the European Parliament and of the Council of Affairs amending Decision No 573/2007/EC establishing 48 European Parliament and European Council, the European Refugee Fund for the period 2008 to Decision No 281/2012/EU by the Parliament and 2013 as part of the General programme ‘Solidarity the Council on Amending Decision No 573/2007/ and Management of Migration Flows’ and repealing EC Establishing the European Refugee Fund for the Council Decision 2004/904/EC, COM(2009) 447 final period 2008 to 2013, 29 March 2012 45 Amendments to Article 13 of the ERF Decision 49 ERF III Decision CHAPTER VII 110

provisions, resettlement countries con- Countries resettling refugees matching tinue to receive a fixed amount of €4,000 any of the following common EU prior- for each person resettled from within ities in 2013 also receive the lump sum specific ‘vulnerable’ groups and from of €4,000 per person: 53 Regional Protection Programme (RPP)  Congolese refugees in the Great regions.50 The ‘vulnerable groups’ were Lakes Region (Burundi, Malawi, expanded from those listed under Article Rwanda and Zambia). 13(3) of the 2007 ERF Council Decision,51  Refugees from Iraq in Turkey, Syria, to include ‘survivors of violence and Lebanon and Jordan. torture’ and ‘persons in need of emer-  Afghan refugees in Turkey, Pakistan gency and urgent resettlement for legal and Iran. and/or physical protection needs’.52  Somali refugees in Ethiopia.  Burmese refugees in Bangladesh, Malaysia and Thailand.  Eritrean refugees in Eastern Sudan.

Member States’ Adding to the complexity of the financial pledges under 2013 system, new countries engaging in EU resettlement categories resettlement will receive higher lump (number of persons) sum payments per person, as follows:  €6,000 per resettled person for Member States that are receiving the lump sum from the ERF for the Persons from a country or region designated for first time. For 2013 only Belgium the implementation of an RPP: 1420 will receive this level of lump sum Women and children at risk: 577 54 Persons in need of emergency or urgent payment. resettlement for legal or physical protection  €5,000 per resettled person for needs: 350 countries that have received EU Persons having serious medical needs that can only be addressed through resettlement: 171 financial support for resettlement Survivors of violence and torture: 160 activities on one previous occasion. Unaccompanied minors: 43 Source: European Commission statistics, 2013

53 Annex, Decision of the European Parliament and of the Council of amending Decision No 573/2007/ EC establishing the European Refugee Fund for the 50 Western Newly Independent States, Great Lakes period 2008-2013 as part of the General programme Region, Horn of Africa and North Africa (see section ‘Solidarity and Management of Migration Flows’ 4 of this chapter for more information) and repealing Council Decision 2004/904/EC 51 See section 4 of this Chapter 54 Article 1(1)(b), Decision of the European Parliament 52 European Parliament and European Council, and of the Council of amending Decision No Decision No 281/2012/EU by the Parliament and 573/2007/EC establishing the European Refugee the Council on Amending Decision No 573/2007/ Fund for the period 2008-2013 as part of the EC Establishing the European Refugee Fund for the General programme ‘Solidarity and Management of

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement period 2008 to 2013, 29 March 2012 Migration Flows’ 111

For 2013, Germany, Hungary and 6.3. 2012 EU response for Romania will receive this lump sum refugees ex- Libya amount.55 In 2011-12, more than 3,400 persons The common priority situations cover from 22 different countries who had vast areas and populations and, fled the 2011 violence and conflict in together with the RPP regions, include Libya were resident in Shousha camp almost all UNHCR priority situations.56 at the Tunisian border, with a further As in the table below, the largest 2,000 stranded at Salloum camp in refugee groups to be resettled under Western Egypt. In early 2012, UNHCR ERF priorities in 2013 are Afghan called on states - particularly those refugees in Turkey, Pakistan and Iran, in Europe - to offer resettlement reflecting the large numbers pledged places for refugees ex-Libya stranded by Sweden and Finland under this at the borders of Egypt and Tunisia. priority. Compared to the 2008 response for refugees from Iraq, the response from Europe was initially quite muted - with the exception of Norway, no European country created new reset- 2013 EU Member tlement places for this caseload. States’ pledges under common Union priorities Globally, a total of 3,733 refugees (number of persons) were accepted for resettlement from Shousha (3,041) and Salloum (692) camps. Of these, 869 refugees (667 from Shousha and 202 from Salloum) Afghan refugees in Turkey,Pakistan, Iran: 530 were accepted by Member States, of CHAPTER V Refugees from Iraq in Turkey, Syria, Lebanon, Jordan: 240 which 802 finally departed. UNHCR Congolese refugees in the Great Lakes Region officially closed Shousha camp on (Burundi, Malawi, Rwanda, Zambia): 184 30 June 2013; although a number of Eritrean refugees in Eastern Sudan: 170 Somali refugees in Ethiopia: 75 refugees remain there, the proposal is Burmese refugees in Bangladesh, Malaysia for them to integrate locally. and Thailand: 42 CHAPTER VI Source: European Commission statistics, 2013

55 Ibid. 56 See Chapter III for more details CHAPTER VII 112

6.4. EU support for emergency 7. RELOCATION AND resettlement RESETTLEMENT - DIFFERENCES AND The European Union has previously CONNECTIONS recognised the importance of emergency resettlement by supporting the 7.1. Towards a permanent EU upgrading of the Emergency Transit scheme for relocation? Facility (ETF) in Timisoara, in Romania. In 2012, the European Commission ini- Solidarity and responsibility-sharing tiated a specific preparatory action57 to have always played a central role in support the resettlement of refugees debates and discussions on common in emergency conditions. EU asylum policy. In recent years, Southern Mediterranean countries at The implementation of the action is the external borders of the EU have based on a system of grants awarded received large numbers of asylum to Member States willing to resettle seekers, and have lacked the capacity emergency cases. To date, only to respond adequately to these arrivals Ireland has applied to resettle 30 and to offer the standards of protection such cases out of Syria. The action applicable within the EU. also provides UNHCR with financial support to increase its capacity in In 2008, in response to the large emergency resettlement operations - numbers of asylum seekers arriving by allocating funding to ETFs in both in Malta, the EU adopted a mecha- Romania and Slovakia, and strength- nism to enable a joint EU response in ening UNHCR’s capacity to coordinate cases where a Member State’s par- emergency resettlement, monitor the ticular geographic or demographic effectiveness of the use of emergency situation means migratory pressures resettlement places and advocate result in disproportionate pressure on for resettlement countries to adopt that Member State.58 In these cases, emergency quotas. the mechanism would allow for the physical transfer of beneficiaries of international protection to another Member State, via a process known as 57 A preparatory action is proposed by the European ‘intra-EU relocation’. Commission with a view to launching a financial instrument once that preparatory action is concluded. The associated financial commitments may be entered into the budget for not more than 3 successive financial years, and the legislative procedure must be concluded before the end of the third financial year. See European Parliament (February 2011) Working Document on pilot projects and pre-

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement paratory actions in budget 2012 58 Council of the European Union, Document 13440/08 113

In order to initiate relocation pro- The refugee and migrant flows to Malta grammes, the EU Pilot Project on resulting from the conflicts in Libya and Intra-EU Relocation from Malta Syria have prompted new calls for soli- (EUREMA) was implemented under the darity and for sustainable responses ERF Community Actions during 2010 from the EU. On 12 May 2011, the and 2011. EUREMA was the first multi- European Commission organised a lateral intra-EU relocation initiative, and Ministerial pledging conference for was led by the Maltese authorities with the relocation of migrants from Malta the participation of ten Member States - and the resettlement of migrants France, Germany, Hungary, Luxembourg, from North Africa. A second EUREMA Poland, Portugal, Romania, Slovakia, programme, known as EUREMA II and Slovenia and the UK - with the active financed as an ERF Community Actions involvement of UNHCR and IOM. The Programme, began in 2012 and con- results have been modest - a total of cludes in mid-2013. Seven Member 255 relocation places were pledged by States - Bulgaria, Hungary, Lithuania, the ten participating Member States, Poland, Portugal, Romania and Slovakia of which 227 persons were even- - pledged a total of 91 places under tually relocated to six of the pledging EUREMA II. An additional five Member states (France, Germany, Luxembourg, States - Denmark, Germany, Ireland, Portugal, Slovenia and the UK).59 the Netherlands and Spain (together with the EEA countries Liechtenstein, EUREMA Number of Norway and Switzerland) - made Member States relocated bilateral arrangements with Malta that (2010-11) refugees added another 265 relocation places. DE 102

FR 95 In the December 2011 Communication on ‘enhanced intra-EU solidarity in CHAPTER V LU 6 the field of asylum’,60 the Commission PT 6 proposed a voluntary permanent SI 8 relocation scheme. The proposal was supported by the European UK 10 Parliament, which called on the Source: EASO Fact-finding report on intra-EU Commission to submit a commu- CHAPTER VI relocation activities from Malta, July 2012 nication on a framework for the transfer of protection of beneficiaries 59 European Commission, Commission Staff Working Document on the Third Annual Report on Immigration and Asylum (2011) accompanying the Communication 60 European Commission, Communication on from the Commission to the European Parliament and enhanced intra-EU solidarity in the field of asylum the Council Third Annual Report on Immigration and An EU agenda for better responsibility-sharing and Asylum (2011), 30 May 2012 more mutual trust, 2 December 2011 CHAPTER VII 114

of international protection (including voluntary schemes that operate with mutual recognition of asylum deci- lump sums (€4,000) for each person sions) by 2014.61 being resettled or relocated, resulting in two competing instruments oper- It remains clear that a limited number ating in parallel. Indeed, traditional of Member States continue to receive resettlement countries such as Finland the vast majority of asylum seekers and Sweden have explicitly questioned coming to Europe. Those at the border if relocation comes at the expense of of the EU such as Cyprus, Malta, resettlement.63 In some cases, places Greece and Italy, continue to struggle for relocated refugees have been to manage refugee movements while included within national refugee reset- simultaneously dealing with the effects tlement quotas, directly bearing out of the current financial crisis. As is, the these concerns. current EU asylum framework does not adequately address these dispa- In its proposal on the Asylum and rities among Member States, which in Migration Fund (AMF) 2014-2064 (see the future may need to be addressed 9.1, below), the European Commission outside the current Dublin Regulation62 has created the possibility for the EU to and by mechanisms for resettlement co-finance relocation activities within and relocation in which at least a a system of financial incentives similar minimum level of Member State par- to those in place within the Joint EU ticipation is obligatory. Resettlement Programme. Member States would receive financial incen- 7.2. Relocation and resettlement: tives in the form of a lump sum of competing instruments? €6,000 for each relocated person.

Both EUREMA projects have ben- Similarly to its role in relation to efited from ERF funding, and the resettlement, the European Asylum funding mechanism that applies to Support Office (See section 8) assists relocation is very similar to that for- Member States in ‘promoting, facili- mulated for resettlement. Both are tating and coordinating exchanges of information and other activities 61 European Parliament, Resolution on enhanced intra-EU solidarity in the field of asylum, 11 September 2012 62 Council regulation (EC) No 343/2003 of 18 February 63 Migration Policy Centre, Between Solidarity and the 2003, known as the Dublin II Regulation, aims to Priority to Protect Where Refugee Relocation meets determine the member state responsible for exam- Refugee Resettlement, 2013 ining an asylum application. According to Article 64 European Commission, Communication from 5(2) of the Regulation, the member state respon- the Commission to the European Parliament, sible in accordance with the criteria shall be deter- the Council, the European Economic and Social mined on the basis of the situation obtaining when Committee and the Committee of the Regions the asylum seeker first lodged his application with a Building an open and secure Europe: the home

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement member state . affairs budget for 2014-2020, 15 November 2011 115 related to relocation’ within the EU. In Both resettlement and relocation line with the JHA Council Conclusions are part of EASO’s mandate. One of of March 2012,65 EASO has completed the aims of the agency is to ‘coor- a full evaluation of the first EUREMA dinate exchanges of information and project66 and is currently evaluating the other actions on resettlement taken EUREMA II project. In the context of by Member States with a view to relocation, UNHCR has recommended meeting the international protection that further refugee status determi- needs of refugees in third countries nation procedures are not undertaken and showing solidarity with their host in receiving countries, so as to avoid countries.’68 EASO’s role in relation to potential divergences in approaches in resettlement was reiterated by the the treatment of beneficiaries of inter- European Commissioner for Home national protection. Affairs Cecilia Malmström, in an answer to parliamentary questions in December 2011,69 in which she con- 8. RESETTLEMENT & firmed the agency’s commitment to THE EUROPEAN ASYLUM ‘pursue Article 7 of its mandate by SUPPORT OFFICE (EASO) better defining its activities on resettlement in close collaboration with The European Asylum Support Office Member States, UNHCR, IOM and (EASO) is an agency of the European other relevant partners.’70 Union mandated to enhance EU Member States’ practical cooperation Under the EASO Work Programme on asylum in Europe, to assist Member 2012,71 a first EU Resettlement States to fulfil their protection obliga- Seminar was organised by EASO in tions, and to act as a centre of expertise October 2012. The seminar seemed on asylum in Europe. EASO was estab- to confirm that EASO will build on the CHAPTER V lished in May 2010,67 and began work partnership principle that underlies in February 2011. global and European resettlement cooperation by including governments, UNHCR, IOM and NGOs in this area of its work. CHAPTER VI 65 Council of the European Union, Council Conclusions on a Common Framework for genuine and practical solidarity towards Member States facing particular pressures on their asylum systems, including 68 Article 7, ibid. through mixed migration flows, 3151st Justice and 69 Commissioner Malmström’s answer to parlia- Home Affairs Council meeting, 8 March 2012 mentary questions, 20 December 2011 http:// 66 EASO, Fact finding report on intra-EU relocation www.europarl.europa.eu/sides/getAllAnswers. activities from Malta, July 2012 do?reference=P-2011-011107&language=DE 67 Regulation of the European Parliament and of the 70 EASO, Work programme 2012, EASO/MB/2011/25, Council establishing a European Asylum Support September 2011 Office, 19 May 2010 71 Ibid. CHAPTER VII 116

EASO objectives for 2013 in the area European funds related to asylum, of resettlement are: migration, return, and the integration  organising exchange of information of third-country nationals, including and best practices on resettlement the European Refugee Fund (ERF) and on the implementation of and the European Integration Fund Regional Protection Programmes (EIF). Within the proposed AMF (RPPs); framework,75 the aims of the EU  defining methodologies and tools resettlement programme are defined for EASO support for the implemen- as: tation of the Joint EU Resettlement  providing durable solutions for Programme; and an increased number of refugees  organising one expert meeting on by supporting their transfer from resettlement, engaging Member outside EU territory and their esta- States, the European Commission, tblishment in an EU Member State; UNHCR, IOM and ‘other relevant and partners’.72  maximising the strategic impact of resettlement through a better targeting of those persons who are 9. RESETTLEMENT IN in greatest need of resettlement EUROPE BEYOND 2013 on the basis of common EU resettlement priorities.76 9.1. Asylum & Migration Fund 2014-20 In the Commission’s proposal,77 funding would be allocated in two phases: EU resettlement policy post-2013 is being negotiated within the framework of the proposed Asylum and Migration Fund (AMF) 2014-2020.73

In November 2011, the Commission issued a proposal for a regulation 75 European Commission, Communication from the Commission to the European Parliament, establishing the AMF for the period the Council, the European Economic and Social Committee and the Committee of the Regions, 2014-2020.74 The AMF brings together Building an open and secure Europe: the home affairs budget for 2014-2020, 15 November 2011 76 Communication from the Commission to the European Parliament, the Council, the European 72 Ibid. Economic and Social Committee and the Committee 73 Article 7, Proposal for a regulation of the European of the Regions, Building an open and secure Parliament and the Council establishing the Asylum Europe: the home affairs budget for 2014-2020, 15 and Migration Fund, 15 November 2011 November 2011 74 European Commission, Proposal for a Regulation of 77 European Commission, Proposal for a Regulation of the European Parliament and of the Council estab- the European Parliament and of the Council establishing the Asylum and Migration Fund, COM(2011) lishing the Asylum and Migration Fund, COM(2011)

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement 751 final, 15 November 2011 751 final, 15 November 2011 117

 during the policy dialogue78 at the to reduce centralised bureaucracy by start of the Multiannual Financial implementing funding according to the Framework79 period; and principle of ‘shared management’.82  following a mid-term review in 2017. In line with the previous system, the The resettlement ‘envelope’ (or the fund foresees financial support for the available funding for resettlement following resettlement activities:83 within the AMF) will be distributed  establishment and development of between Member States on the basis national resettlement programmes; of a biennial pledging exercise and the  establishment of appropriate infra- common EU resettlement priorities.80 structure and services to ensure A basic amount, calculated on the smooth and effective implemen- basis of the Member States’ objec- tation of resettlement; tives and needs within their national  selection missions in third countries; programmes, would be distributed  pre-departure assistance (health following the policy dialogue at the assessment, pre-departure infor- start of the Multiannual Financial mation, travel arrangements); Framework and following a mid-term  information and assistance upon review in 2017, if needed.81 A stated arrival, including interpretation ser- objective of the creation of the AMF is vices; and  strengthening of infrastructure and services in countries designated 78 The single senior-level policy dialogue on Home Affairs funding organised at the start of the for the implementation of Regional Multiannual Financial framework is a dialogue 84 initiated by the European Commission with each Protection Programmes. Member State. The purpose of the dialogue is for the Commission to understand the situation and needs of each Member State in order to support the formulation of national programmes that can con- Member States will continue to receive

tribute to achieving common EU objectives in the CHAPTER V area of Home Affairs. a ‘flexible amount’ in the form of a 79 The Multiannual Financial Framework (MFF) 2014-20 sets out annual maximum amounts ceilings lump sum per resettled refugee that the for EU expenditure on policy areas during 2014-20. It also sets an annual global ceiling for total expen- Member State has previously pledged to diture. The purpose of the regulation is to translate receive. These payments will be made political priorities into figures for the budget cycle 2014-20 and to facilitate the adoption of the annual every two years. Intra-EU relocation budget by the EU. 80 The Council does not foresee resettlement as a will also work on the basis of a similar mandatory objective to be pursued under the

Member States national programmes. See Council pledging and lump sum mechanism. CHAPTER VI of the European Union, Proposal for a regulation of the European Parliament and the Council establishing the Asylum and Migration Fund Outcome of Coreper on 19 December, 20 December 2012 82 There are two main types of EU funding - funds 81 A part of available resources is kept for the mid- which are managed centrally and directly by term review and will allow additional allocations the European Commission, and funds managed to Member States ongoing significant changes between the EU and the Member States. in migration flows and presenting specific needs 83 Article 7, Proposal for a regulation of the European concerning their asylum and reception systems or Parliament and the Council establishing the Asylum to Member States willing to implement specific and Migration Fund, 15 November 2011 actions. 84 Ibid. CHAPTER VII 118

As envisaged in the Joint EU both the quantity and the quality of Resettlement Programme, common European resettlement. The trans- EU resettlement priorities will be esta- national initiatives described below blished, most probably every two years demonstrate joint efforts in this area by the European Commission as the by many different resettlement actors, outcome of a political process involving including in advocacy, campaigning, the European Parliament and the practical cooperation, research and Council, as well as UNHCR and EASO.85 networking.

9.2. Partnerships to promote 9.2.1. The European Resettlement more and better resettlement in Network Europe

The EU plays an important role in promoting the growth of European resettlement through the provision of funding and financial incentives. However, in view of the global total of some 181,000 refugees in need of resettlement for 2013 alone, it is crucial that the financial incentives offered to Since 2009, ICMC, IOM and UNHCR Member States concretely result in have worked in partnership to promote an increased number of resettlement practical cooperation and exchange on places. The ‘quality’ of European resettlement in Europe, and to build a resettlement, meaning appropriate network of resettlement practitioners and timely reception and integration and policymakers both within and services and arrangements, is equally outside of Europe. This work has been important in making resettlement a undertaken in the framework of the truly durable solution for those refu- ERF-funded projects ‘Promotion of reset- gees who benefit from it. tlement in the EU through practical cooperation by EU Member States and other Together with the EU, international stakeholders’ (2010-11) and ‘Linking-In organisations, Member State govern- EU Resettlement - linking the reset- mental authorities (national, regional tlement phases and connecting (local) and local government) and civil society resettlement practitioners’ (2011-12). actors all have a role to play in building In early 2012, the three partner

85 At the time of writing, negotiations on how to organisations formalised their

Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement define resettlement priorities are still ongoing. 119 network-building activities by launching resettlement and integration policy the European Resettlement Network within European Member States; and (www.resettlement.eu), defined as:  ensure the sustainability of transna- tional cooperation in resettlement, ‘An inclusive network supporting the beyond projects and individual development of resettlement in Europe actors. by connecting a variety of actors involved in refugee resettlement, the members of which have a shared commitment to refugee resettlement and refugee protection, to ensuring the provision of durable solutions for refugees and that refugees resettled to Europe receive integration support that provides them with the tools to become fully participating citizens’.86 EU Resettlement Skills Share Day/W. Vandenplas/2012

The goals of the network are to:  promote cooperation among dif- European Resettlement Network ferent stakeholders to build their members comprise resettlement capacity to increase and improve policymakers and practitioners from resettlement efforts; European countries, working at dif-  gather and disseminate information, ferent levels and in a variety of sectors research, data and practices about including national, regional and local and relating to refugee resettlement government, international organisa- and refugee integration, so as to tions, civil society organisations, vol- increase mutual learning about unteers, resettled refugees, academics CHAPTER V resettlement in all its aspects and and others. The network membership interlinked phases; currently comprises 250 individuals  provide a platform to launch from 35 countries. network initiatives (for example training, visits and campaigns) and The European Resettlement Network

to promote related initiatives and/ website at www.resettlement.eu CHAPTER VI or efforts to increase and support includes a resource library and a durable solutions for refugees; directory of network members, and  support the development of provides members with opportunities for discussion and mutual learning via 86 The European Resettlement Network ‘Who We Are’ at www.resettlement.eu/page/ an online Community of Practice. european-resettlement-network-0 CHAPTER VII 120

9.2.2 Advocating for more and The 2020 Campaign is currently hosted better resettlement in Europe: the on the website of the European Resettlement Saves Lives - 2020 Resettlement Network. Organisations Campaign and individuals from across Europe can make online pledges of actions in support of the campaign, and request campaign materials and information for use in their national and local contexts.

Some of the pledges made online: ‘I will motivate and encourage refugees resettled in my country not to give up.’ [William Kweku Paintsil, IOM Oslo, NO]

‘I will lobby for an increase of the quota and Civil society has a crucial role in mobil- improve the integration of refugees in the NL ising support for resettlement. In May through our projects.’ 2012, 6 civil society organisations [Berend Jonker, UAF, NL] Amnesty International, Churches Commission for Migrants in Europe ‘I will spread the word about resettlement (CCME), European Council on Refugees and try to raise awareness about the impor- and Exiles (ECRE), International tance of taking refugees in Europe.’ Catholic Migration Commission [Sarah Hergenröther, Munich Refugee (ICMC) and the German ‘Save Me’ Council, DE] campaign network, together with the International Organisation for Migration (IOM) - launched a campaign 9.2.3 Engaging cities and regions in for more and better resettlement resettlement in Europe. The Resettlement Saves Lives-2020 Campaign advocates for EU Member States to increase the collective total of resettlement places they offer to 20,000 places each year by the year 2020. Led by ICMC and begun in March 2012, the SHARE Project is an 18-month programme to build a resettlement network of European regions, cities and Chapter V - Resettlement in Europe: Rising Slowly but Surely Rising Slowly in Europe: Chapter V - Resettlement

Cities that Care, Cities that Share 121 municipalities, and their civil society 9.2.4. Other European civil society initia- partners. The project is funded under tives on resettlement the Pilot Project87 on Resettlement of the European Commission.88

SHARE was established on the basis that Know Reset89 is a research project co- although it is national governments funded by the European Commission that are responsible for the selection and carried out by the European of resettled refugees, it is regional and University Institute, in partnership local authorities and their partners with the European Council on Refugees that offer reception and integration and Exiles (ECRE). The project aims to support once refugees have arrived. map and analyse the current policy The success of national refugee reset- framework and practices in the area of tlement programmes and of the Joint resettlement in the 27 Member States. EU Resettlement Programme - thus depends on the commitment, ability and partnerships of European cities, municipalities and regions.

The SHARE network facilitates structured dialogue, exchange of practice and networking between cities and regional actors and between experienced and emerging resettlement countries planning or considering resettlement. SHARE is currently hosted on the website of the European CHAPTER V Resettlement Network at www.resettlement.eu/page/share-project.

87 ‘Pilot projects’ are defined as schemes of an experi- CHAPTER VI mental nature designed to test the feasibility of an action and its usefulness. The relevant financial commitments may be entered in the budget for not more than two successive financial years.European Parliament, Working Document on pilot projects and preparatory actions in budget 2012, 3 February 2011 88 Pilot Project to create a network for contact and discussion between targeted municipalities on experiences and best practices in the resettlement and integration of refugees. 89 www.know-reset.eu CHAPTER VII Part I - Resettlement and Refugee Integration 122 Chapter VI – European Resettlement Programmes Congolese refugee inMalawi getting ready to be resettled to Denmark/UNHCR/J.Redden 123

The following country summaries aim to provide a comprehensive picture of European resettlement programmes.

These country summaries are based on desktop research and interviews with representatives of international organisations, national governments, regional and local authorities and NGOs. The final texts are authored by ICMC, and are not representative of the views or opinions of any of individual interviewees, stakeholders or contributors consulted during the course of their compilation.

The chapter begins with a comparative overview of the main features of resettlement programmes in Europe, set out in the table on the following page.

Abbreviations and acronyms CAR: Children and Adolescents at Risk FR: Family Reunification Gov: Government LFAS: Lack of Foreseeable Alternative Solutions LPPN: Legal and Physical Protection Needs

MN: Medical Needs CHAPTER VI SVT: Survivors or Violence and Torture TOM: Thirty-Or-More, Twenty-Or-More or Ten-Or-More (medical programme) UAM: Unaccompanied minors UNHCR: Office of the United Nations High Commissioner for Refugees WAR: Women and Girls at Risk CHAPTER VII 124

Country Belgium Czech Republic Denmark Start of 2013 (annual) 2008 (annual) 1979 (annual) programme

Quota (nrs) 100 (yearly) 30 (yearly) 1500 (3-year)

General migration  General migration General migration and asylum law and asylum law and asylum law  National reset- Legal basis tlement programme strategy  Agreement with UNHCR

Specific provisions No Yes Yes on resettlement

 LPPN All UNHCR sub- All UNHCR sub- UNHCR submission  SVT mission categories mission categories categories  WAR  CAR

1951 refugee  1951 refugee  1951 refugee definition definition definition Selection criteria  Humanitarian  Humanitarian grounds grounds or UAM  Family reunion Integration potential/ No Yes Yes1 capacity as a selection criterion

80 Majority of the Majority of the In-country selection cases cases

Dossier selection 20 No fixed number set 75 persons

Emergency and Urgent cases No Yes urgent cases

Specific categories No No TOM (30) + family prioritised for reunification cases resettlement under TOM

Need to apply for Yes Yes No refugee status (or equivalent) upon arrival

Pre-departure CO 3 days 2.5 days (12-13hrs) 5 days 1

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 1 Abolishment announced by the government but not implemented yet at the time of writing. 125

Country Finland France Germany Start of 1985 (annual) 2008 (annual) 2012 (annual) programme

Quota (nrs) 750 (yearly) 100 cases (yearly) 300 (yearly)

General migration  General migration  Residence Act and asylum law and asylum law Government Legal basis   Agreement with decision UNHCR

Specific provisions Yes No No on resettlement

All UNHCR sub-  LPPN  LPPN mission categories  SVT  SVT UNHCR submission  MN  MN categories  WAR  WAR  CAR  CAR  LFAS

 In need of interna- Refugees recognized  Legal and physical tional protection in under Articles 6 protection needs + the home country and 7 of the UNHCR special protection Selection criteria  In need of mandate but not on needs resettlement from a prima facie basis.  Family unity the 1st country of asylum

Integration potential/ Yes No Yes capacity as a selection criterion

In-country selection 650 No All

100 emergency and All No Dossier selection urgent cases

Emergency and Yes Yes No urgent cases

Specific categories No No No prioritised for resettlement CHAPTER VI Need to apply for No Yes Resettled refugees do refugee status (or not receive refugee equivalent) upon status but temporary arrival residence permits

Temporarily Leaflet 4-5 days Pre-departure CO suspended. CHAPTER VII 126

Country Iceland Ireland The Netherlands Start of 1996 (annual) 1998 (annual) 1984 (annual) programme

Quota (nrs) Under revision 200 (yearly) 2000 (4-year)

General migration General migration  General migration and asylum law and asylum law and asylum law Legal basis  Policy framework for resettlement

Specific provisions No Yes Yes on resettlement

 LPPN  LPPN All UNHCR sub-  WAR  SVT mission categories UNHCR submission  FR  MN categories  WAR  FR  LFAS

1951 refugee  Definition of ‘pro-  1951 refugee defi- definition gramme refugee’ nition & subsidiary set in legislation protection Selection criteria  No threat to public  Humanitarian security and grounds national health  Family reunion Integration potential/ No Yes Yes capacity as a selection criterion

In-country selection Majority of the cases No Around 400 refugees

Dossier selection Recently used All 100

Emergency and Urgent cases Urgent cases Emergency cases urgent cases

Specific categories No No TOM (30) prioritised for resettlement

Need to apply for No ‘Programme Yes refugee status (or refugee’ status upon equivalent) upon arrival arrival

Leaflet No Dossier cases: 1 to 4 days Pre-departure CO Interviewed cases: 3*3.5 days Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 127

Country Norway Portugal Romania Start of 1980s (annual) 2007 (annual) 2008 (pilot) programme

Quota (nrs) 1200 (yearly) 30 (yearly) 40 (yearly)

General migration and General migration  General migration Legal basis asylum law and asylum law and asylum law  Gov decision Specific provisions No Yes Yes on resettlement

 LPPN  LPPN  LPPN  SVT  SVT  WAR UNHCR submission  MN  WAR  CAR categories  WAR  CAR  CAR  LFAS  LFAS

 1951 refugee definition Refugees under 1951 refugee  Strong humanitarian UNHCR’s mandate definition considerations Selection criteria (exceptionally)  Strategic resettlement  Municipalities’ ability to provide services

Integration potential/ No No Yes capacity as a selection criterion

In-country selection Around 870 No All

Dossier selection Around 250 All No

Emergency and Yes No No urgent cases

Specific categories  WGR (60% of the quota) No Women and prioritised for  TOM (20) children at risk resettlement (10)

Need to apply for Dossier cases only Yes Yes

refugee status (or CHAPTER VI equivalent) upon arrival

20 hrs (4 days) for adults, Leaflet Under discussion Pre-departure CO 10 hrs (2 days) for children aged 8-15 CHAPTER VII 128

Country Spain Sweden UK Start of 2011-2012 (pilot) 1950 (annual) 2004 (annual) programme

Quota (nrs) 100 (yearly) 1900 (yearly) 750 (yearly)

General migration General migration General migration Legal basis and asylum law and asylum law and asylum law

Specific provisions Yes Yes Yes on resettlement

 LPPN All UNHCR sub-  LPPN  SVT mission categories  SVT UNHCR submission  MD  MD categories  WAR  WAR  CAR  LFAS  LFAS

1951 refugee  1951 refugee 1951 refugee definition definition definition  Persons qualifying for subsidiary Selection criteria protection  Former tribunal witnesses and their family members

Integration potential/ Yes No No capacity as a selection criterion

In-country selection All Around 950 All

Dossier selection No Around 950 Exceptionally

Emergency and No Yes No urgent cases

No No  Medical cases Specific categories (up to 3% of the prioritised for quota) resettlement  WAR (up to 10% of the quota)

Need to apply for No No No refugee status (or equivalent) upon arrival

2 hours 9-10 hours One day Pre-departure CO Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 129

Belgium at a glance

 Population: 11 094 850  GDP (Per capita): 119 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU: 27 average of 100  Asylum applications total: 28 105  Total decisions reached in 2012: 24 525  Positive decisions (refugee status and subsidiary protection): 5 555

2012 data, published by Eurostats in May 2013

The Belgian resettlement programme at a glance Resettlement quota and actors Start of ad-hoc or pilot programme: 2009 Most recent quota: 100 persons for 2013 Main national actors: Office of the Commissioner General for Refugees and Stateless Persons (CGRA), Federal Agency for the Reception of Asylum Seekers (FEDASIL), Immigration Office in Ministry of Foreign Affairs, Public Welfare Centres (CPAS/OCMW); Caritas International and Convivial.

Resettlement numbers

Nationality  Country of Asylum Year Accepted Arrivals of largest groups 2013 100 Congolese  Burundi anticipated Burundian  Tanzania 2012 No programme

2011 25 25 Eritrean, Congolese  Tunisia CHAPTER VI 2010 No programme

2009 47 47 Iraqi, Palestinian  Iraqi/Syrian border, Syria, Jordan CHAPTER VII 130

UNHCR Submission categories considered for resettlement

 Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)

 Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement  Normal within 12 months between submission and resettlement

to the November 2008 EU Council Belgium’s Resettlement Conclusions calling for EU countries Programme to resettle displaced Iraqis. In 2011, Belgium responded to the UNHCR Legal Basis & Background Global Solidarity Initiative by resettling 25 refugees of various nationalities ex- The ‘Law on entry, stay, settlement Libya from Shousha refugee camp in and removal of foreign nationals’ Tunisia. of 15 December 1980 (amended in In May 2012, the Belgian government 2006) forms the legal basis for all announced that 100 resettled refugees national asylum and migration affairs would be received into the country in Belgium. There is no specific legal within the framework of the Joint provision for resettlement. European Resettlement Programme for Belgium considered resettlement 2013, marking an evolution from ad-hoc for many years, and engaged in two resettlement operations to a more ad-hoc resettlement initiatives in 2009 structured approach. Resettlement and 2011. In 2009, Belgium received stakeholders in Belgium hope that this 47 Iraqis and Palestinians ex-Iraq will ultimately result in a permanent from Syria and Jordan as a response annual quota for resettlement. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European None   Resettlement Criteria 1 quota willbeselected viainterviews For 2013, around 80 of the 100 person travel documents for them. the Immigration Department to issue those selected, the Minister instructed Migration andAsylum. After approving refugees to theState Secretary for proposal for selection ofresettled In bothcases, the CGRA madea dossier basis. CGRA therefore selected refugees ona on-site selectioninterviews, and in Shousharefugee camp prevented Syria andJordan. In 2011, instability border, and to urban populations in Al Tanf refugee camp ontheIraq-Syria carried outaselection missions to the Refugees andStateless Persons (CGRA) 2009, the Commissioner General for tlement exercises of2009and2011.In resettlement through thead-hocreset ences withtheselectionofrefugees for Belgium hastwo contrasting experi- andSelection Identification

Criteria related to integration Refugees. Convention Relating to the Status of such according to the1951UN A refugee must berecognised as Basic Criteria 1 - emergency cases. 2 months. Belgium hasnotyet received on adossier basisare processed within while normalprioritycases accepted within 6weeks from initialsubmission, cases are processed for departure issue an‘attestationd’immatriculation’ pality ofhis/hermainresidence will Within 8working days, the munici- asylum application hasbeenlodged. a document (Annex 26)stating that an refugee status, arefugee receive will into for Belgium.Whenapplying refugee status within2days ofarriving in 2011, for example, were granted Refugees resettled from Shoushacamp sible after theirarrival inBelgium. formal refugee status assoonpos- so that resettled refugees are granted The CGRA aimsto expedite thisprocess status uponarrival into the country. fugees must therefore applyfor refugee national territory, andresettled re- asylum to begranted outsideofthe Belgian legislation doesnotpermit Citizenship & Permanent Residency Refugee Status, selection missionis2-3months departure for refugees selected during Processing time from submissionto and the remaining 20onadossier basis. conducted duringselection missions, 2 mission in 2013). decision is2months (estimation based onthe first Processing time between submissionandfinal Bel gium 2 . Urgent

CHAPTER VII CHAPTER VI 132

type A, which is valid for residence until  Registered partners (including same- refugee status is granted. As other sex partners). refugees in Belgium, resettled refugees  Children over 18 suffering from a receive a permanent residence permit mental or physical disability. once refugee status has been granted. The applying family member must evi- From 1st January 2013, new legislation dence a stable, regular and sufficient reforming the Belgian Nationality Code3 income, appropriate accommodation means that persons wishing to apply for and medical insurance. These require- naturalisation can do so after a period ments are waived for refugees making of 5 years legal residency. Applicants applications within one year of the must also demonstrate A2 level profi- grant of refugee status and where the ciency in one of the national Belgian family link already existed prior to the languages (Dutch, French or German), refugee’s arrival in Belgium. and evidence their social integration4 and economic participation5. Resettlement in Family reunification Practice

Besides married partners, children Linking Phases under 18 and parents of children under 18, other family members who are eli- How is information transferred between gible for family reunification include: selection and reception of refugees in order to prepare for their arrival?  Briefing stakeholders after selection missions or receipt of dossiers 3 Service Public Fédéral Justice, Act amending the Belgian Nationality Code (Loi modifiant le Code  Forwarding pertinent information de la nationalité belge afin de rendre l’acquisition de la nationalité belge neutre du point de vue de from Refugee Referral Form (RRF) to l’immigration), 4 December 2012 4 Article 9(d), Act amending the Belgian Nationality integration actors Code, 4 December 2012  Sharing information gathered during Possible proofs of social integration include : - Diploma or certificate of at least upper secondary Cultural Orientation (CO) - where education delivered by an institution recognised by the Belgian state; or CO is arranged, FEDASIL collects - Professional training of at least 400 hours recognised by a competent authority; or social and medical information on - Following an integration course; or - Continuous employment for the 5 years pre- refugees and forwards to actors in ceding the application. 5 Article 9(e), Act amending the Belgian Nationality reception centres. Code, 4 December 2012 Possible proofs of economic participation include:  Other: National stakeholder meetings - Having worked for at least 468 days during the past 5 years; ahead of selection missions/receipt - Having paid social contributions due in Belgium as an independent worker for at least 3 quarters over of dossiers

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European the last 5 years. 133

Pre-departure Integration in Practice

 Cultural Orientation (CO): In 2009, Reception the Federal Agency for the Reception of Asylum Seekers (FEDASIL) offered Representatives from FEDASIL meet re- a pre-departure CO programme to fugees on their arrival and accompany Iraqi and Palestinian refugees ex- them to reception centres in either Libya. In 2011, instability and lack Pondrôme (Wallonia - French-speaking of security in Shousha camp meant region) or Sint Truiden (Flanders - FEDASIL was unable to offer a CO Dutch-speaking region). Arrival groups programme, although translated are generally split equally between information leaflets on resettlement the 2 centres, where family compo- in Belgium were distributed. sition allows. The reception centres also house asylum seekers whose FEDASIL planned 2 CO missions for application is under consideration. 2013, the first of which took place Resettled refugees generally spend 4-6 in Tanzania in June. Delivered with weeks in the centre before moving to the support of IOM, the 3-day pro- municipalities. gramme provides refugees with information about the Belgian reset- Placement policies tlement programme. Municipality involvelment in receiving  Medical Exam: IOM fit-to-fly resettled refugees is entirely voluntary. assessments Placement depends on whether the local branches of the Public Welfare  Travel arrangements: IOM Centres (CPAS in Wallonia and OCMW

In-country selection Arrival & centralised reception in Pondrôme Selection 3-day pre- Pre-departure Final or Sint Truiden missions departure CO health checks & decision reception centres (CGRA) (FEDASIL & IOM) Travel (IOM)

4-6 weeks CHAPTER VI UNHCR 2-3 months submissions Urgent cases: 6 weeks; Normal priority cases: 2 months

Selection of cases Pre-departure Approximately 1-year Placement in on a dossier basis Final decision health checks & integration programme municipalities (CGRA) travel (IOM) in municipalities

Dossier selection CHAPTER VII 134

in Flanders) can make housing available with the municipality, and accessing ahead of refugees arrival into Belgium mainstream services such as financial or before they depart the reception assistance and medical insurance. centre. The NGOs Caritas and Convivial can also assist refugees to locate There is no specialist integration pro- suitable housing through their own gramme specifically for resettled re- networks, sometimes in municipalities fugees in Belgium. Resettled refugees where refugees have relative/friends can access mainstream integration or existing networks. programmes for other refugees, migrants and newcomers to Belgium. In Integration services & support Flanders, attendance at the integration programme is mandatory. All refugees Length: 12-18 months (including 6 (including resettled refugees) sign weeks in the reception centre) an integration contract in which they undertake to attend Dutch language For refugees in the Sint Truiden (up to 600 hrs)6 and civic orientation reception centre in Flanders, the inte- classes, and social and employment gration programme is developed by orientation services. Failure to follow the authorities responsible for the the programme can result in a fine and wider civic integration programme in possible termination of social welfare the Flemish region. The Pondrôme payments. In Wallonia, integration centre in Wallonia runs an internally activities including French classes and developed integration course. Both registration at the employment agency courses cover elements of language are optional. In the bilingual region of tuition, and basic information about Brussels, language and civic orientation moving on from the reception centre classes are provided both in French and and living in Belgium. Dutch on a voluntary basis. Integration policy is currently under review in both The NGOs Caritas International and Wallonia and Brussels (for the French- Convivial will meet refugees in the speaking organisations). reception centres, introducing themselves and their role in the integration Outside of provision for integration, process and determining what kind of resettled refugees access mainstream assistance individual refugees and fa- services together with the wider popu- milies will require. After refugees move lation, although additional services for to municipalities, NGOs assist with specific needs such as psychological interpretation and translation, admi- 6 For illiterate or very low-skilled persons, the nistrative steps such as registration programme consists in 600 hrs of Dutch tuition.

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Standard course involves 240 hours of Dutch tuition. OCMW. direct referral by anNGOortheCPAS/ counselling may be arranged through such assport, employment and out aboutspecificareas ofinterest developing language skillsandfind new surroundings, practice their them to orient themselves intheir to mentor newcomers, by helping act asvo-lunteer ‘coaches’ willing programme recruits local people to newcomers to Flemishcities.The programme hasbeen developed for a one-to-one integration coaching ‘ As partofthe programme coaching inFlanders Integration inFocus -Integration Integrating Learning aboutwaste management withCaritas International/Caritas International Together ’, in Flanders’,    forspecific categories 2013 Pledges madeto resettleunderERF Refugee Fund (ERF) Use oftheEuropean 6-month coaching periodhasended. become friends after theinitial mentorsand newcomers go onto arriving into the city, andmany volunteer mentors to newcomers education. Theprogramme matches Unaccompanied minors Women andchildren at risk Persons resettled from acountry Protection Programme implementation ofaRegional or region designated for the Bel gium

CHAPTER VII CHAPTER VI 136

 Survivors of torture and violence resettlement process in Belgium. In  Persons with serious medical 2013, for the first time, resettlement needs that can only be addressed operations in Belgium will benefit through resettlement from resources allocated through the  Persons in need of emergency reset- resettlement pledging exercise under tlement or urgent resettlement for the Joint EU Resettlement Programme legal or physical protection needs priorities.

Pledges made to resettle under ERF resettlement common EU priorities for Evaluations 2013  Congolese refugees in the Great The operation of the first 2009 ad-hoc Lakes Region programme and the experiences of — 40 refugees will be resettled in 2013 refugees resettled within it are cur- from this group. rently being researched by the Centre  Refugees from Iraq in Turkey, Syria, for Equal Opportunities and Opposition Lebanon, Jordan to Racism (‘Centre pour l’égalité des  Afghan refugees in Turkey, Pakistan, chances et la lutte contre le racisme)’ Iran and the University of Ghent. The study  Somali refugees in Ethiopia began in 2012 and due to be carried  Burmese refugees in Bangladesh, out over a three-year period. Malaysia and Thailand  Eritrean refugees in Eastern Sudan Strengths and Highlight Challenges The 2009 ad-hoc resettlement operation in Belgium was part-financed Strengths both by the European Refugee Fund (ERF) Community Actions and the  Resettlement in partnership with national ERF programme. The 2011 UNHCR and NGOs is a relatively ad-hoc operation was financed by ERF new phenomenon in Belgium. The Community Actions (urgent actions). 2009 and 2011 ad-hoc resettlement Within these programmes, FEDASIL programmes began a new and po- and CGRA introduced a joint project sitive process of engaging partners, in partnership with two NGOs, Caritas developing different approaches International and Convivial, a new to reception and integration, cap- collaboration that produced some turing and learning from these positive results for refugees and the experiences. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European   Challenges  Locating as to overcome these difficulties. engage municipalities more fullyso insurance. NGOs are working to securing socialbenefits andmedical dence withthemunicipality, and refugees, suchasregistering resi- some administrative steps for awareness can meancomplicate refugee resettlement. Thislackof yet actively engaged inoraware of Municipalities themselves are not assistance ofNGOs. arrangements after arrival withthe thereforewill need to make these in areceiving municipality. They housing having yet beenarranged into reception centres without at least somerefugees willarrive blematic. For the 2013programme, ticular larger families, can be pro- needs ofresettled refugees, inpar continuing resettlement activities. part oftheBelgiangovernment to reflects astrong commitment onthe to resettlement inBelgium, and marks amore structured approach The new 2013quota programme housing that meets the - resettlement process. to engage themasnew actors inthe made specific andsuccessful efforts however, theBelgian government cises. Ahead ofthe 2013programme, during the2009and2011ad-hocexer previously engaged inresettlement Centres (CPAS/OCMW) were not Local branches ofthePublicWelfare New Developments Bel gium 137 -

CHAPTER VII CHAPTER VI 138

Czech Republic at a glance

 Population: 11 094 850  GDP (Per capita): 119 PPS (available for 2011 only)  Population: 10 505 445  GDP (per capita): 80 PPS (available for 2011) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 740  Total decisions reached in 2012: 720  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 175

2012 data, published by Eurostat in May 2013

The Czech resettlement programme at a glance Resettlement quota and actors Start of ad-hoc or pilot programme: 2008 Current quota: 30 Main national actors: Department for Asylum and Migration Policy under the Ministry of Interior, Refugee Facilities Administration (RFA) (an agency of the Ministry of the Interior), Ministry of Foreign Affairs, Ministry of Education, Czech municipalities, Burma Centre Prague (BCP), Association of Citizens Assisting Migrants (SOZE), the Organisation for Aid to Refugees (OPU) and other civil society actors.

Resettlement numbers Ethnic Nationality  and other Year Accepted Arrivals Country of Asylum minorities (if of largest groups applicable) 2013 32 - Burmese  Thailand and anticipated Malaysia

2012 25 25 Burmese  Malaysia

2010 19 19 Afghan  Ukraine (4) Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 139

Ethnic Nationality  and other Year Accepted Arrivals Country of Asylum minorities (if of largest groups applicable) 2010 47 48 (baby born Burmese  Thailand and Chin, Karen, pre- arrival) Malaysia (40) Kachin, Chechen  Azerbaijan (5) Tavoyan Iranian  Turkey (2) Uzbek  Ukraine (1)

2011 16 17 (baby born Burmese  Malaysia Chin pre- arrival)

UNHCR Submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement No sub-quotas established. Urgent and emergency cases are accepted outside of the annual quota.  Normal within 12 months between submission and resettlement

Czech Republic’s the framework for the implemen- Resettlement tation of resettlement activities in the Programme Czech Republic. The Strategy defines

the scope of resettlement activities, CHAPTER VI Legal Basis & Background outlining the legal framework for resettlement activities, specifying In 2008, the Czech government officially selection criteria, and describing all adopted the ‘National Resettlement stages of the resettlement process Programme Strategy’, which sets out and the role of all stakeholders. The CHAPTER VII 140

Strategy was approved together with some legal aspects of the resettlement a pilot resettlement programme, process, mainly concerning the issue designed to provide an opportunity to of travel documents for refugees to be test and develop Czech approaches to resettled to the Czech Republic. resettlement. The initial programme focused on Burmese refugees in South Resettlement Criteria East Asia, reflecting the historic importance of human rights in Burma within Basic criteria the Czech Republic’s foreign policy prio-  A refugee must be recognised rities set during Vaclav Havel’s presi- as such according to the 1951 dential term. Subsequent programmes Convention on Refugee Status.7 have continued to focus on Burmese  If the criteria for granting refugee refugees, and the Czech government status under 1951 Convention have now considers resettlement to be a not been met, granting asylum for regular and ongoing activity. humanitarian reasons or for the purposes of family reunification might The national legal instrument that be considered. defines the criteria for granting refugee status on the territory of the Czech Criteria related to integration Republic is the Asylum Act (Act No.  The willingness of individual re- 325/1999 coll. on Asylum), the latest fugees to be resettled to the Czech amendments to which entered into Republic and to take steps to inte- force on 1 January 2011. Under Section grate into Czech society are both 90 of the Act, asylum can be granted considered in the selection process. to an alien recognised as a refugee under the mandate of UNHCR. This Identification and Selection provision provides the legal basis for resettlement. The decision to resettle The National Resettlement Programme in a specific year is made via an annual Strategy provides for the possibility to governmental decision that regulates select refugees based on dossier submis- the geographical scope, quota and sions from UNHCR including urgent and financing mechanism. Cooperation emergency cases. For normal priority with UNHCR is further specified in cases, selection missions are carried out a subsequent bilateral international agreement between the Czech go- 7 The requirement for refugee status may be waived vernment and UNHCR made on 10 April in emergency cases where UNHCR has not finalised refugee status determination procedures due to 2009. Amendments to the Asylum Act conditions in the country of asylum. Those resettled under such conditions will go through the formal expected to enter in mid-2013 changed refugee status determination process in the Czech

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Republic. 3 months. 2-3 weeksof longerno usually and than todecision departure takes a minimum processingand time from selection final are taken by the Ministry of the Interior, the in Czech Republic.decisions Final prepare targeted post-arrivalassistance literacy and soon-whichisusedto dynamics, languages spoken, level of tural backgroundsfamilyhabits, - social informationon refugees’ cul and social the Interior),interviews social collect the RFAagency (an of theMinistry of Carried outby a representative from views andcultural orientationtraining. resettlementof interviews,inter social Administration.areMissions composed of theInteriorRefugee and Facilities by representatives from the Ministry residence, payment ofpublichealth erally requires 5years legal permanent Naturalisation asaCzech citizen gen- the Czech Republic. then granted permanent residence in as refugees viathe asylum system, are Resettled refugees, asthoserecognised fugees withinaweek after their arrival. status isgranted to allresettled re- arrival into theCzech Republic. Refugee apply for international protection on so resettled refugees must formally to persons outside ofCzech territory, Czech authorities cannot grant asylum &Citizenship Residency Refugee Status, Permanent - - demonstrate B1level tests. Applicants are alsorequired to independence and‘good character’ Republic, andimposingnew economic and historical aspects ofthe Czech and formal tests onsocio-political citizenship, introducing more stringent including removing thebarondual the existing naturalisation process, law that makes several changes to Republic passed anew citizenship uniformly. InJune 2013,the Czech cants, althoughthisdoes nothappen technically be waived for refugee appli- guage. Theresidency requirement can record andproficiency inthe Czech lan- insurance contributions, nocriminal imposed. sex partners). No other conditions are unmarried partners same- (including gible for family reunification include 18, otherfamily members whoare eli- under 18andparents ofchildren under Besides themarriedpartners, children Family reunification 8 between selectionandreception of How is information transferred Linking Phases Practice Resettlement in Languages Common European Framework ofReference for Czech Republic 8 Czech language.

141

CHAPTER VII CHAPTER VI 142

refugees in order to prepare for their the Czech Republic. The Czech gov- arrival? ernment on the future approach for  Sharing of information gathered the CO programme according to the during Cultural Orientation (CO) target group. Information on particular needs and vulnerabilities gathered during  Medical Exam: IOM ‘social interviews’ is shared with actors at reception centres to  Travel arrangements: IOM support reception planning.  Other: The majority of planning for reception in municipalities takes Integration in Practice place post-arrival, when refugees are living in the IAS (see below). Reception

Pre-departure Upon arrival, refugees are welcomed by representatives from IOM, the  Cultural Orientation section of the Czech Department for Prior to 2012, pre-departure CO Asylum and Migration Policy respon- was carried out by a represen- sible for entry procedures and the RFA. tative of the Refugee Facilities Refugees are directly accompanied to Administration (RFA). In 2012, the the Integration Asylum Centre (IAS) Ministry of the Interior invited the where they stay for approximately 6 NGO Burma Centre Prague (BCP) to months before moving to municipal- provide a 2.5-day CO course (12-13 ities. The IAS is operated by the RFA. hours) on-site in Kuala Lumpur for Burmese refugees selected for reset- Placement policies tlement to the Czech Republic. This pilot classroom-based programme Participation of municipalities in the covered information on refugees’ resettlement programme is voluntary. legal status in the Czech Republic, While refugees are still in the IAS, the housing and money management, Ministry of the Interior approaches Czech culture and customs, and mayors and local councils, focusing on opportunities to learn Czech and small to medium-sized municipalities. find employment. The pilot CO pro- Municipalities that receive resettled gramme also included the screening refugees must provide them with of a film made by BCP about the municipality-owned housing (known as integration experiences of previously ‘integration flats’), and receive a lump resettled refugees from Burma in sum payment equivalent to €25-30,000 Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European and children attend local schools. a cultural andsocialorientation course, of intensive Czech language classes and time adultrefugees attend 400hours 6-month stay inthe IAS, during which gramme beginsduringthe refugees’ The post-arrival integration pro- Length: minimum12months. &support Integration services local reception andintegration. held priorto refugees’ arrival to plan other civilsociety stakeholders are the chosen municipality, schoolsand Ministry oftheInterior, relevant NGOs, Coordination meetings involving the after theirarrival into themunicipality. refugees duringthe first 6months the provision assistance ofsocial for renovations for ‘ are provided for basicfurnishingsand public infrastructure. Additionalfunds community, for example by improving investments that willbenefit thelocal of thefamily that isreceived) to make (final amount dependent onthesize Dossier selection: urgent &emergency cases submissions In-country selection UNHCR (MoI, Refugee Facilities Selection ofcases ona Selection missions Selection missions Administration) dossier basis(MoI.) integration flats ’, and Final decision Final decision

Min: 2-3weeks, Max.: 3months (Burma Centre Prague) Pre-departure CO under discussion process. families earlyintheresettlement self-sufficiency andparticipation for that enable somedegree ofeconomic knowledge oftheCzech language, and tions that donotrequire advanced orfunc- within municipalservices signate ‘starter jobs’ for refugee adults Receiving often municipalities de- considerably between municipalities. provided to resettled refugees varies The level andtypeofsocialguidance izens andpermanent residents. welfare assistance asotherCzech cit gible to receive the samefinancial migrants. Resettled refugees are eli- Programme (SIP)available to all the receiving aspartof municipality is available for 6months withinthe learning andemployment assistance, Social guidance, includinglanguage- are guaranteed for aperiod of5years. flats’ are rented at afixed rate and assigned municipality. ‘Integration directly to the‘integration their in flat’ After thisperiod, refugees travel mainstream State Integration Fit-to-fly &travel (IOM) Czech Republic Placement in municipality Placement inmunicipality integration programme & minimum 12-month & minimum12-month Integration Asylum reception inthe centralised Arrival & Centre

143 -

CHAPTER VII CHAPTER VI 144

Burmese refugees learning Czech in Ralsko/UNHCR/L.Taylor

Language tuition in municipalities is pro- NGO assistance for resettled refugees vided by specialist NGOs funded via the may continue past the initial 12-month ERF, and is far less intensive than tuition period provided for by the resettlement in the IAS. Some municipalities have programme. Such activities are gene- worked with NGOs to provide long-term rally resourced via the ERF. language tuition (post-12 months) that responds to the needs of particular re- INTEGRATION IN FOCUS: Raising fugees, for example by providing home- awareness in local schools based Czech language tuition for adults Brandýs nad Labem-Stará Boleslav, taking care of young children. a municipality close to Prague, received a family of resettled ref- In organising integration assistance, ugees from Burma in 2009. The municipalities work in partnership with family included 2 girls of school national NGOs including the Association age, and the local school decided of Citizens Assisting Migrants (SOZE), to prepare its staff and pupils for the Organization for Aid to Refugees the new pupils’ arrival. The school (OPU) and Burma Centre Prague (BCP). organised a series of lectures and BCP also assists with interpreting, and workshops about the situation in acts as a ‘cultural mediator’ between Burma, including the violations of the refugees and municipalities, NGOs human rights that had prompted and other service providers. refugees to flee, information about Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European ¨ forspecific categories 2013 Pledges madeto resettleunderERF þ þ ¨ ¨ funding Persons resettledusing2012ERF Refugee Fund (ERF) Use oftheEuropean Unaccompaniedminors

achieving pupils. life andare amongst itshighest girls are fullyintegrated into school school environment. Today, both ented andrespected theirnew in to feel immediately welcome, ori- Republic, helped theBurmesegirls family hadcome to the Czech of staff andpupilsaboutwhy the This information, andtheawareness useful information aboutthe school. for theirnew classmates containing The pupilsprepared invitation files in countries neighbouringBurma. refugees’ lives andcircumstances who refugees from Burmaare, and Persons resettled from acountry resettlement that can onlybeaddressed through Persons with serious medical needs sexual violenceorexploitation larly from psychological physical or Women andchildren at risk:particu- Programme mentation ofaRegional Protection or region designated for the imple Persons resettled from acountry - þ þ ¨ ¨ þ ¨ þ ¨ ¨ ¨ ¨ 2013 resettlement commonEUprioritiesfor Pledges madeto resettleundernew ERF positive aspectof theprogramme, governmental actors and NGOs as a eration between local andnational government identified strong coop- tation ontheprogramme, the Czech has been carried out.Ina2012presen- Republic’s resettlement programme No formal evaluation oftheCzech Evaluations Unaccompaniedminors

legal orphysical protection needs tlement orurgentresettlement for Persons inneed ofemergency reset resettlement that can onlybeaddressed through Persons with serious medical needs Survivors oftorture andviolence Women andchildren at risk Programme mentation ofaRegional Protection or region designated for the imple Eritrean refugees inEastern Sudan Malaysia andThailand Burmese refugees inBangladesh, Somali refugees inEthiopia Iran Afghan refugees inTurkey, Pakistan, Lebanon, Jordan Refugees from Iraq inTurkey, Syria, Lakes Region Congolese refugees intheGreat Czech Republic

145 - -

CHAPTER VII CHAPTER VI 146

and highlighted language-learning and particularly for those with low or no employment as particular challenges in literacy in their first language, and a the Czech context. lack of Czech language proficiency has in some cases impacted negatively on the social and economic Strengths and integration of resettled refugees. Challenges  The availability of housing drives placement decisions, and refugees Strengths have subsequently been spread across fairly disparate locations  The Czech government has heavily across the country. Resettled invested in developing and imple- families have therefore had few menting the resettlement pro- opportunities to meet up with one gramme, and has positively another. influenced public discourse on  There is no strong culture of volun- resettlement by linking the pro- teering in the Czech Republic, and gramme to humanitarian aspects of direct involvement of local commu- both foreign and migration policy. nities in the integration of resettled  Local authorities and NGO stake- refugees is therefore quite limited. holders are actively involved in the programme. The NGO Burma Centre Prague is one of the few ethnic asso- New Developments ciations that is directly involved in a national resettlement programme in At the time of writing, and after four Europe. years of involvement in refugee reset-  Municipalities invest significant tlement, the Czech government is time and resources in offering a wel- drafting amendments to the ‘National coming community and in building Resettlement Programme Strategy’. support for resettlement amongst local populations.

Challenges

 Learning Czech is challenging. Both resettled refugees and NGOs consider that the language instruction available to refugees after the 6-month stay in the IAS is insufficient, Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 147

Denmark at a glance

 Population: 5 580 516  GDP (per capita): 125 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total : 6 045  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 1 695

2012 data, published by Eurostat in May 2013

The Danish resettlement programme at a glance Resettlement quota and actors Start of annual quota: 1979 Current quota: approximately 500 per year. 3-year flexible quota of 1,500 in place since July 2005 enables unused places to be carried over from year to year within a 3-year period. The current flexible quota period runs from 2011 to 2013. Main national actors: Danish Immigration Service (DIS), Ministry of Justice, municipalities, Danish Refugee Council (DRC).

Resettlement numbers 9 Nationality  Country of Asylum of Year Accepted Arrivals9 largest groups 2013 516 Bhutan  Nepal, DR Congo  Uganda, anticipated Colombia  Ecuador

2012 468 Bhutan  Nepal, Burma  Malaysia, Colombia  Ecuador

2011 516 Bhutan  Nepal, Burma  Malaysia, DR of Congo  Zimbabwe CHAPTER VI 2010 494 Bhutan  Nepal, Burma  Malaysia, DR of Congo  Kenya

2009 452 Bhutan  Nepal, Burma  Malaysia, DR of Congo  Rwanda

9 Arrivals are not recorded in national statistics CHAPTER VII 148

UNHCR Submission categories considered for resettlement

 Legal and physical protection needs  Survivors of violence and torture  Medical needs -30 cases under the Twenty-or-More (TOM) programme  Women and girls at risk  Family reunification - outside the quota  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)

 Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement - around 75 cases are allocated to emergency and urgent dossiers under the current quota  Normal within 12 months between submission and resettlement

The resettlement quota is divided into four subquotas:

 Geographical category - approximately 395 places per year, primarily for refugees offered resettlement following in-country selection missions.  Emergency and urgent category - approximately 75 places per year reserved for refugees who are at immediate risk of refoulement and/or assault in the country of asylum.  Medical category - 30 places10 under the UNHCR Twenty-or-More (TOM) programme for refugees with special medical needs.  Families category - family members accepted on a dossier basis who are accompanying a person accepted under the Twenty-or-More programme. Family members arriving in this category are counted in the geographical quota.

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 10 In 2009 the Danish TOM programme was increased from 20 to 30 places. programme. legal basisfor the Danishresettlement issued. Thissectionthusprovides the persons must fulfilfor apermitto be and sets criteria outthespecific that internationalsimilar organisation), agreement madewithUNHCR (or to aforeigner whoarrives underan that aresidence permitcan beissued Denmark. Section8(1-3)stipulates basis for refugee status eligibilityin Danish AliensActprovides the legal established in1979.Section7ofthe resettlement programme was officially in resettlement since1956, theDanish Although Denmark hasbeen involved Legal Basis Programme Denmark’s Resettlement to emergency, urgent andmedical the asylum legislation are notapplied organisation. Somecriteria set outin with UNHCRorasimilarinternational takes placebasedonanarrangement dition that resettlement to Denmark the national legislation. Itisaprecon- and the associated criteria set outin 1951 Convention onRefugee Status nised asarefugee according to the Denmark, theperson must be recog - To for qualify resettlement to Basic Criteria Resettlement Criteria resettlement to Denmark. illness are notusuallyaccepted for criminal offence. Persons withmental public order and/or have committed a constitute athreat to national security/ 1951 Convention, ifpersons including resettlement, based onarticle1F ofthe clauses that may exclude refugees from Minors (UAMs). Denmarkoperates are seriously ill)orUnaccompanied tarian needs (for example persons who Denmark, suchasthosewithhumani- able to obtain a residence permit in persons whowould be otherwise Resettlement can alsobeoffered to tegic resettlement operations. cases orto those resettled understra-    gration criteria are being applied: selection process. Thefollowing inte to integration into the resettlement country to introduce criteria related Denmark was thefirst European relatedCriteria to integration

people andso may be prioritised. to integrate more easilythan single Families with children -considered prioritised. employment experience may be with educational qualifications or Education and employment - those priority. Multilingual refugees may begiven alone isnotareason for exclusion. should beliterate, althoughilliteracy Language andliteracy -arefugee Denmark -

CHAPTER VII CHAPTER VI 150

 Family unity - considered as highly Integration criteria are not applied to important to maintain even where emergency, urgent and medical cases, all members of a family do not meet or those resettled under strategic other supplementary criteria. resettlement operations. Integration  Social networks outside the family criteria are applied to families as a in the country of asylum - sociability whole - each individual within a family in country of asylum may be con- is not required to meet the criteria. sidered as a positive indication of integration potential. After a loss for the Right in the Danish  Age - single persons who are very parliamentary elections of 2011, the old or very young are considered new government announced plans to integrate less easily, and may to abolish the integration criteria for therefore be excluded. resettlement. At the time of writing  Motivation to integrate - the indi- however, there have been no changes vidual refugee’s motivation for to this effect. successful integration is of central importance. Before a final decision Identification and Selection on resettlement is made, the refugee must sign a declaration11 that he/she Every year the Minister of Justice has been informed of the conditions decides on the overall allocation of for resettlement in Denmark, and places and the geographical priorities that, based on this, he or she wishes for the Danish quota. All submis- to be resettled. The declaration sions for resettlement are made by states the refugee’s willingness to UNHCR. The majority of the refugees integrate into Danish society, to to be resettled are identified during 2-3 learn the Danish language, and to selection missions each year, during participate in and complete a post- which the Danish Immigration Service arrival integration course. Refugees (DIS) and the Danish Refugee Council also sign to confirm that they (DRC) interview refugees. understand the limited access to family reunification for refugees in Denmark and Iceland are the only Denmark, and the level of financial two European countries where NGOs and other aid offered by the Danish participate directly in selection mis- government. sions. Municipalities can participate in selection missions by delivering CO programmes, but must finance their 11 Danish Immigration Service, Declaration regarding own participation. Persons resettled the conditions for resettlement (residence permit) in Denmark https://www.nyidanmark.dk/.../ee5_ as emergency/urgent cases and TOM

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European conditions_for_resettlement.doc and arrival. average months. Normal prioritydossiercases to arrival inDenmarkmay take 5-6 sions, processing time from submission For cases selected duringselectionmis- selection. The DRC doesnot participate in dossier on medical cases are selected by DISbased have submitted asigned declaration of prior to submitting the application, public benefits for of3years aperiod must nothave received certain types of Applicants for permanent residence years legal residence inthecountry. for All refugees inDenmarkcan apply arrival. employment immediately upon their Refugees are entitled to take up extension oftemporary residence. years, refugees must applyfor further years from the date ofentry. After 5 further 6-month periods for upto 5 isautomaticallywhich extended for 6-month temporary residence permit, Denmark, allrefugees are given a the DanishAlien Act.Onarrival into tection status includedinsection8of receive refugee status orotherpro- Refugees accepted for resettlement &Citizenship Residency Refugee Status, Permanent dossier submissionsfrom UNHCR. permanent residence after 5 3 months between submission for at least 3ofthe 5years residency. an education programme inDenmark employment orhave been involved in higher and have held regular full-time passed aDanishlanguage test level 1or integration andactive citizenship, have     applicant residing inDenmark: apply for the family reunification The following general requirements unmarried children. registered/cohabiting partners and family reunification withtheirspouse, certain circumstances be granted Refugees inDenmarkmay under Family Reunification 13 12 guage test. pass level 2ofthenational Danishlan- Citizenship applicants are required to application for citizenship ispermitted. residency intheEU-8years -before an Denmark requires thelongest period of in Denmark. requirements after 8years ofresidency Refugees may beexempt from general

test Level 1. Passed national Danishlanguage In employment oreducation. Not dependent onpublicbenefits. At least 24years old. Retention andInternational Recruitment. learning isset by the DanishAgency for Labour The national framework for language Danish • No overdue publicdebt • No criminal record; • Being over theage of18 for• Qualifying temporary residence Other general requirements include: 13 Denmark 151 12

CHAPTER VII CHAPTER VI 152

 Demonstrating ‘tilnytningskrav’ needs to municipalities. Information (attachment to Denmark). concerning the asylum claim is not included in this communication. The extent to which general family  Sharing of information gathered reunification requirements are applied during Cultural Orientation (CO) depends on whether the individual(s) joining the family member still risk(s) How is information transferred for persecution in the country of origin or specific needs (medical or other)? asylum. For example, as a general rule  Transferred to the municipality via children joining family members must be the RRF, as above. younger than 15 years, but this may be extended to 18 years in high risk cases. Pre-departure

General family reunification cases are  Cultural Orientation: A 5-day not included in the resettlement quota. pre-departure CO programme is delivered by DIS and language instructors directly after each Resettlement in selection mission. The programme practice provides 10 lessons on Danish society and 10 Danish language Linking Phases lessons.

How is information transferred  Medical Exam: IOM fit-to-fly between selection and reception of assessments refugees in order to prepare for their arrival?  Travel arrangements: IOM  Briefing stakeholders after selection through missions or dossiers DIS informs municipalities and NGOs Integration in Practice (DRC, Church Integration Service (KIT), Red Cross) of the arrival of Reception new groups and discusses findings during selection missions. Refugees arriving at Copenhagen  Forwarding pertinent information airport are welcomed either by the from Refugee Referral Form (RRF) to Danish Immigration Service (DIS) or the municipalities receiving municipality. Those arriving Refugees sign a release that allows at other airports are welcomed by the DIS to transfer RRF data on special receiving municipality. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 14 to adistributionkey toassigned accordingmunicipalities fugees resettled(both others) and are refugees throughoutthe country, re- To ensure an even dispersal ofall Placement policies municipalities. vided by the central government to the and/or groups.is prosupport Financial - refugeespecific with dealing in profiles Manysions. subsequently offer expertise briefings,or COmission selection ses - several years, haveand participated in resettled refugees have done sofor Manythat municipalities receive beforepality placement isconfirmed. cases for resettlementthe munici with potentialspecial needs).DISdiscusses education, employmentanyand skills profilesof refugees network,(social integrationcapacity the personal and accordingDIS to availablequota, local the hostidentifiedis municipality by submissions In-country selection Dossier selection: emergency/urgent &TOM medical cases not known. and exact amounts for resettlement are therefore tribution from central government to municipalities, related activitiesisincludedinoverall financialdis- Support received by municipalitiesfor resettlement- UNHCR Selection missions Selection missions Selection ofcases ona municipalities) dossier basis(DIS) (DIS, DRC, Normalpriority dossiers: 3months 14 . For resettlement, Final decision Final decision 5-6 months DRC, municipalities) departure CO (DIS, 1-week pre- - takes place (seebelow). refugee(s) inquestion before the move individual cash allowance, for the gramme, includingpayment ofthe responsibility oftheintegration pro- municipality must accept thefinancial palities, buttheprospective receiving Refugees can move between munici- readily available andlessexpensive. of the country, where housingismore municipalities inthe more rural part Most refugees are resettled to smaller gramme. Themunicipality organises all a family reunification must participate in and any family members arrivingvia housing. Allnewly-arrived refugees prises amixture ofsocial andprivate sible for providing whichcom- housing, Denmark. The municipality is respon- all newly-arrived foreign nationals in provides guidelines for integration for Components: The1999Integration Act Length: 3years &support Integration services 3-year mandatory introduction pro- Travel (IOM) health checks & Pre-departure travel (IOM) Denmark Arrival &direct municipalities reception in programme integration 3-year 153

CHAPTER VII CHAPTER VI 154

Burmese refugees working at the Danish Crown factory in Fåborg Midtfyn/ICMC/2012

phases of the programme although it classes, courses on Danish society often contracts NGOs or other private and employment advice. Refugees are organisations to implement activities. placed in one of three language classes The Danish Refugee Council (DRC), the depending on their language ability Danish Red Cross and KIT are the prin- and educational background. cipal NGOs assisting refugees in the integration process. The DRC is particu- During the introduction programme larly involved in resettlement via go- and until employment is found, vernment contracts at both a national resettled refugees and their reunified and municipal level, in addition to family are entitled to a cash benefit coordinating a national network of vo- from the Danish Social Services the lunteers assisting refugees. same as that received by Danish nationals. The cash benefit may be Integration assistance in Denmark reduced if a refugee fails to partic- begins with the creation of an ipate in the integration programme. integration contract based on an Refugees risks reduction or termi- assessment of the person’s particular nation in their financial allowance and skills. The integration programme the interruption of the integration pro- includes a minimum of 30 hours of gramme if he/she moves to a different activities a week comprising 15-18 municipality without the approval of hours per week15 Danish language the new local authority, potentially also jeopardising a grant of permanent 15 There is no precise limit in terms of hours men- residency in the future. tioned in existing legislation. In May 2013, the government agreed to extend the period during which free Danish language classes could be attended from 3 to 5 years, but this decision had not been

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European implemented at the time of writing. become anetwork family. howon guidance advice andto an information brochure providing DRCor e-mail. phone haspublished availableto answer questionsby tele- network familiesare expected tobe receptioninitial Additionally,period. may ask for more contact during the has just arrivedDenmark, inDRC at least twice a month.If thefamily they timefor find their refugee family are matched with,DRC stipulates that to meet withthe refugee family they familieshowdecide often they want access market.the job Whilenetwork options,and deal withtheauthorities Denmark, understandeducational associationsand organisations in Denmark, tonavigate the extensive refugees in learningto get aroundin systems and society. They assist variouson culture,Danish aspects of informationand support friendship, a kindof‘good providing neighbour’ lives. Thenetwork familyas functions in refugees’support social everyday that canprovide practicalboth and families‘networkwith aDanish family’ lunteer network matches refugee RefugeeThe Danish Council’s vo- Network families INTEGRATION INFOCUS: carried outathematic evaluation of and theUniversity ofCopenhagen Health, theDepartment ofPublicHealth Centre for Migration, Ethnicity and Also in2011, the Danish Research Denmark. on integration at the local level across recommendations to thoseworking a tool to disseminate practice andshare reception in municipalities a Immigration andIntegration published In May 2011,theMinistry ofRefugee completed. practice andoutcomes have been several studies onrefugee integration the integration ofresettled refugees, the Danishresettlement programme or While there isnooverall evaluation of Evaluations Refugee Fund(ERF). does notparticipate inthe European and HomeAffairs. Assuch, Denmark Treaty, inthearea including ofJustice - orexceptions -to the Maastricht Denmark agreed several ‘opt-outs’ Under the1992Edinburgh Agreement, Refugee Fund (ERF) Use oftheEuropean 16 study ongood practices inrefugee municipalities’, May 2011 good reception(May ofrefugees 2011)‘The in Ministry ofRefugees, Immigration andIntegration, Denmark 16 for useas 155

CHAPTER VII CHAPTER VI 156

health outcomes for resettled refugees pre-departure and post-arrival in Denmark.17 Based on outcomes of phases. surveys in all Danish municipalities that  The Danish programme consistently had received resettled refugees since fills all places within the quota, in 2007, the study found that around large part because of strong coop- 70% of municipalities had no specific eration and partnerships, and also healthcare policy for the reception because municipalities are obliged and long-term integration of resettled to receive resettled refugees and refugees. By contrast to asylum the three-year quota model pro- seekers, who can access healthcare at vides flexibility to fill unused places reception centres, resettled refugees from year to year. travel directly to municipalities and  The Danish quota responds effi- receive the large part of their support ciently to urgent and emergency from caseworkers who are not health protection needs, and enables ref- professionals. Health outcomes for ugees with specific medical needs resettled refugees therefore varied to access life-saving treatment in considerably, and the risk that the Denmark. healthcare needs of resettled refugees would in some circumstances not be Challenges: met was considerable.  Resettled refugees are not granted permanent residency on arrival Strengths and into Denmark, and the challenging Challenges language requirement for obtaining permanent residency due to lan- Strengths: guage requirements causes many refugees to remain as temporary  The Danish programme is charac- residents for long periods. terised by close cooperation and  The integration of newcomers in coordination among government, Denmark has become highly politi- local authorities and NGO stake- cised in recent years, and negative holders, with clear definition of perceptions in this regard have tasks and division of responsi- created challenges for integration bilities among actors in both the policy and for individual integration in some municipalities.  Balancing placement of refugees in 17 Hanne W. Frederiksen, Allan Krasnik & Marie Nørredam ‘Policies and practices in the health-related areas where housing is available with reception of quota refugees in Denmark’, in Danish Medical Journal (Dan Med J 59/1), January 2012 those where there are opportunities Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European aiming to encourage andstrengthen employment promotion andactivities the family, Danishlanguage tuition, school andeducation for children in vering socialinitiatives andhealthcare, members withanIntegration Plan, co- provide allrefugees andtheirfamily From July 1st 2013, municipalities must into the general social securitysystem. reigners’ (includingresettled refugees) mainstreaming social supportfor ‘fo- residence andnaturalisation, and for family reunification, permanent Integration Act, including new rules ments to boththeAliensActand implemented anumberofamend- nationality. The government has since fication, permanent residence and the rulesoneligibility for family reuni- immigration andintegration, including setwhich outrevisions inthefieldof ernment’s general plansfor reform, were foreseen aspartofthe2011gov approach to integration inDenmark Planned changes inthe national New developments availability. crisis hasfurther depleted their vocational skills, and the financial limited educational experience or who are illiterate and/or whohave are alsovery limited for refugees context. Employment opportunities cation ischallenginginthecurrent for employment and/or higheredu- - and mental health. luation should lookat bothphysical of theexamination asneeded. Theeva- arrival, andfollow upontheoutcomes and their families within3months of ation for allnewly arrived refugees mental health examination/evalu- also offer apreliminary healthand active citizenship. Municipalities must Denmark 157

CHAPTER VII CHAPTER VI 158

Finland at a glance

 Population: 5 401 267  GDP (per capita): 114 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 2 905  Total decisions reached in 2012: 3 090  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 1 555

2012 data, published by Eurostat in May 2013

The Finnish resettlement programme at a glance Resettlement quota and actors Start of ad-hoc programme: 1979 Start of annual quota: 1985 Current quota: 750 Main national actors: Ministry of the Interior, Finnish Immigration Service (MIGRI), Security Police, Ministry of Employment and the Economy, Centre for Economic Development, Transport and Environment (ELY)18, municipalities, Finnish Red Cross.

Resettlement numbers Nationality  Country of Asylum of Year Accepted Arrivals largest groups 2013 Afghan  Iran (200); Afghan, Iraqi, Iranian, anticipated Somali  Turkey (150); Congolese  Southern Africa (Malawi & Zambia) (150); Sudanese  Egypt (150); Emergency  various (100)

2012 734 689 Afghan  Iran & Turkey (192); Congolese  Rwanda (165); Afghan, Somali, Iranian, Iraqi  Turkey (143); Burmese, Sri Lankan, Chinese, Pakistani, Somali  Thailand (132); Emergency  various (102)

18 The Centres for Economic Development, Transport and the Environment (ELY Centres) are responsible for the

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European regional implementation and development tasks of the central government.  -   whereapplicable) UNHCR Prioritylevels accepted (withsub-quota        consideredfor categories resettlement UNHCR Submission Year 2009 2010 2011 Normal Urgent Emergency Lack offoreseeable alternative solutions Children andadolescents at risk Family reunification Women andgirlsat risk Medical needs Survivors ofviolence andtorture Legal andphysical protection needs 100 cases areallocated to emergency andurgent submissions.

within 6weeks between submissionandresettlement within 12months between submission andresettlement ax. 7daysbetween submission andresettlement A 727 634 626 ccepted Arrivals 627 571 460

lar Nationality Lankan Congolese Iraqis&Palestinians various (100) Afghan Emergency Syria (145);Congolese  Pakistani Afghan various (100) Congolese Chinese, Pakistani, Somali gest    gr  Iran (153);Burmese, SriLankan, Iran (265);Burmese, SriLankan, Thailand(149); Emergency     Thailand(147); Iraqi  oups Rwanda (151);Burmese, Sri Rwanda (92);Emergency  various (63)  Countr  Syria& Jordan (327); Rwanda (126); y of As Thailand(169); ylum of 159

CHAPTER VII CHAPTER VI 160

Finland’s Resettlement participating Finnish municipalities to Programme meet the integration needs of refugees.

Legal Basis Factors that are taken into account in the assessment of individual potential Section 90 of the 2004 Finnish Aliens for integration into Finnish society Act defines the ‘refugee quota’ and include: procedures for resettlement. Section  the educational background of 91 of the Act empowers the Ministry all family members (including li- of Interior to determine on annual teracy and knowledge of the Latin basis which refugees will be resettled alphabet); to Finland, and resettlement criteria  employment experience; and eligibility are set out in Section 92.  health status; and The annual quota is confirmed in the  the effect that resettlement might annual state budget. have on individual refugees.

Resettlement Criteria A lack of integration potential does not preclude resettlement as such Basic criteria if other factors - such as the need  The refugee is in need of interna- for international protection or for tional protection with regard to his resettlement - favour the selection of or her home country. particular refugees. Assessments of  The refugee is in need of reset- individual ‘integration potential’ aim to tlement from the first country of effect the selection of as ‘balanced’ a asylum. group as possible. Each group should  The requirements for admitting and include persons who wish to function integrating the alien into Finland as a resource person for their com- have been assessed. munity, and who have expressed an  There are no obstacles to issuing a acceptance of this role and demon- residence permit in terms of public strated their potential to fulfill it at the order, security, health or Finland’s selection interview. international relations. An assessment of the integration Criteria related to integration capacity of both of the municipal- During the selection process, the ities considers available services and Finnish government assesses both ref- their ability to respond to the needs ugees’ individual and group potential of refugees, the presence of similar for integration, and the capacity of communities and social networks, Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European decision is approximatelyis decision 2months. processingtime from to submission Forappealed. cases,priority normal cannotand decisions submissions, be resettlementall on decisions final tion’s return toMIGRI makes Finland. takedecisions place after the delega- Security checksselection final and travel expenses. selection missions, andMIGRIfundsall Centre. Security policemay accompany expert from a municipality or an ELY and potentially include anintegration tives from thereceiving municipality, alsomaywhich include representa- (MIGRI) organises selection missions, sions. TheFinnishImmigration Service (650) are selected duringselection mis- on Up to 100emergency cases are selected Ministry ofInterior. decision onthe quota rests withthe posal for therefugee quota. Thefinal Economy, prepares anannualpro- and theMinistry ofEmployment and with theMinistry for Foreign Affairs The Ministry ofInterior, incooperation andSelection Identification selected for resettlement. decisions ofthoserefugees finally assessment alsoinfluence placement or relatives. The outcomes ofthis persons, andoffamily members and/ the presence ofsupportor‘resource’ dossier basis.The remainder ofcases working days. Emergency cases are processed within NationalForeign Language Certificate factory knowledge (level 3oftheFinnish are required to demonstrate asatis citizenship resettled refugees mayfor apply Finnish are granted for 4years, after which arrival.permit on statusreceiveand Finland in a residence Resettled refugees are granted refugee &Citizenship Residency Refugee Status, Permanent 20 19 eligible for family reunification if: (including same-sex partners) are also children under 18, unmarriedpartners children under 18andparents of toIn addition marriedpartners, Family reunification dence permit. becomesthen which apermanent resi- extensionof their residence permit, years residency may forapply a 4-year applicationsare accepted not after 4 languagecitizenshipwhose Those class. Swedish a basicunderstandingor of Finnish mustalthough demonstrate either fromthe language requirement, Illiterate applicants may be exempted of written andoralor Swedish. Finnish Swedish. The official languages of Finlandare Finnishand European Framework for Languages Equivalent to level B1.1 andB1.2oftheCommon 20 orregularparticipation a in . Applicants. for citizenship Finland Residence permits

161 19 5 - )

CHAPTER VII CHAPTER VI 162

 they have cohabited for at least 2 during selection interviews (see years; or ‘Resettlement criteria’ above) and  have a child together; and record their comments and re-  are in a ‘marriage-like’ partnership. commendations. MIGRI forwards  Relationships must be proven either this information to the receiving with identity documents, other municipality. documentary evidence or (in the case of parent-child relationships) Pre-departure DNA tests. There is no requirement to demonstrate sufficient income to  Cultural Orientation (CO): During support joining family members. 2004-10, refugees selected via selection missions received a 3-day CO programme (FINCO) delivered by Resettlement in IOM, covering practical information Practice about Finland, refugee rights and responsibilities, resettlement travel Linking Phases and reception procedures and basic Finnish phrases. FINCO was not How is information transferred delivered in 2011-12. At the request between selection and reception of of MIGRI, IOM is currently devel- refugees in order to prepare for their oping a new FINCO to be delivered arrival? later in 2013.  Forwarding pertinent information from Refugee Referral Form (RRF) to  Medical Exam: Agreement between integration actors the Finnish government and IOM, A copy of the RRF and any asso- under which IOM performs fit-for- ciated documentation (such as travel examination as necessary medical documents or a Best and/or requested. Interest Determination (BID) for Unaccompanied Minors) is sent to  Travel arrangements: IOM the receiving municipality ahead of refugees’ arrival. Where refugees are interviewed during selection Integration in Practice missions, RRFs that are sent to municipalities also include inter- Reception viewer notes.  Other: Integration experts assess Volunteers trained by the Finnish Red refugees’ integration potential Cross welcome refugees at the airport Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European nationalities andtheavailability of tives, similar ethnic groups and/or MIGRI considers thepresence ofrela- quota of750persons. not been sufficient to filltheannual offered by municipalitieshas Finnish total numberofresettlement places with municipalities. Since 2009, the reception and integration programmes numbers, preferred nationalities and and theeconomy -negotiate refugee istrative authorities for employment refugees. ELY Centres -regional admin- municipalities have received resettled from local councils. To date 140Finnish refugees requires political approval throughthe asylum system. Receiving refugees andthose granted protection each year, includingbothresettled receive aspecific number ofrefugees Municipalities Placement policies municipality. and accompany themto thereceiving Dossier selection: emergency &urgent cases submissions In-country selection UNHCR Selection ofcases ona dossier basis(MIGRI) Selection missions Selection missions Emergency: 5days, Urgent: Expedited (MIGRI) voluntarily agree to decision decision Final Final Final 3-day pre-departure CO (notcurrently being delivered) Travel (IOM) 2 months reallocated to the new municipality. sum andreimbursement payments are move to another municipality, all lump with serious medical needs. If refugees costs relating to receiving refugees burse municipalitiesfor additional system. Inaddition, ELY Centres reim- than for refugees exiting theasylum refugees is4years, one year longer reimbursement periodfor resettled training andsupport.The maximum logical andemployment counselling, healthcare,services, specialist psycho- accommodation andproviding social 7) €2,300 peryear for persons than older (€6,845 for thoseunder7years and a ‘calculatory lumpsum’ perrefugee MIGRI pays receiving municipalities services. near anappropriate hospital ormedical specific medical needsinmunicipalities decisions, andplaces refugees with interpreters whenmakingplacement 21 21 Seekers. Integration ofImmigrants andReception ofAsylum September 2011amendment to the 1999Act on to cover costs related to finding health checks & Pre-departure travel (IOM) Finland 3-year integration Arrival &direct municipalities programme reception in

163

CHAPTER VII CHAPTER VI 164

Finnish municipalities are also com- Integration services & support pensated for the costs of interpreting services, and municipalities receiving Length: 3 years unaccompanied minors are reimbursed all costs until the person concerned is The 2011 Act on Integration of migrants, 21 years old. MIGRI reimburses the full including refugees, emphasises the need amount of the individual integration to provide integration support as soon subsidy issued to refugees by receiving as possible after arrival into Finland. municipalities. The Act also sets targets for proficiency in Finnish and Swedish. Integration ser- Some municipalities still decline to vices are available to all new arrivals to offer places, arguing that payments do Finland who have a residence permit. not meet the cost of receiving resettled refugees - particularly vulnerable and While all migrants undergo an initial high needs cases - and that the system interview assessment to determine for reclaiming costs is too complex if they need an individual integration and bureaucratic. The wider context plan, resettled refugees always for these discussions is the ongoing receive a plan. For those able to seek tension between the national gov- employment the plans are drafted by ernment and some municipalities over local employment offices and focus planned reforms to local government specifically on finding employment. in Finland.22 For those not likely to enter the labour market in the near future - such as the Additionally, given the lack of places in elderly, those with young children or municipalities, many of those granted with disabilities - the integration plan is refugee status via the asylum system drafted by municipality social services. have chosen to arrange their own accommodation rather than waiting in Integration plans outline the activities a reception centre until it is allocated to be completed during the 3-year to them. This has increased pressure period. ‘Integration training’ as defined on already scarce housing supply in the 2011 legislation forms a central for refugees in larger cities near to part of each plan, and comprises 60 reception centres.23 study units24 of language-learning and orientation into Finnish society. 22 Since 2012, the Finnish government has been imple- Follow-up activities can include voca- menting a radical reform of municipalities with the aim of increasing public spending efficiency. Some tional training, skills development and municipalities are strongly opposed to the reform. 23 In 2012, a monthly average of 400 persons with a voluntary work, and in some cases may residence permit were living in reception centres while awaiting a municipality place, compared to

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 200 persons in 2011. 24 One study unit is equivalent to 35 hours. an integration subsidy. municipality retain theirentitlement to years. Refugees whomoveto another subsidy payments for allmigrants is3 the maximum duration ofintegration provided to families withchildren, and month. Additional financialsupportis municipality that averages €674per integration subsidy from thereceiving integration planreceive amonthly Refugees andmigrants following an Finnish Red Cross. toassigned resettled refugees by the the volunteeras such befrienders foractivities and resettledrefugees, topalities provide services additional often workpartnership in munici with internships.societyCivil organisations workshort include also placementsor of Jyväskylä’s Centre for Applied and adolescents. The University specialist support, andchildren migrants -jobseekers, those requiring The project targets three categories of total budget of€10million. Integration, andthe project hada project isset out inthe2011Acton in Finland.The framework for the gration training for new arrivals purpose oftesting modelsofinte March 2010to June2013, withthe is athree-year project that ran from Participative Integration inFinland inFinlandintegration project Integration inFocus: Participative - -     funding Persons resettledusing2012ERF Refugee Fund (ERF) Use oftheEuropean      forspecific categories 2013 Pledges madeto resettleunderERF

resettlement that can onlybeaddressed through Persons with serious medical needs sexual violenceorexploitation larly from psychological physical or Women andchildren at risk;particu- Unaccompanied minors Programme mentation ofaRegional Protection or region designated for the imple Persons resettled from acountry resettlement that can onlybeaddressed through Persons with serious medical needs Survivors oftorture andviolence Unaccompanied minors Women andchildren at risk Programme mentation ofaRegional Protection or region designated for the imple Persons resettled from acountry been piloted in16municipalities. To date, 10new approaches have offices andcivilsociety organisations). with municipalities, employment approaches at the local level (working project development planandpilot Language Studieswilldraw upa 165 - -

CHAPTER VII CHAPTER VI 166

 Persons in need of emergency reset- system at the national and local tlement or urgent resettlement for levels; legal or physical protection needs  to make recommendations for increasing the availability of psy- Pledges made to resettle under ERF chosocial support for refugees in resettlement common EU priorities for Finland; and 2013  to produce a web-based  Congolese refugees in the Great handbook for local refugee Lakes Region25 reception.  Refugees from Iraq in Turkey, Syria, Lebanon, Jordan  Afghan refugees in Turkey, Pakistan, Iran  Somali refugees in Ethiopia  Burmese refugees in Bangladesh, Malaysia and Thailand  Eritrean refugees in Eastern Sudan

HIGHLIGHT: The VIPRO project The ERF co-financed VIPRO Project was established by the Ministry of Employment and the Economy in October 2012, in response to the declining number of places for refugees offered by Finnish municipal- Unaccompanied minor resettled to ities. The project has 4 key objectives: Finland/Aleksi Malinen

 to recommend improvements In 2013, the second phase of the to the system for reimbursing project will begin negotiations with rel- municipalities’ costs for receiving evant stakeholders on how to regulate refugees; independent moves from reception  to produce a strategy for centres to municipalities, and explore improving the refugee reception the status and integration perspectives of unaccompanied minors after the asylum process. 25 The places pledged under this priority are likely to be allocated to Congolese refugees from Southern Africa, namely Zambia and Malawi which are countries included under the common Union priority

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European ‘Congolese refugees in the Great Lakes region’. refugees. and assessments oftheiractivities for may alsoconduct periodicevaluations terms, andcivilsociety organisations training course isevaluated onitsown been completed. Each local integration Finnish resettlement programme has no comprehensive assessment ofthe in Finland, includingrefugees, to date or internal migration ofimmigrants been conducted onhealth, housing Although someevaluation studies have Evaluations  Strengths Challenges and Strengths   A Political projects. of resources for research andpilot national programme andallocation - strong legislative basisfor the urgent cases. placesreserved for Relatively large numbers ofquota resettlement quota. resettled refugees withinthe annual to receiving vulnerable groups of strong political commitment leadership onintegration emergency and   2014. above) hasbeen extended until May The VIPRO Project (see ‘Highlight’, New Developments  Challenges

Finnish municipalities. rienced Some resettled refugees have expe current programme. No pre-departure CO withinthe urgent andemergency cases. programme to offer protection to cantly onthecapacity oftheFinnish Finland. These delays impactsignifi- fugees accepted for resettlement to times incountries ofasylum for re- tlement quota andincreased waiting in anunderutilisation ofthereset ipalities for resettlement, resulting Insufficient placesoffered by munic- racism anddiscrimination in Finland

- -

CHAPTER VII CHAPTER VI 168

France at a glance

 Population: 65 327 724  GDP (per capita): 108 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 60 560  First instance positive decisions (refugee status and subsidiary protection): 8 655

2012 data, published by Eurostat in May 2013

The French resettlement programme at a glance Resettlement quota and actors Start of annual quota: 2008 Current quota: 100 dossier cases26 per year27 Main national actors: Ministry of Interior, Ministry of Foreign Affairs, French Office of Immigration and Integration (OFII), French Office for Protection of Refugees and Stateless Persons (OFPRA), Forum Réfugiés-Cosi (FRC), France Terre d’Asile (FTDA), Adoma, Entraide Pierre Valdo, ISARD-COS, selected regional and local authorities.

Resettlement Numbers

Arrivals Total arrivals Nationality Accepted - Annual per year  Country Dossiers Year (Nr. of Resettlement (all annual of Asylum submitted Persons) Programme programmes of largest (at 06/01/13) included) groups 2013 100 Processing No arrivals at 50 Varied antici- ongoing the time of caseload pated writing

2012 115 Processing 689 90 Varied ongoing caseload

26 The quota refers to 100 ‘cases’ rather than persons - a ‘case’ can refer to one person or a family unit of two or more persons. 27 The French national resettlement programme is unique in Europe in that the quota refers to a commitment to

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European consider 100 dossier cases for resettlement, rather than the number of cases France plans to resettle. 90 persons in 2012(37from the 2010caseload and53 from the 2011caseload). the 2008 caseload, 51from the2010 caseload and1from the 2011caseload) and have been delayed. Resettlement arrivals amounted to 55in2011(3persons from has notslowed down theexamination ofdossiers, arrivals ofaccepted persons Since 2010, the numberofarrivals hasdeclined.AlthoughtheMinistry ofInterior    whereapplicable) UNHCR Prioritylevels accepted (withsub-quota        consideredfor categories resettlement UNHCR Submission Year 2009 2010 2011

Medicalneeds Normal Urgent Emergency Lack offoreseeable alternative solutions Children andadolescents at risk Family reunification Women andgirlsat risk Survivors ofviolence andtorture Legal andphysical protection needs

submitted Dossiers 101 100 105 within 6weeks between submissionandresettlement within 12months between submissionandresettlement max. 7daysbetween submission andresettlement

(N Per A 151 149 142 ccepted r . o sons) f

( - Annu Pr ment Resettle Arrivals 627 571 460 a t 06/01/13) t ogramme al

( included) pr per To 159 203 55 all ogrammes tal year annu arrivals

l al

 gr of of As Nationality Iraq Palestinians in (DRC) Congolese Afghans, Ethiopians, (DRC) Congolese Palestinians, Afghans, Countr oups lar ylum 169 gest y

CHAPTER VII CHAPTER VI 170

France’s Resettlement the agreement in response to a call by Programme the EU Justice and Home Affairs (JHA) Council. In 2011, France informed Legal Basis & Background UNHCR of its willingness to consider refugees ex-Libya from Shousha camp France has been involved in ad-hoc in Tunisia as a response to the UNHCR resettlement since 1957, resettling and EU call.28 At the time of writing, refugees from Hungary (12,700), ‘boat out of the three cases submitted people’ from Vietnam (100,000) and by UNHCR, one refugee has been refugees from Kosovo (6,300). accepted and the remaining two cases are still being considered. Although the Code on the Entry and Stay of Aliens and Asylum (2004) In addition to resettlement, during contains some provisions relevant to 2009-2011 France relocated 190 refugee resettlement, there is no spe- persons from Malta under the 2009 cific reference to resettlement in the pilot project on relocation and the national asylum law and no explicit 2010-11 EUREMA I programme.29 legal basis for resettlement in France. France does not participate in EUREMA The framework for the French reset- II. tlement is provided by a Framework Agreement between UNHCR and Resettlement Criteria the French Ministry of Foreign and European Affairs, signed in 2008. This Basic Criteria agreement sets out the structure for A refugee must have been recognised the national resettlement programme as such by UNHCR under Articles 6 and and stipulates that UNHCR will submit 7 of its mandate but not on a prima 100 dossier cases for consideration by facie basis. the French government each year. The Framework Agreement with UNHCR Criteria related to integration automatically renews each year. None

In addition to cases resettled under the agreement with UNHCR, France has also received resettled refugees 28 In contrast to the 2008 joint EU Action for refugees from Iraq, resettlement places for refugees ex- under a separate 2008 ad-hoc Libya were made available by Member States only within pre-agreed resettlement quotas - no new agreement with UNHCR known as resettlement places were created. See Chapter V for more information on the 2012 EU response for the ‘Irak 500’ programme. In 2008-9, refugees ex-Libya. 29 ‘EASO fact finding report on intra-EU relocation France resettled 1,200 Iraqis under activities from Malta’, July 2012. See Chapter V for

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European more information on EUREMA. violence and those with medicalviolence andthosewith needs. of asylum, vulnerable cases, victimsof tection prospects inthe first country absence oflocal integration andpro- paysService special attention to the within Decisionsareservices). normallytaken Foreign Affairs, OFPRAandsecurity other ministerial (Ministry services of final decisions inconsultation with sible for considering cases andmaking Ministry ofInterior, whichisrespon- missions to the Asylum ofthe Service missions. UNHCR forwards dossiersub- not carry outresettlement selection tlement onadossier basis,anddoes France onlyselects refugees for reset andSelection Identification within 2-6months ofapplication, and Refugee status isgenerally granted examined viaanaccelerated procedure. asylum claimsofresettled refugees are the assistance ofasocialworker. The plete anasylum application form with To doso, resettled refugees com- Refugees andStateless Persons (OFPRA). the National Office for theProtection of to formally lodge anasylum claimwith benefits. Resettled refugees are required work andreceive other related social for sixmonths, givingthem the right to are granted temporary leave to remain On arrival into France, resettled refugees &Citizenship Residency Refugee Status, Permanent 6 months, andthe Asylum -

alent to at least B1level proofof acommand ofFrench equiv history, culturesociety, and provide and demonstrate knowledgebasic of French Applicants for citizenshipmust also Rights andDutiesoftheFrench Citizen’. applicants must signthe‘Charter ofthe French Republic. After theinterview, support for principlesandvalues ofthe French society, notably by showing they must prove theirintegration into from thepréfecture through aninterview withanofficer their ‘assimilation’ granted. Applicants must demonstrate citizenship assoonrefugee status is Resettled refugees canapply for French renewed every 10years. term residence permitautomatically status, resettled refugees receive along- complicate. Uponthetransfer ofrefugee a lackofpermanent legal status can programmes andsocialbenefits, which speed uprefugee accessto integration acceleration ofthisprocedure soasto NGOs have consistently advocated for an not completed within6months. French is renewable iftheasylum procedure is the initialtemporary residence permit 32 31 30 from the language requirement. gration authorities.Persons over 65are exempted centres andmust present their certificate to immi- Applicants are testedpendent user’). by certified Common European Framework level B1 (‘inde each department. areas. There are 101préfectures inFrance, onefor work and residence permits for foreigners and other of the Interior, incharge ofidentity cards, passports, The préfecture isanadministration oftheMinistry Civil Code, Article21-4 30 France into French society 31 , duringwhich 32 oral French.

171 - -

CHAPTER VII CHAPTER VI 172

Family reunification Asylum Service which authorises the refugee’s departure. NGOs in charge Besides married partners, children up of reception and integration services to 19 and parents of children under 19, for resettled refugees, however, other eligible family members include receive very basic information about unmarried partners, if they have the those who are due to be resettled, same nationality as the applicant and and do not receive copies of RRFs or if the partnership was mentioned to associated documents submitted as OFPRA during the asylum procedure. 33 part of the dossier.

There is no requirement for refugees to How is information transferred for prove financial resources or access to specific needs (medical or other)? accommodation sufficient to meet the If a specific need is identified, including needs of incoming family members. a medical need, the Ministry of Interior and OFII contact NGOs in charge of the reception process to inform them of Resettlement in the type of accommodation required to Practice meet these needs, for example ground floor accommodation, access to an Linking Phases elevator, proximity to a hospital and so on. NGOs are responsible for locating How is information transferred suitable accommodation, in partnership between selection and reception of with regional and local authorities. refugees in order to prepare for their arrival? Pre-departure  Forwarding pertinent information from Refugee Referral Form (RRF) to There is no pre-departure CO pro- integration gramme. In 2009, IOM and FRC  Other: When a case is accepted for developed an information booklet resettlement, information related to about the resettlement programme the family composition, medical and and life in France. The booklet is given other specific needs of the resettled to some refugees resettled under the refugees is transferred by the Asylum national programme prior to their service of the Ministry of Interior departure, although in practice many to OFII. When suitable housing refugees do not receive the booklet. is located, OFII then informs the  Medical Exam: IOM 33 Married partners are not eligible if the marriage took place after the grant of refugee status or less  Travel arrangements: IOM

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European than a year before the grant. in Créteilin morewhile permanent a fewspend daysthe transitin centre resettledThose toParis, for example, short period after arrival. medium-term accommodation for a theincluding useoftemporary or approaches to reception, notably All programmes share somecommon grammes inother areas. waitingwhile to be transferred to pro- few days inthe Créteil transit centre in Paris term inthelong may spenda In somecases, refugees notdueto stay below) ontheir arrival into thecountry. grammes operating inFrance (see table five regional/local resettlement pro- OFII distributes refugees to oneofthe Reception Integration inPractice Paris Rhône-Alpes Lyon & Pau Besançon City/ re gion (FTDA) France Terre d’Asile (FRC) Forum Réfugiés-Cosi ISARD-COS Adoma Lead NGO them. InBesançon, long-term housingsolutionisfound for 6-month periods intheCPHuntil a Refugees can spend renewable and four singlepeople (instudios). capacity for 16families (inapartments) 20 places for resettled refugees, with In Pau, ISARD COS runsaCPHthat offers used to accommodate otherrefugees. accommodationcentre (CPH) immediately available,a temporaryin long-termwhom accommodationnot is that arriveforand notice minimal with dates somefamilies,mostly urgent cases achieving thisaim, FRC stillaccommo - increasinglyAlthough successfulin pendentdirectly housing arrival.on resettledrefugees long-termwith inde Réfugiés-Cosi(FRC) aimsto provide Terre d’Asile. InLyon, theNGO Forum accommodationlocatedis by France 35 34 20 placesinapartments to resettled managed Créteil transit centre. and accompany themto theFTDA- FTDA meet refugees at Paris airport upon their arrival inLyon. Forum Réfugiés-Cosi meet refugees arrival inPau. ISARD-COS meet refugees upontheir arrival inBesançon. Adoma meet refugees upon their Reception capacity by 20additionalplaces inthe Territoire de Belfort. In September 2013, Adomawill increase itsreception Centre Provisoire d’Hébergement France 35 Adomasupplies

34 173 also -

CHAPTER VII CHAPTER VI 174

Dossier selection

Dossier selection Information Arrival to one of the five regional/local resettlement (Asylum Service of the booklet (FRC programmes & transfer to a transit centre and/or to Ministry of Interior) & IOM) one of the temporary housing units

UNHCR Language and Placement in municipalities & Final decision Travel (IOM) submissions civic classes access to long-term housing

Approximately 6 months

refugees for a temporary period of 7 to Rhône department have committed 8 months. to supplying housing for 250 refugees in the Accelair programme each year. Placement policies Forum Réfugiés signs the lease for the first few months of the tenancy, which In France, the availability of permanent is later transferred to the refugee(s). housing for recognised refugees is scarce, and finding places for resettled In Paris, the Network for the Integration refugees is subsequently very chal- of Resettled Refugees (‘Réseau pour lenging. The placement of refugees is l’intégration des réinstallés’) project overseen by OFII, in cooperation with implemented by FTDA assists resettled the Asylum Service of the Ministry of refugees to find individual housing as the Interior, which consults on available soon as possible after their arrival. In places with reception facility oper- contrast to Accelair, the Réseau project ators as soon as refugees have been has a stock of temporary individual accepted for resettlement, and places housing units, both private and social, resettled refugees in one of the five where refugees can stay for renewable resettlement programmes according to six-month periods while waiting for availability. a long-term housing solution (See ‘Highlight’, below). Each programme provides resettled refugees with medium-term, tem- Integration Programme porary housing and assistance to find a permanent housing solution. In Lyon, Length: Variable. the Accelair programme implemented by a partnership led by FRC provides On arrival into France, all resettled re- refugees with individual housing tied fugees attend an interview with OFII, to a programme of integration support. during which their oral and written Since 2003, housing agencies of the French ability is tested. If the refugee’s Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European specific financial supportisprovided to role inthe integration process, andno Municipalities donotplay aformal medical coverage. financial payment andreceive global monthly Active Solidarity Income refugees are eligibleto access the As otherFrench citizens, resettled by theERF. funded by theMinistry ofInterior and find housing).NGO assistance ispartly employment (together withsupportto administrative processes, andfinding vidualised NGO assistance innavigating resettled refugees benefit from indi- regional resettlement programmes, to France, withineachofthecity/ programme for refugees resettled While there isnoseparate integration and thecivicclass. attendwill specifiedlanguage classes the French state confirming that they reception andintegration contract with the interview, refugees must signa State andinstitutions. At the endof isation andfunctioning ofthe French education system) andtheorgan- equality, fundamental freedoms, and French Republic (secularism,gender hours) focusing onthe values ofthe a singlecivicorientation class(6-7 refugees must attend ‘Living inFrance’, of 400hours offree French classes . All he/she isobliged to attend amaximum level of French is deemed insufficient, granted. 12 months after refugee status is the Accelairprogramme for the first Alpes are for eligible supportfrom department or inaCPHRhône- Refugees livinginthe Rhône population. for refugees asfor the general French with regard to providing social housing, and/or departments have specifictasks programmes runby NGOs. Regions provided for the reception and housing municipalities additionalto thefunding 36 http://www.forumrefugies.org/missions/    funding Persons resettledusing2012ERF Refugee Fund (ERF) Use oftheEuropean support for allrefugees. ugees within the broader framework of specific caseworker for resettled ref vices for refugees, andhasassigneda society organisations providing ser local andregional authoritiesandcivil by apartnership led by FRC withOFII,

principes-et-fonctionnement d-integration-des-refugies-accelair/ missions-aupres-des-refugies/programme- refugees sexual violence orexploitation -19 larly from psychological physical or Women andchildren at risk;particu- Unaccompanied minors – 3 refugees Protection Programme Persons resettled underaRegional 36 Theprogramme isdelivered France

175 - -

CHAPTER VII CHAPTER VI 176

 Persons with serious medical needs rental insurance to owners who are that can only be addressed through renting to a refugee). Integration resettlement – 7 refugees partnerships depending on location: with Alliance Française (French lan- Pledges made to resettle under ERF guage tuition), Secours Catholique specific categories for 2013 and Emmaus (charities working for  Persons resettled from a country improved housing conditions) or region designated for the implementation of a Regional Protection Funding: 50% ERF, 50% French Programme government.  Women and children at risk  Unaccompanied minors Since 2010, the project of a Network  Survivors of torture and violence for the Integration of Resettled  Persons with serious medical needs Refugees (Réseau pour l’intégration that can only be addressed through des réinstallés) has provided indi- resettlement vidualised integration support for  Persons in need of emergency reset- resettled refugees, including finding tlement or urgent resettlement for long-term housing as soon as pos- legal or physical protection needs sible after their arrival. The network has now a housing capacity of 77 Pledges made to resettle under ERF persons in 16 apartments located resettlement common EU priorities for in three departments (Paris, Val-de- 2013 Marne and Deux-Sèvres). France did not pledge to resettle under the 2013 common EU priorities. Accommodation is provided in public or private sector housing for an initial period of six months, HIGHLIGHT: Réseau pour renewable for a further six months. l’Intégration des Réinstallés – Landlords rent the apartments Network for the Integration of directly to FTDA, which is respon- Resettled Refugees – France Terre sible for paying the rent, utilities d’Asile (FTDA) and insurance and for dealing with all administrative procedures. Partners/actors: Led by FTDA, FTDA signs a one-year rental con- with OFII, PACT de Saint Denis (a tract with the refugee household. non-profit housing network), Inter Landlords can in theory agree to assurances (an insurance company rent the apartment directly to ref- that offers to finance one year of ugees, although very few have done Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European the third year ofitsoperation. The resettlement programme during plete ajoint assessment oftheFrench the two partieswould together com- ernment andUNHCR stipulated that tlement between theFrench gov The Framework Agreement on reset Evaluations housing. a quarter ofwhomare inprivate long-term housingsolution, around refugees supported have found families. 92%oftheresettled had supported 172persons in41 By 31December2012, theproject support period. out theirgoals andtargets for the individual integration plansetting worker withwhomthey agree an Each refugee assisted is by asocial access to intensive French courses. training andemployment, and long-term professional housing, access to socialrights, healthcare, groups, covering areas suchas individually and through working are provided withguidance both During the tenancy period,refugees accommodation costs. must beusedto contribute to income (excluding social welfare) so to date. 15%ofthe household’s - - programme. year to discussandreview theFrench working group onresettlement each ernment and UNHCR holdanannual yet been completed. TheFrench gov but, hasnot at thetimeofwriting, assessment was thusdue inmid-2012    Strengths: Challenges and Strengths

refugees. mination procedure for resettled further expediting theasylum deter refugees before theirdeparture and information booklet provided to early 2013, includingimproving the Resettlement Working Group in the programme duringthe last several commitments to improving The French government made health insurance. effective access to state welfare and resettled refugees withspeedy and The French programme provides for particularlyvulnerable refugees. tlement programme’s accessibility further strengthening thereset respect to integration potential, impose any stringent criteria with around theworld. France doesnot a wide range ofcountries ofasylum varied cases onadossierbasis,from gramme allows UNHCR to submit The French resettlement pro- France

177 - - -

CHAPTER VII CHAPTER VI 178

Challenges: New Developments

 A lack of available accommodation According to the Ministry of the for recognised refugees in France Interior, priorities for the resettlement has led to delays in the arrival of programme during 2013 are to clear resettled refugees into France. the 2010-2011 arrival backlog of  The lack of pre-departure CO infor- approximately 50 persons and to work mation provided to refugees has in with reception actors to improve com- some cases led to unrealistic expec- munication and cooperation. tations and confusion amongst refugees selected for resettlement, in particular about difficulties in finding housing. Resettled refugees can also find the repeated relaying of the basis for their asylum claim - to UNHCR at the registration and identification stage, and again post- arrival to NGO workers preparing asylum claim forms - distressing and unnecessarily intrusive. The need for an asylum determination procedure in France can also delay access to integration support, in particular to language classes in some cities/regions.  NGOs operating reception facilities and programmes often do not receive adequate information on special needs of refugees they are due to receive, in particular medical needs affecting housing. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 37 Resettlement numbers Cross, Diakonishes Werk, MunichRefugee Councilandother civilsociety actors. Migration andRefugees (BAMF), theFederal Foreign Office, Caritas, GermanRed Main national actors: Federal Ministry ofthe Interior, the Federal Office for Current quota: 300 Start ofad-hocorpilotprogramme: 2012 Resettlement quotaandactors The Germanresettlementprogrammeat aglance Year

     2011 2012 anticipated 2013 - 2009 2010

2012 data, published by Eurostat inMay2013 Germany at aglance Humanitarian Evacuation Programme (HEP). Thisgroup willbe granted temporary residence inGermany. During 2013, 5,000 Syrian refugees whohave fled to Lebanon are alsodue to arrive into Germany undera Positive decisions(refugee status andsubsidiaryprotection andhumanitarian grounds): 17 140 Total decisionsreached in2012:58645 Asylum applications total: 77540 (PPS=Purchasing Power Standard, basedonthe EU27average of100) GDP (per capita): 121PPS(available for 2011only) Population:

Arrivals 50 105 202 cases) medical 2501 (125 81 843743

37 As Nationality Iraqis Iraqis Iranians  Somalis, Eritrean, Ethiopian (ex-Libya) Tunisia; Iraqis  ylum of lar   Turkey (101);Iraqis, Somalis Syria, Jordan  Turkey andNorth ofIraq  Countr gest Turkey gr oups y of ( o Ethnic Christians Yazidi, Sunni, Shia Mandaeans, Christians, if ther

applicable) minorites and

179

CHAPTER VII CHAPTER VI 180

UNHCR Submission categories considered for resettlement

 Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable):

 Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement  Normal within 12 months between submission and resettlement

Germany’s Resettlement an annual resettlement quota of 300 Programme refugees for the period 2012-14 (900 refugees in total). Legal Basis & Background There is no explicit legal basis for the Germany has only recently become German refugee resettlement pro- involved in resettlement. In November gramme. In its absence, resettled 2008, Germany responded to an EU refugees are currently admitted onto plea to resettle up to 10,000 particu- German territory via Section 23 (2) of larly vulnerable Iraqi refugees.38 During the Residence Act, which enables the 2009, 2501 refugees from Iraq were Federal Government - in consultation resettled to Germany. with the governments of the individual Länder (regions/states) - to admit Three years later, in December 2011, groups of foreigners who are granted the Conference of the Ministers of temporary or permanent residence the Interior of the Federal States permits on arrival. Resettled refugees (Innenministerkonferenz) established are thus not admitted to Germany as refugees and are not granted refugee

38 See Chapter V for more information on the joint EU status when on German territory.

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European response for Iraqi refugees.     considered, namely: Special protection needsmay alsobe criteriathe primary for resettlement. Legal andphysical protection needs are Basic criteria Resettlement Criteria for Migration andRefugees (BAMF) on adossierbasis. The Federal Office Germany doesnot select refugees andSelection Identification selection process. to preserve family unitywithinthe Germany alsoconsiders the need      all ofthe following indicators: tlement selection process usingone or German society withinthe reset individual refugees to integrate into Germany considers the abilityof relatedCriteria to integration

single female headsofhouseholds. victims oftorture andtrauma; refugees withspecial medical needs; religiousincluding minorities; members ofpersecuted minorities, knowledge ofthe Germanlanguage. integration inGermany suchas or otherspecificfactors supporting family connections inGermany and/ religious affiliation; knowledge oflanguages; and work experience; experience; level ofeducation andprofessional - months. departure takes approximately 3-4 processing time from decision to or situation. In normalcircumstances, cific to theparticularrefugee group and can be lengthened by factors spe- subject to the organisation oftransport, Timescales for departure final are days ofthemission. a finaldecisionto betaken within14 collection ofbiometric data, enabling ration withthe Foreign Office) andthe security check procedures collabo (in - The selectioninterview alsofacilitates out by BAMF field representatives. 2 months, and interviews are carried selection missionstakes approximately approved caseload. The organisation of those refugees inthepre-selected nises 2-4 weeks ofreceiving them, andorga- submissions made by UNHCR within in Nuremberg examines resettlement residency. annual basisin order to maintain legal expiry, permitsmust be renewed on an ranging from 12months to 3years. On valid vary across the different Länder, periods duringwhichthese are permits permit on arrival in Germany. The rather granted temporary residence do notreceive refugee status butare As indicated above, resettled refugees &Citizenship Residency Refugee Status, Permanent selection to missions interview Germany 181

CHAPTER VII CHAPTER VI 182

After holding a residence permit for 5 self-supporting and must pass the nat- years, resettled refugees may apply for uralisation test, which consists of ques- permanent residency subject to their: tions relating to ‘living in a democracy’,  having a ‘secure livelihood’ and ‘history and responsibility’, ‘people and access to accommodation adequate society’ and questions about the Land for all members of their household; where the applicant lives. Applicants  having access to the state pension must also demonstrate B1 level (having paid contributions for at German language knowledge.39 least 60 months) or a comparable private scheme; The legal status of resettled refugees  posing no threat to public order or in Germany contrasts sharply with safety; and that of those formally recognised as  demonstrating adequate knowledge refugees via the domestic asylum proof the German language, legal and cedure. NGOs in Germany therefore social system by passing the final advocate that the German gov- tests of the orientation and B1 level ernment adopts legislation to ensure language courses (see ‘Integration that resettled refugees obtain refugee Programme’, below). status. Recognised refugees are generally granted 1-3 years temporary Applicants can be exempt from the residency, after which they can apply requirements if they are unable to for permanent residency – a routine complete them due to physical or process which will normally result in mental illness or disability. For coha- approval. biting spouses, it is sufficient for one person to satisfy the requirements in Recognised refugees are exempt from order for both to acquire permanent the language, social/legal knowledge residency. and social welfare requirements that apply to resettled refugees applying The requirements for acquiring German for permanent residency. Additionally, citizenship through naturalisation are recognised refugees naturalised as laid out in Section 10 of the Nationality German citizens can assume dual Act. Naturalisation typically requires German-country of origin nationality, eight years of legal and habitual whilst resettled refugees must sur- residence in Germany. However, render their original nationality in depending on the successful com- order to acquire German citizenship. pletion of integration programmes, it is Formal refugee status also means that possible to become naturalised within

six to seven years. Applicants must be 39 Common European Framework of Reference for

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Languages Family reunification Document for Foreigners. less widely-recognised GermanTravel who can instead applyfor themuch is notavailable to resettled refugees, litate travel outsideofGermany. This Convention Travel Document to faci- recognised refugees can request a 40 order to prepare for theirarrival? selection andreception ofrefugees in How isinformation transferred between Linking Phases Practice Resettlement in Unlike recognised refugees, exempt from these requirements. refugees andtheir family members are language test. By contrast, recognised must alsopassapre-entry German members, andthefamily members dation to meet theneedsoftheir family cient financialsupportandaccommo- they can independently provide suffi- groups. They must demonstrate that fication appliedto many other migrant with the general rulesoffamily reuni - to jointheminGermany must comply refugees applyingfor family members zenship for more details. on refugee status, permanent residency andciti- granted legal refugee status inGermany. Seesection as partoftheresettlement process, andare not Resettled refugees donotaccess asylum procedures 40 resettled   Pre-departure    A pre-travel medical examination Medical Exam: IOM future. selected for resettlement the in contracted to deliver CO to refugees Tunisia.Other organisations may be refugeesrefugeeShousha in campin guage tuition. Germanyin lan some basic and Germany,in naturalisation housing, the legal status ofresettled refugees German life, federal government, covers generalinformation about ficationprocesses. Course content migrantslabour orviafamily reuni topermission enter Germany as deliveredTurkey in forwith those course that Diakoniepreviously forYour Arrivingin New Homeland’ course replicates the‘Preparation resettlement outofTurkey. This day course for refugees awaiting The NGODiakonie pre-departure cultural orientation. 2012-14 incorporates more extensive programmeGerman pilot for Cultural Orientation: during Cultural Orientation (CO) Sharing ofinformation gathered integration actors from Refugee Referral Form (RRF)to Forwarding pertinent information through missionsordossiers Briefing stakeholders after selection IOM providedCO to Germany provides a4-5 The new 183 - -

CHAPTER VII CHAPTER VI 184

is carried out for all refugees by where they stay for a period of up IOM after selection interviews have to 14 days. The reception centre in been completed and prior to final Friedland is operated by the Lower resettlement decisions being made. Saxony Ministry of Internal Affairs & The medical examination screens Sports, and refugees staying there are for communicable diseases, and provided with an initial orientation provides additional information programme (‘Welcome to Germany’). on individual health condition and The 5-day course includes language needs that do not constitute the tuition and practical information about primary reason for resettlement but living in Germany. NGOs provide advice for which individuals might require and counselling for refugees in the eve- specific support and assistance nings and recreational and educational post-arrival. activities for refugee children and young people.  Travel arrangements: IOM IOM organises travel to Germany Refugees move directly from the in collaboration with the BAMF, reception centre to the municipality in groups and on chartered or they have been allocated to by their scheduled flights receiving Land. For 2012 arrivals, only those refugees allocated to the Länder of Hessen and Hamburg, did not pass Integration in Practice through Friedland but were received directly in these regions. Reception Placement policies Upon arrival into Germany, refugees are welcome by representatives from In December 2011, the Standing BAMF. The vast majority of resettled Conference of the Interior Ministers refugees are taken to a reception of the Länder (LMK) unanimously centre in Friedland near Hanover, agreed federal participation in the

In-country selection

Selection Pre-departure CO 5-day CO programme Distribution to a Land. mission (Diakonie, IOM and during stay at the National integration (BAMF) others) Friedland reception centre programme (600-900 hours), varied integration UNHCR Final decision Pre-departure health support depending on submissions (BAMF) checks & travel (IOM) Land

3-4 months Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European internal distribution of refugees to Individual Länder determine the the formula. account in the future, together with to certain Länder may betaken into account. Family linkslinks andother Germany from beingfullytaken into to where they would like to live in prevent the wishes ofrefugees as The useofaformula does, however, or two refugees within a single Land. families andthe placement ofjust one thus preventing boththesplitting of to the annualquota of300persons, gramme, theformula isinstead applied arrival group. Withinthenew pro- formula was appliedto eachindividual 2009-10, thenational distribution refugees arrived frequently during gramme, inwhichlarge groups of Within theIraqi resettlement pro- within the allocation process. commitment to prioritisethese factors process, althoughthere isnospecific also be includedinthe allocation or othertieswithaspecificLandmay budgetary situations. Refugees’ family key Land (state/region) usingadistribution cates groups ofrefugees to aspecific toPrior their arrival, theBAMF allo- fugees to aLand. poses an allocation of resettled re- from third countries. TheBAMF pro- resettlement ofvulnerable refugees basedonstates’ populations and

lunteers have been active inassisting although some do.Local NGOs andvo- facilities to findindependent housing, refugees accommodated these in obligation for to municipalities assist after they arrive.(‘Lager’) There isno communal accommodation facilities modate resettled refugees in large landlords. Somemunicipalitiesaccom- leased from private companies and/or within thestock that they own, or arranged by the municipalityfrom within the same Land. Housingis between individualmunicipalities refugees vary across Länder and Local approaches to housingresettled move to anew location. who findemployment are thusable to this supportto continue. Onlythose their assigned cityormunicipalityfor welfare must andhousing remain in fugees whoare reliant onsocial (Arbeitslosengeld II).Resettled re- meet housingandsubsistence needs receive socialwelfare payments to In Germany, resettled refugees generally between oneandfour weeks. varies from Landto Land, althoughis arrivals provided to municipalities nities already exist. Notice ofrefugee larger towns where refugee commu- jective criteria, for example favouring others baseallocation onmore sub- employed onthe federal level, while a similardistribution formula asthat cities andmunicipalities.Someuse Germany 185

CHAPTER VII CHAPTER VI 186

refugees in this situation, although at the start of each course module. many refugees remain in larger accom- Those unable to pay can apply to the modation facilities for several months BAMF to be exempt, and applications after they arrive. from resettled refugees are generally accepted. Integration services & support The course has 2 components – 600 Length: Various (federal system) hours of German language tuition and a 60-hour orientation course, There is no national standard inte- both delivered together over a 2-year gration programme formulated specifi- period. The language course focuses cally for resettled refugees in Germany. on aspects of everyday life, including Together with other migrants with shopping, housing, childcare, media, German residence permits, resettled looking for work and further edu- refugees are entitled to attend cation. The orientation course focuses the national German Integration on German history and culture, the Course. Attendance is obligatory for German legal system, social values all those who are unable to make (including freedom of worship and themselves adequately understood equal rights) and rights and obligations in German. When issuing residence in Germany. permits, the local immigration office (‘Ausländerbehörde’) will determine Attendance at the German Integration if an individual’s language skills mean Course is solely on a full-time basis, he/she will be obliged to attend the save for exceptional circumstances course. such as employment or caring responsibilities. There is an intermediate lan- The BAMF develops content for the guage test at the end of Year 1, and a Integration Course and commissions final integration test after two years. different organisations across Germany Those who have completed their 600 to deliver it. Those eligible to attend hours of language tuition but who do can access a specific web-based not achieve Level B1 in the language directory to find integration course pro- test can apply to repeat 300 hours of viders in their local area, and to select language tuition, free of charge. the provider of their choice. Together with other migrants, resettled refugees The role of NGOs and civil society must pay a contribution toward the organisations in assisting resettled re- costs of the course – generally € 1.20 fugees varies considerably across Länder a lesson, with € 120 of the fee payable and between individual municipalities. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 41 the In many volunteers municipalities, from migrants. programmes for refugees other and for resettled refugees theirwider within and nationalpalities, as DiakonieNGOs such resettledrefugees. Inmany munici the workand volunteers of assisting to coordinate receptionarrangements atposition Refugee theMunich Council the In Munich,cityapart-timefunds refugees avarietyin different of ways. German cities -are activeassisting in involvementrefugee in resettlement in campaign tofor support build and local Germany’, 2013 Me campaign to promote refugee resettlement in Says Yes! Reflections onthe experiences oftheSave International Catholic Migration Commission‘A City ‘Save Me’ campaign Caritas providesupport adviceand Save Meactivists fromdifferent cities demonstrate inBerlinwith5,000 lifebuoys/Save MeBerlin -agrassroots 41 -

Refugee Fund (ERF) Use oftheEuropean     funding: Persons resettledusing2012ERF

CHAPTER VII CHAPTER VI 188

Pledges made to resettle under ERF Evaluations resettlement common EU priorities for 2013 An evaluation of the 2009-10 reset-  Persons resettled from a country tlement of 86 Iraqi refugees in the or region designated for the imple- Schleswig-Holstein region of Germany mentation of a Regional Protection was published in 2011. The results Programme showed a strong movement of refugees  Women and children at risk from the smaller municipalities to  Unaccompanied minors which they had initially been resettled,  Survivors of torture and violence mainly to bigger cities within the same  Persons with serious medical needs Land or to other Länder, in order to join that can only be addressed through family members, be closer to specialist resettlement medical care or be in an area with  Persons in need of emergency reset- greater job opportunities. Only one tlement or urgent resettlement for refugee had found employment within legal or physical protection needs the two years following arrival, and poor employment outcomes were linked to Pledges made to resettle under ERF lack of knowledge of the German lan- resettlement common EU priorities guage, age and/or poor health. Positive for 2013 integration outcomes were found for  Congolese refugees in the Great children attending school, who were Lakes Region proficient in German within one year  Refugees from Iraq in Turkey, Syria, of arrival and had formed friendships Lebanon, Jordan with German children in their class. - 100 accepted in 2012  Afghan refugees in Turkey, Pakistan, Iran Strengths and  Somali refugees in Ethiopia Challenges  Burmese refugees in Bangladesh, Malaysia and Thailand At the time of writing, the pilot German  Eritrean refugees in Eastern Sudan resettlement programme has only been operational for a short period, and its strengths and the challenges it faces are thus usefully assessed in that context. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European   Strengths:   Challenges:

German a guaranteed number ofhours of enables resettled refugees to access A national integration programme between selectionanddeparture. allowing fortimescales short and selection of resettled refugees, lined process for theidentification BAMF hasintroduced astream- the country post-arrival. problems inmoving to otherparts of pality,resettled refugees experience dence intheresettlement munici- assistance are linked to ongoing resi- Because socialbenefits andhousing dual citizenship. fication, permanent residency and refugees intheareas offamily reuni- vantaged inrelation to recognised refugees are thussignificantly disad- refugee status inGermany. Resettled not grant resettled refugees formal The current legal framework does language tuition .

conflict there hasbeenresolved. refugees willreturn to Syria whenthe status, withtheexpectation that those arrivingatemporary residence Syrian refugees. Theprogramme grants grant In March 2013, Germany agreed to annual quota willbeintroduced. specifically ifacontinuing orlarger gramme willdevelop after 2014, and how the Germanresettlement pro- At itisstill thetimeofwriting, unknown New Developments humanitarian admission Germany to 5,000 189

CHAPTER VII CHAPTER VI Iceland at a glance

 Population: 319 575  GDP (per capita): 111 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 105  Total decisions reached in 2012: 50  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 17 total (16 recognised refugees, 1 humanitarian protection)

2012 data, published by Eurostat in May 2013

The Icelandic resettlement programme at a glance Resettlement quota and actors Start of annual quota: 1996 Current quota: Quota currently under revision. In 2012 Iceland received 9 resettled refugees. Main national actors: Icelandic Refugee Committee - comprising Ministry of Welfare, Ministry of the Interior, Ministry of Foreign Affairs, Icelandic Red Cross; municipalities.

Resettlement numbers

Nationality  Country of Asylum of Year Accepted Arrivals largest groups

2013 - - -

2012 9 9 AfghansIran 2011 0 0

2010 6 Colombians  Ecuador

2008 29 Palestinians (ex-Iraq)  Al Waleed camp (Syria) Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 191

UNHCR Submission categories considered for resettlement

 Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)

 Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement  Normal within 12 months between submission and resettlement

Iceland’s Resettlement Individuals are recognised as refugees Programme via the legal provisions set out in Article 51 of the Act on Foreigners. Article 48 Legal Basis of the same Act provides for the issue of a travel document to refugees. Article 51 of the Icelandic Act on Foreigners 96/2002 provides that the Resettlement Criteria Icelandic Directorate of Immigration may authorise groups of refugees to Basic criteria enter Iceland in accordance with a A resettled refugee must be re- decision by the government acting on cognised as such according to the 1951 a proposal from the Icelandic Refugee Convention on Refugee Status. Committee. The Committee is a consul- tative body with membership from the Criteria related to integration

Ministries of Welfare, Foreign Affairs None. CHAPTER VI and Interior, and the Icelandic Red Cross. The Committee is responsible for Identification and Selection the selection of resettled refugees, but the Directorate of Immigration takes all The Icelandic Refugee Committee final resettlement decisions. receives resettlement submissions CHAPTER VII 192

from UNHCR and selects cases to be After 5 years of continuous residency, interviewed during selection mis- refugees in Iceland may apply for sions. Selection missions are led by Icelandic citizenship. Applicants must the Ministry of Welfare, with rep- demonstrate a minimum A2 level profi- resentation from the Directorate of ciency43 in the Icelandic language. Immigration and the Icelandic Red Cross. In 2008, processing time from Family reunification submission to departure for refugees selected during selection missions was Besides married partners, children 3-4 months.42 under 18 and parents of children under 18, other family members who In light of the financial crisis affecting are eligible for family reunification are Iceland (and many European countries) unmarried partners, including same- from 2008-9, in 2010 and 2012, Iceland sex partners, if the relationship has selected refugees on a dossier basis existed for at least 2 years. Refugees so as to remove costs associated with are not obliged to provide proof of selection missions, which were felt to income or accommodation sufficient be unjustified given the small numbers to meet the needs of incoming family of refugees due to be resettled. members. The Refugee Committee conducted selection interviews via skype for the dossier caseload in 2012. Resettlement in Practice Refugee Status, Permanent Residency & Citizenship Linking Phases

On arrival into Iceland, resettled re- How is information transferred fugees are granted full refugee status between selection and reception of and receive a temporary residence refugees in order to prepare for their card valid for 4 years. After this period, arrival? refugees who have completed 250  Forwarding pertinent information hours of Icelandic language lessons from Refugee Referral Form (RRF) may apply for permanent residence. to integration actors. Resettled refugees are asked to sign a letter that 42 On April 17th, 2008 it was agreed by the refugee gives permission for information on committee to suggest to the government to invite 30 refugees from Palestine to Iceland. The memo RRFs to be shared ahead of their went to the Minister of Social Affairs and Foreign Affairs on May 5th. The RRF files arrive after that period and on June 6th, the selection mission went to Al-Waleed. The resettled refugee group arrived in 43 Common European Framework of Reference for

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Iceland on September 8th. Languages     Pre-departure Dossier selection submissions In-country selection

receive. individual children they are dueto and specificinformation onthe of theincoming refugee group, information aboutthe background children are provided withgeneral kindergartens that receive resettled Other: Employees ofschoolsand on medical needs. to them. Thisincludes information arrival withsocialworkers assigned Travel arrangements: IOM Medical Exam: IOM of Welfare. the IcelandicRed Cross andMinistry printed CO materials developed by UNHCR provided refugees with For the 2010and2012programmes, tlement duringselection missions. CO for refugees selected for reset of Welfare provided pre-departure Icelandic Red Cross andMinistry Cultural Orientation: Pre-2010, the UNHCR Welfare, Directorate of Immigration Selection ofcases onadossier Icelandic Refugee Committee) basis (Ministry ofWelfare, Selection missions (Ministry of Selection missions(Ministry of and IcelandicRed Cross) Final decision Final decision (Ministry of (Ministry of 3-4 months Interior) decision Final - CO (IcelandicRed Cross Cross & Ministry Cross &Ministry & Ministry ofWelfare) 1-week pre-departure (Icelandic Red (Icelandic Red CO materials CO materials the Ministry ofWelfare. resettlement project manager basedin receive anintroduction briefing by a directly to the municipality. Refugees municipality, whoaccompany them the at the airportby representatives of Refugees are welcomed onarrival Reception Integration inPractice in the samemunicipality. Since the arrival group ofrefugees isplaced provision ofintegration Each services. receivemunicipality will to enablethe lating thefinancialresources that the with the Ministry of Welfare stipu- they doso, they sign anagreement decide to receive refugees -should placement. Municipalities voluntarily tacts local municipalities andproposes Icelandic Refugee Committee con- toPrior refugees’ arrival, the Placement policies Icelandic Red Cross andreceiving health checks & health checks & Pre-departure travel (IOM) health checks & Pre-departure travel (IOM) Iceland Arrival &direct municipalities reception in

programme integration 1-year 193

CHAPTER VII CHAPTER VI 194

resettlement programme began, 11 of include both classroom lessons and the 74 Icelandic municipalities have individual private lessons, and are pro- agreed to receive resettled refugees. vided for an initial period of 6 months. Classroom learning provision during Integration services & support this initial period is three hours per day, for four days per week. Length: 1 year The Icelandic Red Cross is contracted Municipalities and the Icelandic Red by the Ministry of Welfare to provide Cross are responsible for implementing a range of services and functions the integration programme for within the resettlement programme, resettled refugees during the first 12 largely delivered by local branches in months after arrival. The programme receiving municipalities. These include is overseen and coordinated by the furnishing accommodation, meeting Icelandic Refugee Committee. refugees at the airport on arrival, coordinating volunteers and conducting Housing for resettled refugees is pro- evaluation interviews with refugees at vided by the receiving municipality, programmed intervals during the first generally in the form of an apartment 18 months after arrival. Local branches furnished by the Icelandic Red Cross also provide general assistance, act as as part of a broader contract with the advocates for refugees in exchanges Ministry of Welfare (see below). In with local service providers and addition to housing, municipalities organise activities to encourage social are responsible for language courses, integration and inclusion. The latter financial support, psychological includes the ‘local support families’ assessment and social counselling pro- initiative (see ‘Integration in Focus’, vided during the first 12 months. below) that forms a fundamental part of the Icelandic reception and inte- Financial support, also for the first 12 gration system for resettled refugees. months, is set at a level determined as adequate for health and general INTEGRATION IN FOCUS: Local Support living expenses by social services in Families - Icelandic Red Cross the receiving municipality. This support The ‘Local Support Families’ initiative ceases after 12 months, and resettled is implemented by the Icelandic Red refugees are then eligible to receive Cross (IRC) in all municipalities that the same level of financial assistance as receive resettled refugees. The local other Icelandic residents with similar/ IRC branch recruits local people as the same needs. Language courses volunteer ‘friends’ or ‘families’ to Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European of origin.Interviews alsoprovide family andfriendsintheir country Red Cross supportfamilies and/or refugees are incontact withIcelanders, into school, plansfor thefuture andif progressing, how children are settling in Iceland, how language-learning is individual refugees feel about living resettlement to Iceland,including how explore many individual aspects of 24 months after arrival. Interviews and the final interview approximately months, another at twelve months, adult resettled to Iceland-one at six three evaluation interviews witheach by theMinistry ofWelfare to conduct The Evaluations refugees. amongst local peopleandresettled friendship andunderstanding gration andsettlement andbuild prevent socialisolation, aidinte own age. Theprogramme aimsto matched withvolunteers oftheir and young people are specifically or friends, andrefugee children provided with3-5supportfamilies activities.Eachand social refugee is holidays andaccessingsporting for groceries, understanding local by findingthebest placesto shop munity after arrival, for example themselves into theirlocal com- assist resettled refugees to orient Icelandic Red Cross iscontracted - not madeavailable to the wider public. nally by theMinistry ofWelfare andare evaluation process are reported inter programme itself. The outcomes ofthe on the usefulness oftheresettlement opportunities for refugees to comment   Strengths: Challenges and Strengths  Challenges:

The Committee). refugees (viatheIcelandicRefugee role intheselectionofresettled Icelandic Red Cross, hasaformal programme inwhichanNGO, the gramme istheonlyEuropean The Icelandicresettlement pro- and local communities. NGOs, central andlocal government amongst allstakeholders, including is characterised by closecooperation European countries, theprogramme refugees by comparison to other receives smallnumbers ofresettled Although the Icelandicprogramme or for the general public. selves, refugees resettled to Iceland amongst theorganisations them- programme are notalways clear tions involved inthe resettlement roles ofthedifferent organisa- Iceland

195 -

CHAPTER VII CHAPTER VI 196

 The Icelandic population is very small, and appropriate interpreters are not always available in the municipalities that receive resettled refugees.

New Developments

In 2013, a new Project Manager post has been created within the Ministry of Welfare to coordinate the resettlement programme. The postholder will also work with on programmes for refugees granted protection in Iceland through the asylum system. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 197

Ireland at a glance

 Population: 4,582,769  GDP (per capita): 129 PPS (available for 2011 only) (PPS=Purchasing Power Standard, based on the EU 27 average of 100)  Asylum applications total: 955 (2012)  Positive decisions (including refugee status and subsidiary protection): 95

2012 data, published by Eurostat in May 2013

The Irish resettlement programme at a glance Resettlement quota and main actors Start of ad-hoc or pilot programme: 1998 Current quota: 200 Main national actors: Office for the Promotion of Migrant Integration (OPMI) in the Ministry for Justice and Equality, Ministry of Foreign Affairs and Trade, Garda Siochána (Police), Garda National Immigration Bureau, municipalities.

Resettlement numbers

Nationality  Country Ethnic and other Year Arrivals of Asylum minorities (if applicable) of largest groups 2013 80 anticipated

2012 49 DR Congolese (20)  Bembe Tanzania;

2011 45 Sudanese (23)  Uganda; CHAPTER VI Iraqi (6); Ethiopian (6)

2010 20 Burmese (3)  Thailand Karen

2009 192 Burmese (82)  Bangladesh; Rohingya, Bembe DR Congolese (84)  Tanzania; CHAPTER VII 198

UNHCR Submission categories considered for resettlement –

 Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement - 4 urgent medical cases  Normal within 12 months between submission and resettlement

Ireland’s Resettlement Resettlement Criteria Programme Basic criteria Legal Basis & Background  The primary applicant and all family members included in the application Section 24 of the 1996 Refugee Act satisfy the definition of ‘programme is the legal basis for resettlement refugee’ set out in the legislation. in Ireland. It defines a ‘programme  UNHCR must verify that the primary refugee’ (a refugee resettled to applicant and all family members Ireland) as a person to whom leave to included in the application have a enter and remain has been given by the genuine need for resettlement. government for temporary protection  The exclusion criteria of the 1951 or resettlement as part of a group of UN Convention relating to the persons. Programme refugees have the Status of Refugees must not apply same rights and entitlements as other to the primary applicant or any refugees, set out in Section 3 of the family members included in the Refugee Act. application. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European elders for resettlement. panied children or unaccompanied Ireland doesnotaccept unaccom -  departments andnational service Where required, relevant government refuge ofthepersons to be resettled. annual basisthecountry of origin/ and Trade andUNHCR, decides onan with theMinister for Foreign Affairs Justice andEquality, inconsultation mended byTheMinister UNHCR. for carry outselection missions, asrecom - caseloads accepted, Ireland doesnot Since2008, duetoUNHCR. the smaller Ireland considers cases submitted by andSelection Identification the resettlement selectionprocess. applicant andfamily members, within the spoken language oftheprimary and theavailability ofinterpreters in vices required by specialneeds cases nities, suchastheabilityto provide ser integration capacity oflocal commu- The Irishgovernment considers the relatedCriteria to integration

relationship. a family member oroftheirstated identity applicant ofthe primary or concerns regarding thedeclared security, orwhere there are serious health, publicorder or national is deemed to be athreat to national member may beexcluded ifhe/she applicantThe primary orafamily - consideration. when medical cases are submitted for ExecutiveHealth Service isconsulted selection process. For example, the providers are consulted duringthe migrant groups. of citizenship applicants from other than the 5years residency required Ireland, asignificantly shorter period citizenship after 3years ofresidency in Programme refugees may applyfor arrival andmust berenewed annually. one year isissuedto allrefugees upon A status through theasylum system. tlements aspersons granted refugee carrieswhich the samerights andenti- granted ‘programme refugee’ status, Refugees resettled inIreland are &Citizenship Residency Refugee Status, Permanent children, award orguardian ofthe parents, siblings, children or grand- discretion to admit parents orgrand- are notmarried. There isMinisterial and children under18years ofage who A member of thefamily isaspouse, asylum under theGeneva Convention. and conditionspersonsas a granted their family underthesame terms family reunification for amemberof A resettled refugee may apply for Family reunification Certificate ofRegistration valid for Ireland

199

CHAPTER VII CHAPTER VI 200

applicant who is dependent on the Office for the Promotion of Migrant refugee or is suffering from a mental Integration (OPMI) in the Ministry or physical disability to such an extent for Justice and Equality, which that is not reasonable for him or her to passes case profiles, background maintain themselves fully. information on the specific refugee situation and a broad overview of special needs amongst the refugee Resettlement in group to local actors in the receiving Practice municipality. Medical and other professionals in the reception centre Linking Phases pass information through their own networks to local practitioners. How is information transferred between selection and reception of  Sharing of information gathered refugees in order to prepare for their during Cultural Orientation (CO) arrival? Refugees receive a post-arrival CO programme in the reception centre  Briefing stakeholders after (see ‘Reception’, below) comprising selection through missions or dos- 8-12 weeks of language and ori- siers selection entation courses delivered by the During the selection phase, a profile Education and Training Boards of the group due to arrive is com- (ETBs). As part of this work, the ETB piled, including information about develops educational profiles of all individual families and the history participants and passes these to of the conflict that led to the par- local education professionals. ticular refugee situation. This information is shared with the national  Special Needs Resettlement Inter-Departmental The OPMI passes all information with Working Group led by the OPMI and regard to special needs to relevant with the local service providers and service providers, generally pre- support agencies. arrival. Where cases are accepted on the basis of medical needs, special  Forwarding pertinent information arrangements are made by the from Refugee Referral Form (RRF) OPMI in advance of arrival to ensure to integration actors that prompt pre-arrival assessments The resettlement programme is and urgent treatment are provided. coordinated at a national level by the Resettlement Unit of the Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Pre-departure for aperiodof8-12 weeks before they accommodated inareception centre All resettled refugees are initially Reception Integration inPractice    Dossier selection

region. by theclosest Irishembassy the in Justice andEquality andare issued (INIS) ofthe DepartmentService of Naturalisation andImmigration visas are processed by theIrish in-transit assistance. Irish entry IOM organise flights, exit visasand behalf oftheIrishgovernment. selected for resettlement on travel documents for refugees Travel arrangements: ICRC issues and ‘fit-to-fly’ examinations). Medical Exam: IOM (healthscreening do notreceive pre-departure CO. selected onadossier basisonly, and Cultural Orientation: cases are submissions UNHCR UNHCR Dossier selection Dossier selection Final decision Travel (ICRC, IOM, INIS) home. gather information abouttheir new the opportunityto ask questions and resident in the centre. This gives them their future resettlement town while of the Capital, they are taken to visit refugees are being resettled outside resettlement andlife inIreland. Where centre to exchange theirexperiences of during their stay inthereception the opportunityto visitthenew arrivals Previously resettled refugees may have civic andlanguage courses. by theETBandcomprising cultural, post-arrival CO programme, delivered arrivals are provided withan8-12week municipalities. Duringthistime, new travel to more permanent housingin employment opportunities, the OPMI availability and future of services of criteria, includingpopulation size, for resettlement. Usingabroad range oversee post-arrival arrangements and Integration (IDWG) to plan and Working Group onResettlement The OPMIchairs anInter-Departmental Placement policies & 8-12-week post reception centre arrival CO (ETB) Arrival to Placement in municipalities & Placement inmunicipalities& access to the 2-year Engligh language andsocialisation Ireland programme (ETBs)

201

CHAPTER VII CHAPTER VI 202

selects the resettlement location. One OPMI aims to promote better long-term of the key features of the resettlement integration by allocating one arrival programme is the establishment of group of the same national, ethnic a local Resettlement Inter-Agency and/or cultural background at a time Working Group in the receiving munici- to a local community. Generally, Irish pality, mirroring the structure of the municipalities receive just one arrival national Working Group, to coordinate group each, although second and third the planning and operation of the local resettlements have exceptionally taken resettlement programme. The Chair place in the same community in cases of the Working Group also acts as the where refugees from the same country point of local contact with the OPMI in of origin or with a common language both the pre and post-arrival phases of are being resettled. the programme. When selecting a receiving community, The OPMI provides municipalities OPMI considers if all services required with funding for an interpreter for the by new arrivals will be available to initial period after refugees’ arrival. them. Serious medical cases are gen- Where resettlement is taking place erally placed in a city close to a hos- in a small community, funding is pital, and individual cases are also provided by the OPMI for a full/part usually resettled in a city where they time Resettlement Support Worker. can develop links with other commu- In addition funding may also be pro- nities from their region. Persons with vided for a full/part time Intercultural special needs are placed as close as Worker who can act as an intercultural possible to the service(s) they require, and language interpreter where the while persons admitted as part of a resettled group is considered to be group of five or more families are gen- particularly vulnerable. erally placed in a town outside of the capital. Receiving municipalities are generally smaller towns with populations of Integration services & support 4-10,000 people. Placement is also driven by the Irish government’s Length: up to 18 months belief that smaller communities can offer a better welcome and support to Components: Following the cultural, resettled refugees. To date, refugees civic and language course provided have been resettled in 18 different during the first 8-12 weeks in the towns and cities, 17 of which are reception centre, and the subsequent outside the capital city Dublin. The move to municipalities, integration Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European local level. to initiate organisational change at a issues for the particularindividualand agency working group to resolve the tance ofthe local resettlement inter- support worker may seek the assis- provision,service the resettlement Where issues arise withregard to bility for managingtheirown affairs. refugee can gradually take responsi- the capacity ofthe refugee sothat the act onbehalf of, butrather to build support worker isencouraged notto vices appropriately. The resettlement and ensures that they receive ser to negotiate providers withservice support worker assists therefugees advice, information andsupport.The their central point ofcontact for support worker whofunctionsas assigned to aspecific resettlement post arrival, resettled refugees are During thefirst 12–18months forums developed by municipalities. strategies, andsupportnetworks and addition to anti-racism anddiversity Intercultural andDiversity Office in including the setting upofthe Racial, the Garda (Police) Diversity Strategy, Strategy, Intercultural HealthStrategy, such astheIntercultural Education are delivered vianational initiatives These programmes and measures and third-country nationals inIreland. wider provision for other refugees refugees are mainstreamed into andsupportforservices resettled - contracts withprivate landlords to palities have made useoflong-term others, notably Carlow County, munici- housing for theintervening period.In social housingandprovided temporary ugees onmainstream waiting lists for cipalities have placed resettled ref or local private landlords. Somemuni- dation owned by the municipalityand/ resettled refugees isrented accommo- localities, general butin housingfor Arrangements for housingvary across from the ETB. up offers ofother types ofprovision obligated to attend ETBclasses or take children. Resettled refugees are not tuition for families with pre-school age guage, andhome-based, one-to-one for those notliterate intheirfirst lan- provided specialist language tuition within it. For example, some ETBshave group andofthe individualadults to theoverall needs ofthe specific vision for resettled refugees according Ireland. Local ETBsshapetheirpro- cation, incitiesandcounties across mentssecondaryand edu- primary of education andtraining, andsomeele cation authorities responsible for adult (ETBs), anetwork of16publicedu- vided by Education andTraining Boards Programme’. Theprogramme ispro- the national ‘ ‘socialisation’ (cultural orientation) via gramme ofEnglishlanguage tuitionand refugees are entitled to a2-year pro - As otherrefugees inIreland, resettled Refugee &Socialisation Ireland

- -

CHAPTER VII CHAPTER VI 204

which resettled refugees could effec- in resettlement, including for example tively be added as a third party after technical assistance to municipalities to their arrival. complete applications for ERF funding.

Resettled refugees are eligible for In most municipalities, support for long- the same welfare assistance as Irish term integration is mainstreamed into citizens. Welfare payments include service provision for the general popu- financial assistance to cover daily living lation, with emphasis placed on enabling costs while seeking employment, spe- refugees to become self-sufficient. cific assistance for those with disabil- In Kilkenny, for example, the munici- ities and/or illnesses, child benefit and pality established a permanent local assistance with rental costs. Ongoing Integration Forum and invited contribu- eligibility for welfare assistance does tions from the local community, service not depend on attendance at language providers and the Sudanese Association or social orientation classes provided formed by resettled refugees. by the ETB.

Several municipalities have imple- Use of the European mented specific integration initiatives Refugee Fund (ERF) designed to increase mutual understanding between resettled refugees Persons resettled using 2012 ERF and wider local communities. These funding have included programmes such as  Persons resettled under a Regional befriending schemes, after-schools Protection Programme clubs, sports activities and art exhibi-  Unaccompanied minors tions and recruitment of local people  Women and children at risk; particu- as volunteer mentors, to encourage larly from psychological physical or participation at a local level. sexual violence or exploitation  Persons with serious medical needs Based on the needs of each group, that can only be addressed through several municipalities have extended resettlement the initial one-year period of specific integration support to 2 or 3 years. Pledges made to resettle under ERF These extensions have been funded specific categories for 2013 by the European Refugee Fund (ERF),  Persons resettled from a country co-financed by the OPMI. The OPMI or region designated for the imple- continues to provide mentoring mentation of a Regional Protection support to local communities involved Programme Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European report madeseveral recommendations of Labour in Finland. The final project Refugee Fundandledby the Ministry tional project funded by the European      44 participation inMOST in 2008the framework ofIreland’s out. One evaluation was completed tlement programme have been carried Several evaluations oftheIrishreset Evaluations       2013 resettlement commonEUprioritiesfor Pledges madeto resettleunderERF

legal orphysical protection needs tlement orurgentresettlement for Persons inneed ofemergency reset resettlement that can onlybeaddressed through Persons with serious medical needs Survivors oftorture andviolence Unaccompanied minors Women andchildren at risk to the Resettlement &Reception ofRefugees Modelling ofOrientation, &Training Services related Eritrean refugees inEastern Sudan Malaysia andThailand Burmese refugees inBangladesh, Somali refugees inEthiopia Iran Afghan refugees inTurkey, Pakistan, Lebanon, Jordan Refugees from Iraq inTurkey, Syria, Lakes Region Congolese refugees intheGreat 44 , atransna- - - Rohingya Resettlement Programme a ‘systematic assessment ofthe Carlow Council Development Board to provide 2011, was commissioned by Carlow Another evaluation, completed in long-term integration. befriending and sportsinitiatives for lighted thepositive impactofmentoring, since been implemented, andhigh- for pre-departure orientation that have 45  Strengths: &Challenges Strengths challenges for olderrefugee teenagers. larly for andspecific healthservices) equate interpreting resources (particu- refugees’ integration, includinginad- factors that presented challenges for media. Interviews alsohighlighted and thepositive engagement oflocal nerships, volunteering andbefriending programme includingstrong local part highlighted successful aspectsofthe refugees andlocalproviders service In-depth interviews withresettled

approach ensures existing local in theresettlement process. This providers andotherstakeholders Working Group comprising service of alocal Resettlement Inter-Agency the OPMIsupportsthe establishment Ahead ofresettled refugees’ arrival Evaluation 2010, 2011 Titley, ACarlow Rohingya Resettlement Programme Ireland

205 ’. 45 -

CHAPTER VII CHAPTER VI 206

partnerships are mobilised for the New Developments benefit of resettlement, that the local community takes responsi- For 2013, 80 refugees will be accepted bility for the integration process, for resettlement to Ireland. This total and that new partners that have not comprises 50 persons under the annual previously collaborated are brought quota, including four families (approxi- together to address issues as they mately 20 persons) accepted under the arise using a partnership approach. medical resettlement programme, and It also provides a clear, single point a further 30 persons in response to a of contact for local resettlement UNHCR appeal for resettlement places support workers and for central for non-Iraqi refugees resident in Syria. government, and can constitute a The resettlement of the latter group of vehicle for joint funding bids and 30 will be funded by the EU Preparatory evaluation exercises Action for Emergency Resettlement.  The national and local Working A further 10 Somali refugees will Groups provide an ongoing arrive from Malta as part of intra-EU framework for interagency working relocation, bringing the total number after refugees’ arrival, facilitating relocated from Malta since 2007 to 40 early notification of challenges and persons. problems and enabling timely joint responses by all partners.

Challenges:

 Due to the financial crisis, the number of resettled refugees received by Ireland has decreased substantially in recent years, from 192 in 2009 to 49 in 2012. While the Irish government has increased numbers to be resettled to 80 refugees during 2013, the ongoing impact of the financial crisis provides an extremely challenging context for the future of the Irish resettlement programme. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 207

The Netherlands at a glance

 Population: 16 730 348  GDP (Per capita): 131 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total (2012): not available  Total decisions reached in 2012: not available  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): not available

2012 data, published by Eurostat in May 2013

The Dutch resettlement programme at a glance Resettlement quota and main actors Start of annual quota: 1984 Current quota: Average 500 each year. A flexible four-year quota allows unused places to be carried forward into subsequent years within the four-year period. The current flexible quota period is 2012-2015 (2000 places in total). Main national actors: the Ministry of Security and Justice including the Dutch Immigration and Naturalisation Service (IND), and the Central Agency for the Reception of Asylum Seekers and Refugees (COA), the Ministry of Foreign Affairs, the national guardianship organisation Nidos (UAM) and local authorities. NGOs include the Dutch Council for Refugees (DCR) and the Foundation for Refugee Students (UAF).

Resettlement numbers Accepted Arrivals NationalityCountry of asylum Year (persons) (persons) of largest groups

2013* 500 CongoleseRwanda, Uganda CHAPTER VI anticipated EthiopiansKenya IraqisJordan EritreansSudan BurmeseThailand CHAPTER VII 208

Accepted Arrivals NationalityCountry of asylum Year (persons) (persons) of largest groups 2012 483 326 EthiopiansKenya IraqisLebanon EritreansSudan BurmeseThailand ColombiansEcuador 2011 556 530 BhutaneseNepal BurmeseThailand EthiopiansKenya IraqisSyria 2010 484 435 BhutaneseNepal BurmeseThailand EritreansSudan IraqisSyria, Jordan 2009 401 367 IraqisJordan, Syria EthiopiansKenya EritreansSudan SomalisKenya BhutaneseNepal

UNHCR Submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs - max. 30 persons per year  Women and girls at risk  Family reunification -within quota (if application lodged within 3 months after arrival)  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlement - 100 dossier submissions per year, including 50-60 emergency cases (where requests are received from UNHCR)  Urgent within 6 weeks between submission and resettlement  Normal within months between submission and resettlement Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European four-year flexible quota period. the Dutch quota, andisrenewed for each for Resettlement sets outpriorities for (WBV 2010/10).ThePolicy Framework out inthe Minister ofJustice’s Decree and procedures for resettlement are laid grounds for admission.Overall policy outside oftheNetherlands, andthe beneficiaries ofinternational protection refugee recognition, theidentification of Aliens Actprovides thelegal basis for formally regulated by law. The2000 Resettlement to the Netherlands is not Legal Basis Programme Resettlement The Netherlands’   Criteria related to integration   Basic criteria Resettlement Criteria

more ‘high profile’ cases suchas UNHCR isencouraged to submit into Dutch society. Willingness andabilityto integrate Reunification’ below). under specific conditions (see ‘Family reasons andviafamily reunification resettlement for humanitarian Persons may alsobe accepted for of subsidiary protection. Refugee Status orbeaperson inneed according to the1951Convention on Being recognised asarefugee assuch 46 at theairport, where anasylum residence are processed and refugee status granted on arrival in the Netherlands. Applications refugees must therefore apply for asylum sions outsideofthe territory, andresettled Dutch government to take asylum deci- There isnolegal provision enabling the &Citizenship Residency Refugee Status, Permanent Timisoara, Romania. the Emergency Transit Facility (ETF)in also selected emergency cases from emergency cases. TheNetherlands has submissions, includingmedical and quota isselected basedondossier Approximately 20per cent ofthe generally doesnotexceed between acceptancedeparture and to theNetherlands. Processing time the delegation’sof IND ahead return aredecisions selection final madeby collectivelywho cases discuss before MinistryForeign of AffairsCOA, and IND medicalan (including doctor), the representatives include tions from IND delegamission Selection mission. - views approximately 100refugees per per missions year,selection interand The Netherlandscarries toout up four andSelection Identification Developments’ below). human rights advocates (see ‘New See Chapter IVfor more information on theETF The Netherlands 46 6 months.

CHAPTER VII CHAPTER VI 210

permit (‘asiel bepaalde tijd’) valid for five arrival or upon the date the residence years is then issued. permit is granted. After 3 months, it is still possible to apply but not within A permanent residence permit may be the resettlement programme and issued after an initial five years of resi- upon fulfillment of income require- dency, in cases where refugees have ments. Relationships need to be made passed the national integration exam credible either with statements, docu- (see ‘Integration services & support’ mentary evidence or sometimes DNA- below) and have not committed a examination (children). criminal offence. Refugees are eligible to apply for citizenship after five years Resettled refugees can still apply for of permanent residency and on passing family reunification more than three a civic integration test. months after arrival, but in such cases must prove that he/she has sufficient Family reunification income to support the family member or relative(s) in question.48 Family reunification of refugees can take place both within and outside the quota. Family reunification under the reset- Resettlement in tlement quota is possible for spouses, Practice biological children under 18 and foster children who are part of the family.47 Linking Phases

Besides the latter, other family How is information transferred between members eligible for family reunifi- selection and reception of refugees in cation include: order to prepare for their arrival?  Unmarried partners, including  Sharing of information gathered same-sex partners, only if assessed during Cultural Orientation (CO) as dependent on the person granted asylum;  Other:  Children over 18, also if dependent; Social intake files: COA conducts  Parents of a minor child with an ‘social intake’ interviews during asylum status; selection and pre-departure CO missions to gather biographical and Resettled refugees can apply for family social information, at which the COA reunification within 3 months upon representative and refugees discuss

47 In the case of children, relationships need to be 48 While unemployment benefits can be counted as proven either with documentary evidence or part of this income, work and social assistance ben-

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European DNA-examination. efits cannot.

49  Pre-departure submissions In-country selection Dossier selection (includingmedical andemergency cases) higher education refugees willingandableto access between COA and UAF, COA identifies cooperation agreement onresettlement to access higher education. Aspartofa resettled refugees) intheNetherlands UAF supportsrefugees (including Referral mechanism-C ferred to receiving municipalities. tlement. Social intake files are trans- refugees’ expectations oftheir reset both life intheNetherlands andthe education. to have 11-12years priorexperience offormal UAF generally requires refugees they support pre-departure CO, includingboth tlement to the Netherlands receive all refugees selected for reset Cultural Orientation (C easily (see ‘Integration inFocus’ below). ugees to accesshigher education more tosecure enabling thusref housing, there are highereducation institutions with municipalitiescloseto orwhere the cases to UAF. UAF andCOA liaise pre-departure CO missionsandrefers UNHCR including socialintake Selection ofcases ona Selection missions Selection missions (IND, MFA &COA) dossier basis(IND) 49 during selection and during selection and decision decision Final Final Final O O): Almost : A andUAF: 4 day pre-departure pre-departure 3 *3.5day CO (IOM) CO (COA) Max. 6months - - -

  Travel arrangements: IOM Medical Exam: IND four days. CO programme for dossiercases to began inlate 2011, andextends the programme. Asecond NLCO project provided refugees witha3-day CO Orientation (NLCO) programme by IOM, the Netherlands Cultural any pre-departure CO. Developed group didnotpreviously receive selected onadossierbasis.This a CO programme for refugees In 2010, theNetherlands piloted receiving municipality. and life intheNetherlands andthe departure andtravel, Dutch society and information aboutresettlement and includesDutch language tuition session takes placeover 3.5days, sessions organised by COA. Each three pre-departure CO training during aselection missionattend Refugees accepted for resettlement sions oronadossierbasis. those selected duringselectionmis- Travel (IOM&IND) checks &Travel (IOM) Pre-departure health health checks & Pre-departure The Netherlands programme (5years in 3-year integration specific cases) Arrival &direct municipalities placement in

211

CHAPTER VII CHAPTER VI 212

Integration in Practice as soon as they are selected. A lack of available affordable housing in larger Reception municipalities means that resettled refugees are dispersed over a large Refugees are welcomed upon arrival number of smaller municipalities in the at Schiphol airport by representa- north, east and south of the country, tives of COA. Refugees spend one away from the main urban centres in night at a hotel, complete some initial the west. Refugees are not obliged to paperwork, are given a residence card remain in the municipality where they by IND and undergo TB screening. They have been placed, but are not auto- are then accompanied to the receiving matically provided with alternative municipality by representatives from housing in a new municipality should COA. Before 2011, all resettled re- they move. fugees were placed in a centralised reception centre in Amersfoort, where Integration services & support they would stay for a period of 3-6 months before moving to municipal- Length: 3 years (can be extended to ities. Centralised reception was abol- 5 years for persons requiring literacy ished in 2011 and replaced by a system training). of direct placement in municipalities. When arriving in the municipality, refugees are received by municipal Placement policies staff working in conjunction with an NGO (most often the Dutch Refugee In the Netherlands, resettled refugees Council). Furnishing of housing for are placed in municipalities by COA resettled refugees and the division of using the reception placement system other tasks between municipalities and for asylum seekers established through NGOs are configured differently in dif- (voluntary) contracts between COA and ferent municipalities. NGOs assist re- local authorities. Municipalities are fugees for some time to help them find obligated to house a certain amount of their way in the community. refugees, with quotas set for 6-month periods, and can indicate if they want Since January 2013, all holders of an to receive resettled refugees as part of asylum permit,50 including resettled this obligation. refugees, are obliged to demonstrate their integration into Dutch society COA contacts municipalities about the

housing needs of resettled refugees 50 Exemptions can be granted on medical and/or psy-

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European chological grounds. and languageand tests. Thesecourses are payingfor their ownintegration courses forsible independently and finding refugees newcomersand are respon newcomers. Underthenew system, courses and exams for refugeesall and required to provide access to integration bility strongresponsiindividual on emphasis involvementfostering in integrationto a moved from extensive government Dutch integrationhas recentlypolicy 52 51 within three years oftheirarrival. guage componentsincludes onDutch lan- the Integration isdemonstrated by passing Bhutanese children goingto the local schoolinWommels primary (NorthNetherlands)/UNHCR/P.de Ruiter included only aspoken Dutch test. European A2level, whereas theprevious exam reading, listeningspeaking, andwritingskillsto Since the start of 2013, the integration exam tests issued for refugees exiting theasylum system. Three years after thedate theasylum permit is national integration exam, which . Priorto. were2013, municipalities 52 andsociety. 51 - -

residents orcitizens. benefits as other unemployed Dutch togible receive the samewelfaresocial Refugeesare who unemployed are eli the requirement to repay theloan. test threewithin years are exempt from refugeesintegrationthe civic pass who €10,000 to All theseactivities. finance refugees may requestfor aloan to up delivered by officialinstitutes, and by the national ERFprogramme, to theNetherlands. Co-financed highly educated refugees resettled project focused onthe needs of associations hasimplemented a palities, universities, andstudent with COA andmunici- selected Refugee Students (UAF), together Since 2012, the of refugeestudents INTEGRATION INFOCUS:Resettlement The Netherlands Foundation for

CHAPTER VII CHAPTER VI 214

the project aims to improve the Use of the European reception arrangements for highly Refugee Fund (ERF) educated refugees by facilitating their access to higher education as Persons resettled using 2012 ERF soon as possible after arrival. funding  Persons resettled under a Regional COA refers resettled refugees to Protection Programme UAF in advance of their arrival to  Unaccompanied minors municipalities, allowing for better  Women and children at risk; particu- planning of educational guidance, larly from psychological physical or language training and educational sexual violence or exploitation courses once refugees arrive in the  Persons with serious medical needs Netherlands. Pre-arrival cooper- that can only be addressed through ation between COA, UAF and muni- resettlement cipalities also enables refugees to be housed in areas with easier Pledges made to resettle under ERF access to universities and other specific categories for 2013 higher education establishments.  Persons resettled from a country In cases where it is not possible or region designated for the imple- to secure housing in larger uni- mentation of a Regional Protection versity cities, such as is the case in Programme Amsterdam and Utrecht, resettled  Women and children at risk students are housed in smaller,  Unaccompanied minors nearby municipalities.  Survivors of torture and violence  Persons with serious medical needs The project has also developed that can only be addressed through a mentoring programme, within resettlement which matches Dutch students with  Persons in need of emergency reset- resettled refugees to provide them tlement or urgent resettlement for with support to settle into uni- legal or physical protection needs versity life. UAF has also produced a film on the education system in Pledges made to resettle under ERF the Netherlands for use in COA’s resettlement common EU priorities for pre-departure CO programme, 2013 so resettled refugees are given  Congolese refugees in the Great a realistic picture of educational Lakes Region and career opportunities in the  Refugees from Iraq in Turkey, Syria, Netherlands. Lebanon, Jordan Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European   that hadoccurred, includinghow: also identified anumberofproblems as positive by the partiesinvolved, it smoothly, andwas largely experienced in municipalities generally operated direct placement ofresettled refugees study concluded that thesystem of Evaluations     54 53 Centre (WODC) The Research andDocumentation Placement Implementation in municipalitiesintroduced inthe the new model ofdirect placement Justice carried outanevaluation of municipalities in2011.

part ofthe research alsopointed received. Doctors interviewed as healthcare for the refugees they always facilitate prompt accessto resettled refugees, anddidnot awareness ofthehealthneeds some municipalitieshave limited opening bankaccounts; welfare andchildbenefits, and had caused difficulties for accessing delays inissuingresidence permits Eritrean refugees inEastern Sudan Malaysia andThailand Burmese refugees inBangladesh, Somali refugees inEthiopia Iran Afghan refugees inTurkey, Pakistan, hervestigde vluchtelingen, February 2013 Pro facto, Directe plaatsing ingemeenten van Wetenschappelijk Onderzoek en Documentatiecentrum of 53 Invited at theMinistry of Plan 54 Refugees Whilethe for

Direct in

research, missioned Regioplan to conduct The Dutch Councilfor Refugees com- 55  including: mendations inrelation to thisgroup, and produced several key recom- long periodsspent incamps Nepal, in resettled to theNetherlands after ences ofthe 229Bhutanese refugees Council researched thespecific experi- Defence (GHRD)andDutch Refugee A 2010 study by GlobalHumanRights   ommendations for improvement: tively positive, withthe following rec- model. Theevaluation was again rela- context ofthe new direct reception volunteers andpractitioners inthe 2012, ontheexperiences ofrefugees,

refugees. provision ofhealthcare for resettled preters asabarrier to theeffective compensation for thecost ofinter to 2012abolitionof theJanuary ‘Opvang van uitgenodigde vluchtelingen’ Regioplan Policy Research (December 2012) should betailored to meet theneeds Integration supportandservices specific localities. tures andassistance available in assessment ofthe supportstruc- ities shouldinvolve amore detailed Placement ofrefugees inmunicipal- municipalities. Refugee Councilstaff working in should beprovided by COA to Dutch More detailed case information 55 publishedinDecember The Netherlands

CHAPTER VII CHAPTER VI 216

of refugees from specific groups and arrival are relatively long (6 months), backgrounds. influenced by the requirement for  Bhutanese refugees have strong refugees selected or resettlement cultural and family ties, and sepa- to attend three CO sessions before ration via placement in different departure to the Netherlands. municipalities thus created barriers for integration. Bhutanese families  Integration policy and discussion should therefore be placed near are increasingly focused on the obli- to others, and family reunification gatory nature of integration for re- policies should be made clearer to fugees and other newcomers, with refugees. punitive measures applied where this obligation is deemed not to have been met. This approach is also Strengths and evident in resettlement selection cri- Challenges teria and processes, which stipulate that where the refugee is assessed Strengths as being ‘difficult’ to integrate, the submission will be rejected.  The Dutch resettlement programme is a well-established programme that offers protection to a varied New Developments caseload of refugees, including medical and emergency cases sub-  When the system of placing re- mitted on a dossier basis. The flexible fugees directly in municipalities was four-year quota model enables the introduced, municipalities received Dutch resettlement quota to be fully a basic payment of around €2,000 utilised. per adult and €1,000 per child as an additional payment, to incentivise  Partnerships between governmental their involvement in resettlement. authorities and NGOs are well estab- These incentive payments will cease lished, particularly at the local level in 2013 - from 2014, municipalities where Dutch Refugee Council vol- will receive the same amount unteer support is available in most of money (€1,000) per resettled municipalities. refugee as for refugees recognised via the domestic asylum procedure. Challenges

 Periods between selection and Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 217

Norway at a glance

 Population: 4,985,870  GDP (Per capita): 186 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 9 685  Total decisions reached in 2012: 10 610  Positive decisions (including refugee status, subsidiary protection and humanitarian reasons): 5 180

2012 data, published by Eurostat in May 2013

The Norwegian resettlement programme at a glance Resettlement quota and actors Start of annual quota: early 1980s56 Current quota: approximately 1,200 per year (as of 2013). A flexible three-year quota allows unused places to be carried forward into subsequent years within a three-year period. The current flexible quota period is 2013-2015. Main national actors: Ministry of Justice and Emergency Planning, Norwegian Directorate of Immigration (UDI), Ministry of Children, Equality and Social Inclusion, Directorate of Integration and Diversity (IMDi), municipalities, Norwegian People’s Aid (NPA), Norwegian Refugee Council, Norwegian Organisation for Asylum Seekers, Norwegian PEN.

Resettlement numbers NationalityCountry of asylum Year Accepted Arrivals of largest groups

2013 1120 AfghansIran CHAPTER VI anticipated SomalisKenya Refugees Turkey EritreansEastern Sudan Congolese (DRC)Uganda

56 Ad-hoc resettlement from 1945 CHAPTER VII 218

NationalityCountry of asylum Year Accepted Arrivals of largest groups 2012 1110 1 300 EritreansEastern Sudan AfghansIran SomalisKenya IraniansTurkey Burmese Malaysia

2011 1370 1289 Various (ex-Libya)Tunisia EritreansEastern Sudan SomalisKenya BurmeseMalaysia BhutaneseNepal AfghansIran IraniansTurkey

2010 1130 1116 EritreansEastern Sudan Iraqi and ex-Iraqi PalestiniansSyria BurmeseMalaysia AfghansIran IraniansTurkey

2009 1162 1420 EritreansEastern Sudan AfghansIran BhutaneseNepal Iraqi and ex-Iraqi PalestiniansSyria BurmeseMalaysia

UNHCR submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs - 20 cases (within the Twenty-or-More programme for refugees with medical needs)  Women and girls at risk - priority given to WAR cases, and 60 % of the total quota is reserved for women and girls.  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions  Other: 80 places per year are allocated for ‘alternative use’ - under which Norway provides costs for resettlement places in countries outside of Europe, such as Argentina. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European  Programme Norway’s Resettlement   whereapplicable) UNHCR Prioritylevels accepted (withsub-quota   Supplementary Criteria  Basic criteria Resettlement Criteria resettlement. tively serves asthelegal basisfor the recognition ofrefugees, andeffec- (No.35) provides general criteria for The refugee resettlement inNorway. There isnospecific legal basisfor Legal Basis

Normal Urgent Emergency may beconsidered withinthe strategic resettlement programmes Norway’s participation inbroader Girls at’ Risk (WAR) cases. girls, andprioritises ‘ resettlement quota to women and Norway allocates 60percent ofthe Refugees. Convention Relating to the Status of such according to the1951UN A refugee must berecognised as Norway Immigration Act2008 within 6weeks between submissionandresettlement within 12months between submissionandresettlement max. 7daysbetween submissionandresettlement -75cases Women and 57  

resettlement selection process. initiative. eastern Sudanaspartofa strategic resettlement chaired by Sweden, and also resettles Eritreans from Norway isamemberofthe Iran Contact Group not available inNorway. be rejected if appropriate treatment is their resettlement. Cases willnormally nations before adecision istaken on cific refugees undergo medical exami- UDI can request, viaUNHCR, that spe selection decision-making process. isconsideredservices aspartofthe of torture, theavailability ofthese that related to previous experiences require specialist treatment, suchas currently limited. Where refugees wheelchair users and the elderly-is with reduced mobility-suchas example, capacity to settle refugees for the refugee(s) in question. For appropriate facilities andservices the tlement, UDI andIMDIalsoconsider When selecting refugees for reset protection needs. different nationality andwithout accompanying family member ofa for example where arefugee hasan strong humanitarian considerations , considered solely onthebasisof Exceptionally, applicants may be capacity for municipalities to offer Norw a y 219 57

- -

CHAPTER VII CHAPTER VI 220

Identification and Selection carried out by UDI and IMDi, and approximately 250 refugees based Each year, the Norwegian Parliament on dossier submissions from UNHCR. approves the number of refugees that Municipality representatives recently will be resettled and the nationalities and began participating in some selection regions from which they will be selected. missions as observers. The Ministry of Justice and Emergency Planning proposes how the quota will The average processing time from be allocated, through consultations decision to arrival for refugees selected with the Ministry of Children, Equality via selection missions is 4 1/2 months. and Social Inclusion and the Ministry UDI aims to make decisions on emer- of Foreign Affairs. The allocation is gency cases within 48 hours of sub- based on information and suggestions mission, with departure arranged as made by the Norwegian Directorate of soon as possible, and IMDi aims to find Immigration (UDI) after consultation a receiving municipality for these cases with the Directorate of Integration and within 48 hours from UDI’s decision. Diversity (IMDi). Norway is the only Norway does not distinguish between country in Europe where NGOs are urgent and normal priority submissions encouraged to give advice to the gov- for the purposes of processing time. ernment, through various meetings, when planning the yearly allocation of Refugee Status, Permanent the quota and the selection process. Residency & Citizenship

UDI is responsible for final resettlement For dossier cases, refugee status decisions, refugee status determi- determination is conducted on arrival nation procedures and issuing entry in Norway. For refugees selected via visas. Norway prioritises submissions selection missions, refugee status from UNHCR, but UDI may also process determination is completed prior to cases referred by Norwegian embassies, departure in the country of asylum. All other international organisations, resettled refugees receive a temporary criminal courts - with which Norway has residence permit valid for 3 years, witness resettlement agreements -, and issued prior to departure for selection Norwegian NGOs in areas where UNHCR mission cases and on arrival for dossier is not present (including PEN and the cases. Norwegian Helsinki Committee). Resettled refugees can apply for a per- Norway selects approximately 870 manent residence permit after three refugees a year via selection missions years of legal residency in Norway, Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European any former citizenship. language and - ifsuccessful -renounce ciency ineither Norwegian orthe Sami applicants must demonstrate profi- residency inthecountry. Citizenship zenship after atotal ofseven years legal Resettled refugees may apply for Norwegian residency rights. of upto two years withoutjeopardising to reside outsideofNorway for aperiod below). Permanent residents are able (see ‘Integration &support’ services the Norwegian ‘introduction course’ and must evidence completion of members isnotapplied. sufficient to meet the needs of family requirement to demonstrate income arriving into Norway, thenthegeneral family reunification withinoneyear of by-case basis.Ifrefugees applyfor applications are dealtwithonacase- reside inNorway, andthesetypes of exceptionally begranted apermitto Norway. Otherfamily members may under 18years ofage -to jointhem in for at least two years andchildren members whohave lived together cohabiting partners orotherfamily familymembers -meaningaspouse, Resettled refugees may applyfor close Family reunification citi-    cific needs(medical orother)? How isinformation transferred for spe-    order to prepare for theirarrival? selection andreception ofrefugees in How isinformation transferred between Linking Phases Practice Resettlement in

for that services would needto be and produce recommendations from IOMfor individualrefugees the medical information received Teaching Hospital. Doctors analyse contract with theOsloUniversity UDI hasestablished aconsultancy with local actors asappropriate. outcomes of these willbe shared carried out for specific refugees, the departure medical examinations are Where UDIhasrequested that pre- refugees. integration perspectives for specific a municipalitythat offers thebest IMDi uses thisinformation to select RRF andcommunicates thisto IMDi. educational background from the composition, language skillsand UDI extracts information onfamily during Cultural Orientation (CO) Sharing ofinformation gathered integration actors from Refugee Referral Form (RRF)to Forwarding pertinent information through missionsordossiers Briefing stakeholders after selection Norw a y

CHAPTER VII CHAPTER VI 222

available for refugees in receiving studies, problem-solving, games municipalities. UDI uses this infor- and debates. Video clips and pre- mation to select an appropriate sentations are used to elaborate municipality for specific refugees. specific CO topics, and participants This system particularly facilitates are each provided with reference service provision for dossier arrivals, handbooks. which account for the majority of medical cases, and generally enables The NORCO programme is delivered municipalities to better accom- by a bicultural trainer, from the same modate refugees’ physical and psy- or similar background of the refugee chological healthcare needs. group, who speaks the language of the cultural orientation participants Pre-departure and who has lived in Norway for some time. The use of a bicultural  Cultural Orientation (CO): Since trainer means an interpreter is not 2003, the Norwegian government required and communication is thus has contracted IOM to develop and more direct. The trainer can also implement the Norwegian Cultural represent a role model for refugees, Orientation programme (NORCO). as he or she has learned Norwegian This pre-departure programme and managed to professionally provides a four-day CO programme establish him/herself in Norway. for adults (16 years and older) and a two-day programme for children  Medical Exam: IOM (8-15 years). The training sessions are learner-centred and emphasise  Travel arrangements: IOM direct participation of refugees in activities including role-plays, case

In-country selection

2-day pre-departure Pre-departure Integration programme - Selection Final CO for children, 4-day health checks & generally 2 years, can be missions (UDI) decision CO for adults (IOM) travel (IOM) extended to 3

UNHCR Max. 6 months submissions Emergency: 48hrs Arrival & direct Selection of cases on a reception in Final decision Travel (IOM) dossier basis (UDI) municipalities

Dossier selection (including emergency cases) Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European communities. private pre-arranged housinginhost arrival, refugees are accompanied to quota basisorgranted asylum. Upon refugees have been accepted on settle refugees 6months within after into theNorway. Itismandatory to bility to receive therefugees onarrival refugees, it becomes theirresponsi- When Reception Integration inPractice networks, reduce isolation andassist promote the development ofsocial municipalities,neighbouring soasto groups inthe samemunicipalityor same orsimilarethnic orminority IMDi often placesrefugees from the 429 Norwegian municipalities. placement ofrefugees in300ofthe IMDi offices currently coordinate that refugees may have. Sixregional and itscapacity to meet specific needs on thenumberofplaces itcan provide to dosoprovide IMDwithinformation receive refugees, andthose that agree ipalities receive requests from IMDito refugees isvoluntary Municipality participation inreceiving placing refugees inmunicipalities. Diversity (IMDi)isresponsible for The Directorate for Integration and Placement policies municipalities agree to host . Each year, munic- years after arrival. and integrating refugees duringfour additional expenses incurred insettling grants ofvarying amounts to cover Municipalities alsoreceive integration adult and€74,895received. perchild period, amounting to €77,405per introduction benefits for afive-year subsidy to meet thecost ofrefugees’ Local authorities receive agovernment expertise inworking withthisgroup. municipalities that have developed (UAMs) are resettled to afew specific they receive. Unaccompanied Minors gration experiences for the refugees municipalities to provide better inte- in theframework ofindividualised ments are oftheseservices delivered employment support.Some ele- vocationalhousing, training and children’s education, appropriate Integration includehealthcare, services best practices inresettlement. platform for municipalities to exchange Regional Authorities (KS) provides a Norwegian Association ofLocal and municipalities inthisregard, andthe guidance to supportthework of refugees they receive. IMDiprovides integration to services migrants and Municipalities are obliged to offer Length: upto 3years &support Integration services Norw a y

CHAPTER VII CHAPTER VI 224

‘introductory programmes’, which all municipalities can offer up to 2,400 refugees aged between 18 and 55 years additional hours of language tuition. must follow and which municipalities must provide within three months Refugees receive financial support after refugees arrive. The federal gov- while following an introductory pro- ernment has developed quality stan- gramme, conditional on their ongoing dards that introductory programmes participation. must meet, and which specify that programmes include: Although integration programmes  Norwegian language tuition. are largely coordinated and imple-  Measures to attain skills for labour mented by municipalities, NGOs offer market entry. integration services and activities  Career guidance. through specific projects and initia-  Measures to continue education. tives. The Norwegian Red Cross, for  Social studies in the immigrant’s example, collaborates with munici- native language (where feasible). palities on projects to enhance social integration such as ‘Refugee Guide’, Individualised programmes are in which Norwegian volunteers act developed based on the needs and as ‘guides’ providing information and attributes of refugees, with the social contact with the Norwegian ultimate aim of equipping adult re- population. fugees with basic Norwegian language skills, an insight into Norwegian society HIGHLIGHT: ‘Til Topps’ (To the top) and support and training sufficient The ‘Til Topps’ (‘To the top’) project to enter the labour market or access is an annual event at which re- education. fugees and migrants residents and Norwegian volunteers meet each The normal duration period for other to go hiking. The aim of the introductory programme is 2 years, project is to provide a joint activity although municipalities can extend to 3 that encourages and establishes years if considered beneficial for a par- links between local residents of both ticular refugee. To acquire permanent a refugee/migrant and Norwegian residence in Norway refugees must background, so as to facilitate better complete the programme within 3 integration. The event is organised years, encompassing 550 hours of lan- by the Norwegian Red Cross in col- guage training and 50 hours of social laboration with IMDi, KS and the and cultural studies. Where refugees Norwegian Trekking Association require additional language support, (DNT). The sixth event was held in Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European programmes. common to their national resettlement experiences anddiscusstopics from UNHCRtwiceayear to exchange countries meet withrepresentatives Immigration ofthe Nordic Services NORCO programme for the year ahead. are used to planimprovements inthe lities, UDIandIMDi.Seminar outcomes trainers, resettled refugees, municipa- Oslo andattended by bicultural CO NORCO programme, organised by IOM luation seminar isheld to assessthe has been carried out.Anannualeva- Norwegian resettlement programme To date,overall no evaluation ofthe Evaluations taken partsincetheproject began. the majorityresettled refugees -have 2013, andatotal of6,000 people-  Strengths Challenges and Strengths

emergency cases andhigh numbers caseload, includingmedical and year. Thequota targets avaried - thequota hasbeen filledevery programmes inEurope and-to date gramme isoneofthe largest quota The Norwegian resettlement pro-    Challenges

in specificmunicipalities. working with groups suchasUAMs development oflocal expertise in medical needs,thein enabling and forservices refugees withspecific in terms ofensuring appropriate system isparticularlyeffective mental authorities. The placement between central andlocal govern- acterised by strong cooperation Placement inmunicipalities ischar and processing times. efits from shortdecision-making of Women At Risk(WAR), andben- on thecapacity oflocal. services in somecases impacted negatively on local specialist that services has these profiles hascreated alarge call successfully, receiving refugees with Norwegian programme hasoperated needs. While thisaspect ofthe with serious medical andsocial received many resettled refugees Norwegian municipalitieshave housing increasing challenges infinding Municipalities are experiencing for single persons. Norw a y -

CHAPTER VII CHAPTER VI 226 New Developments

 Norway is increasingly active in strategic resettlement, most recently with a focus on the protracted Eritrean refugee situation in Sudan and with respect to burden-sharing of medical cases from the Afghan refugee population in Iran. For 2013, Norway has re-engaged in the resettlement of Congolese refugees, conducting a selection mission to Nakivale Refugee Camp in Uganda has been conducted this year, including interviewing on site, and committed to receiving 75 Colombian refugees from Ecuador.  In response to the UNHCR’s 2011 Global Resettlement Solidarity Initiative for North Africa, Norway created 250 places in addition to the annual quota and made 60 places available from within the regular quota. Norway also expedited the resettlement of 45 UAMs from Shousha. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 227

Portugal at a glance

 Population: 10 541 840  GDP (Per capita): 77 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 295  Total decisions reached in 2012: 230  Positive decisions (refugee status and subsidiary protection): 100

2012 data, published by Eurostat in May 2013

The Portuguese resettlement programme at a glance Resettlement quota and actors Start of annual quota: 2007 (ad hoc resettlement as of 2006) Current quota: 30 Main national actors: Immigration and Borders Service (SEF) under the Ministry of the Interior, Directorate-General of Consular Affairs under the Ministry of Foreign Affairs, Institute of Social Security (ISS) and Institute for Employment and Vocational Training (IEFP) under the Ministry of Employment and Social Security, Ministry of Education, Ministry of Health, Youth Courts under the Ministry of Justice, Portuguese Refugee Council (CPR), Jesuit Refugee Service.

Resettlement numbers Nationality  Country of Asylum of Year Accepted Arrivals largest groups 2013 Not available at the time of publication anticipated

2012 30 23 Sudan (14), Eritrea (1)Egypt and Tunisia UAM CHAPTER VI (8) Guinea Conakry (2), Ethiopia (2), Liberia (1) DR Congo (1), Somalia (1), Afghanistan (1)Morocco, Egypt, Senegal, Kenya, Turkey, Thailand CHAPTER VII 228

Nationality  Country of Asylum of Year Accepted Arrivals largest groups 2011 30 30 Eritrea (23), Iraq (5), Senegal (2)Tunisia, Syria, Mauritania, Ukraine

2010 33 33 Iraq (13), D.R. Congo (7), Afghanistan (6) Somalia (3), Uganda (2) Ethiopia (1) Iran (1)Syria, Ukraine, Mozambique, Libya, Belarus

2009 30 30 D.R Congo (12), Afghanistan (10), Iraq (4), Ethiopia (3), Somalia (1)Tanzania, Ukraine, Syria

UNHCR Submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement  Normal within 12 months between submission and resettlement Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European persons under EUREMAII. has pledged to relocate afurthersix and 2010, respectively -.Portugal that were received from Malta in2007 EU relocation -oneandsixpersons quota for persons received viaintra- from within theannualresettlement 2010 and2011.Portugal uses places resettlement quota was met in2009, female and35%children. The annual been resettled to Portugal. 44%were Since 2006, atotal of160refugees have quota of30refugees peryear. resettlement country withanannual 110/2007) established Portugal asa of the CouncilofMinisters (no. schemes in2006, anofficial Resolution Following two ad-hocresettlement Asylum Law 27/2008. Portugal is set out Articlein 35of The legal basisfor resettlement in Legal Basis&Background Programme Portugal’s Resettlement 59 58 All refugees underUNHCR’s mandate Basic Criteria Resettlement Criteria 35 (1)ofAsylum Law 27/2008). are considered for resettlement (article See Chapter Ifor further information. and II. See Chapter Vfor more information onEUREMAI 58 59

decision wasdecision approximately processingtime from to submission 5 working days. For the2012 quota, cific cases, to becommunicated within the integrationon opinion spe- needs of (CPR) forCouncil of anadvisory issuance are sharedthe Portuguese with Refugee requires that resettlement submissions of AsylumArticle 35(3) Law 27/2008 tlement dossiers iscarried by out SEF. on adossierbasis.Processing ofreset mitted to Portugal have been considered To date, resettlementall cases sub andSelection Identification Protection Programmes (RPPs). from countries targetedRegionalwithin companied minors (UAM) andrefugees - includingwomen at risk(WAR), unac- tional fundingfrom the ERF2008-13 been from categories eligiblefor addi- Cases accepted by Portugal to date have Supplementary Criteria the programme focusedon solely arrivedfamily with members. In2012, 2007-11, during atotal86 (72%) of families gramme has historically favoured PortugueseThe resettlement pro- where are consularservices available. favours resettlement from countries Tofacilitate exit procedures, Portugal acceptance to departure. approximatelyand month one from -ofthe120 refugees resettled Portugal 2 ½ months UAMs. - -

CHAPTER VII CHAPTER VI 230

Refugee Status, Permanent  unmarried partners; Residency & Citizenship  children over 18 if legally incapable of caring for themselves/single and Refugees arriving through the attending education; resettlement programme receive  married children under 18; Convention refugee status or sub-  adopted children of the applicant sidiary protection. To date, all resettled and/or his/her partner (on legal refugees have been granted refugee recognition of the adoption by status. Resettled refugees are granted Portuguese authorities); a five-year residence permit, which is  parents and parents-in-law of adult renewable unless prevented by ces- legal residents (on demonstration of sation of refugee status, or concerns direct dependency); and related to national security or public  unrelated minors in the care of the order. principal applicant (on legal recognition of guardianship by the Refugees can obtain a 1951 Convention Portuguese authorities). Travel Document on request from SEF, and refugee status is automatically Convention refugees are exempt extended to family members born after from requirements to prove suffi- arrival. cient income or accommodation for incoming family members. After a six-year period of legal residency in the country, refugees may apply for citizenship. Applicants for cit- Resettlement in izenship are required to demonstrate Practice Portuguese language proficiency at A2 level.60 Linking Phases

Family reunification How is information transferred between selection and reception of refugees in In addition to immediate family order to prepare for their arrival? members - married partners, children  Forwarding pertinent information under 18, parents of children under from Refugee Referral Form (RRF) to 18 - other family members who are integration actors eligible to join through family reunifi- RRFs are passed to CPR by SEF cation are: during the selection process, and CPR’s advisory opinions on each case

60 Common European Framework level A2 (‘ele- identify information gaps on the

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European mentary level’) practitioner. was shared before arrival withthe evant medical information from RRFs the local healthcare centre, andallrel- arranged by CPRincooperation with titioner for 8resettled UAMs was In 2012, asinglegeneral healthprac- facilitate swift educational enrolment. receive information before arrival to healthcare providers. Local schools shared onarrival withYouth Courtsand health, andfamily composition is mation from theRRFoneducation, For resettled refugee children, infor specific needs(medical orother)? How isinformation transferred for  Pre-departure

Children inLisbon. the Reception Centre for Refugee ofLouresin themunicipality and the Reception Centre for Refugees those that are working inthearea of of local stakeholders, particularly general information withnetworks thecountry ofasylum.sharesCPR filled priorto theirdeparture from social profile ofrefugees that can be particular service provisionparticular service and the and theresettlement programme, in general information aboutPortugal resettled refugees that included pared apre-departure brochure for pre funding) and SEF(withERF Cultural Orientation: In2008, CPR

- -  

country of asylum. lomatic representation intheir first documents by thePortuguese dip- were issuedwithConvention travel exists. In2012,resettled refugees where noPortuguese consulate sulates onvisaissuanceincountries with other EUMember State con- of 'laissez-passers' andcooperates theRed Cross (ICRC) for the issuance from the International Committee of Government hasreceived assistance Affairs The Portuguese andUNHCR. Directorate-General for Consular Ministry ofForeign Affairs/ by SEFincooperation withthe Travel arrangements are organised Immigration Service diplomatic missions &Portuguese Travel arrangements: Portuguese tions are carried out. Medical Exam: nomedical examina - cation from Malta (EUREMA). participation in the intra-EU relo- with IOMinthe context ofPortugal’s English. The brochure was shared available inbothPortuguese and leaflet was updated in2012, andis rights andduties ofrefugees. The Portugal

CHAPTER VII CHAPTER VI 232

Dossier selection

Dossier selection Information Arrival to reception Placement in municipalities & (Immigration & leaflet (CPR centre. 3-hour orientation further language tuition Borders Service - SEF) & SEF) class during the first week

UNHCR 6-month integration programme Final decision Travel (SEF) submissions at the reception centre

Approximately 2 ½ months 6 months

Integration in Practice in finding move-on accommodation for resettled refugees after the initial Reception 6-month period, has stretched the capacity of the centre. In response, Prior to 2013, CPR was the lead agency the Institute of Social Security (ISS) has responsible for the reception and initial begun a process of 'decentralisation' integration of resettled refugees. For of reception, or distributing refugees 2013, the Jesuit Refugee Service will from the reception centre across the also become involved in this area of territory (see 'New Developments' work. As the specifics of the new pro- below). gramme have yet to be clarified, the remainder of the chapter focuses on the Placement policies resettlement programme up to 2013. After six months of centralised In previous programmes, refugees were reception, resettled refugees moved welcomed at the airport by a CPR repre- to housing in municipalities. Although sentative, together with an appropriate welfare benefits received by resettled interpreter, and transferred to the CPR refugees are higher than average, they Reception Centre in Bobadela, in the remain fairly limited in relation to municipality of Loures just outside of housing costs and - despite the assis- Lisbon. Refugees stayed in the reception tance of CPR and local social security centre for a period of approximately six services - finding affordable housing in months. The centre has capacity for 45 the Lisbon area is challenging. Refugees persons and is used to accommodate subsequently tend to overstay in the both resettled refugees and asylum reception centre, leading to bottle- seekers. necks in the reception system.

Recent increases in the number of Resettled refugees have mostly stayed asylum seekers, in addition to difficulties in and around Lisbon after the reception Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Portuguese language courses intotal. may therefore attend over 300hours of lowing their departure, andrefugees available to resettled refugees fol - at the reception centre alsoremains language training provided by CPR Todos' programme. Supplementary under thenational 'Português para migrant language training courses further 150hours ofmainstream the centre, refugees can accessa resident at the centre. After leaving Portuguese 150 hours ofmandatory intensive All adultresettled refugees attend arrival. was alsocarried outimmediately after schools at basic andsecondary level Enrolment ofrefugee children inpublic school located inthereception centre. 5 years were referred to aCPRnursery children aged between 4 months and Portugal. Onarrival into Portugal, torical andcultural information on centre, andincluded practical, his- first week ofarrival at thereception class was delivered by CPRwithinthe Components: A3-hourorientation Length: 6months &support Integration services and migrant community networks. vices, aswell asfrom existing refugee andotherspecialised ser CPR services phase. InLisbon, they can benefit from language training while - CPR provided legal 61 a consequence oftheeconomic crisis, prior socialsecurity contributions. As benefits in that it does not depend on ugees differs from mainstream social The supportprovided to resettled ref by theInstitute ofSocialSecurity(ISS). security payments are administered education andhealthcare. Social accommodation, food, transportation, security benefits to cover thecosts of resettled refugees receive social After departingthereception centre, opportunities for voluntary work. and referrals to vocational training or as academic equivalence procedures (IEFP) to supportrefugees inareas such Employment andProfessional Training with thePortuguese Institute of (GIP)workedService inpartnership Training andEmployment Support their resettlement. CPR’s Vocational and refugees' own expectations of academic background, language skills professional andexperience, skills first reception phase. The PIPmapped by CPR for each refugee duringthe Integration Plan(PIP)was developed A lation services. psychological care referrals andtrans- other personal expenses, healthand tance for food, transportation and in thecentre, includingfinancialassis- alence, employment advice/queries. Inareas suchas family reunification, diploma equiv ‘life orPersonalised project’ Portugal 61 andsocialsupport - -

CHAPTER VII CHAPTER VI 234

social security services have system- Pledges made to resettle under ERF atically reduced the level of payment resettlement common EU priorities for received by resettled refugees, as 2013 well as budget lines allocated to both Portugal did not pledge under the integration and mainstream support common EU resettlement priorities for services. 2013.

Use of the European HIGHLIGHT: CPR project “Building a Refugee Fund (ERF) new life in Portugal” Funded by the European Refugee Persons resettled using 2012 ERF Fund and running from between funding September 2011 until August 2012,  Persons resettled under a Regional the CPR project ‘Construindo uma Protection Programme Nova Vida em Portugal’ offered  Unaccompanied minors Portuguese language training  Women and children at risk; particu- adapted to meet the particular larly from psychological physical or needs of resettled refugees. Literacy sexual violence or exploitation classes for refugees illiterate in their  Persons with serious medical needs first language or unfamiliar with the that can only be addressed through Latin alphabet were organised in resettlement individual settings. The main objectives were to promote improved lan- Pledges made to resettle under ERF guage and communication skills as a specific categories for 2013 basis for future professional training  Persons resettled from a country and employment, but also as a or region designated for the imple- means to create the self-esteem and mentation of a Regional Protection self-confidence that are paramount Programme in making refugees feel welcome and  Women and children at risk settled in the local community.  Unaccompanied minors The project also offered individual  Survivors of torture and violence language training to complement  Persons with serious medical needs regular classes in school, easing that can only be addressed through initial communication challenges, resettlement building confidence that and pro-  Persons in need of emergency reset- moting improved educational tlement or urgent resettlement for outcomes. legal or physical protection needs Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European unpublished. 2012, theresults ofwhich are asofyet seekers andresettled refugees in reception andintegration ofasylum carried outanoverall evaluation ofthe The Institute ofSocialSecurity(ISS) Evaluations    Weaknesses    Strengths Challenges and Strengths

stakeholders at central andlocal Insufficient involving allrelevant stakeholders. and operationalpolicy guidanceand led The lackofaninclusive government- period oftime. centrated arrivals over a short refugees resulting inlate andcon- selection andtransfer ofresettled Delays andchallenges inthe level andamongthegeneral public. tlement, from boththepolitical Broad general support for reset gramme inthereception centre. at thestart ofthe integration pro- The provision ofspecialised support and integration services. and implementation ofreception NGO involvement intheplanning coordination structure offering involvement ofkey - Lisboa (SCML)andCPR. (ACIDI), Santa CasadaMisericórdia de Immigration andIntercultural Dialogue ISS, IEFP, SEF, HighCommissioner for cooperation protocol was signed by decentralisation process, a six-party In October 2012, asthebasisfor the been outlined. distribution willbebasedhave notyet although the criteria onwhichthis distribute refugees over theterritory, there. Theaimofthis new policyisto the endoftheir 6-month residency resettled refugees whohadreached leaving thereception centre, including the reception system for refugees 2013, theISS'decentralised'In January New Developments 62 been included in the new cooperation tories. Municipalities have not yet provisionservice amongthesigna- guidance,policy coordination and andwillworkin place onimproving commission ofrepresentatives was put reception andintegration services. programme and municipalitiesin Training (IEFP)inthenational for Employment andProfessional levels, suchasby theInstitute adequate follow-up. to draw up individualintegration programs andoffer overburdening that socialservices were incapable excessive concentration ofrefugees inLisbonarea, and integration system as itstood then, notably overcome the shortcomings ofthereception The objective asstated intheProtocol isto Portugal 62 Apermanent

CHAPTER VII CHAPTER VI 236

UAMs Refugee Reception Centre (CACR)/CPR/2012

protocol and are not formally involved The new CACR is located in Lisbon and in the decentralisation process.63 has the capacity to accommodate up to 18 UAMs. Inaugurated in May 2012, In December 2012, Portugal received the facility offers more child-friendly eight UAMs under the resettlement reception conditions with support from programme. a multidisciplinary team of childcare workers, a social worker and legal They have been accommodated at assistance aimed at promoting access the new Refugee Children Reception to education and healthcare. Centre (CACR), a partnership between CPR, SEF, the municipality of Lisbon and a private partner Swatch Tempus International.64

63 At the time of writing, there is no indication on whether municipalities will receive financial support from the central government. This would require them being involved in service provision following a decision by the Institute of Social Security but this has not been the case to date. 64 The construction was funded by Swatch, the Portuguese Ministry of Interior and the municipality of Loures. Activities have been funded by the

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European municipality of Lisbon. 237

Romania at a glance

 Population: 21 305 097  GDP (Per capita): 49 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 2 510  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 230

2012 data, published by Eurostat in May 2013

The Romanian resettlement programme at a glance Resettlement quota and actors Start of ad-hoc or pilot programme: 2008 Most recent quota: 40 Main national actors: Ministry of Administration & Interior, General Inspectorate for Immigration (GII), Ministry of Foreign Affairs, Director for Asylum & Integration (DAI), Romanian Red Cross, ARCA Romanian Forum for Refugees and Migrants, Save the Children Romania, Jesuit Refugee Service (JRS) Romania.

Resettlement numbers65 Ethnic NationalityÜ and other Year Accepted Arrivals Country of Asylum minorities (if of largest groups applicable)

2013 401 IraqiÜTurkey anticipated

2012

2011 CHAPTER VI 2010 38 38 BurmeseÜMalaysia Kachin 2009

65 Cumulative annual quotas for 2012 and 2013. CHAPTER VII 238

UNHCR Submission categories considered for resettlement - no submission priorities are established in Romania for refugees with specific needs. 10 persons shall fall under the category ”women and children at risk” þ Legal and physical protection needs ¨ Survivors of violence and torture ¨ Medical needs þ Women and girls at risk ¨ Family reunification þ Children and adolescents at risk ¨ Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable) ¨ Emergency max. 7 days between submission and resettlement ¨ Urgent within 6 weeks between submission and resettlement þ Normal within 12 months between submission and resettlement

Romania’s Resettlement that the Romanian resettlement Programme programme should focus on for the coming year. The Committee bases its Legal Basis & Background recommendations on factors including UNHCR's defined global resettlement The Law no. 122/2006 on Asylum in needs, Romania's foreign policy and Romania provides the general legal the joint resettlement priorities of the framework for refugee status eligibility European Union. The Committee's (Art.3). The Government Decision no. recommendations must be approved 1596/2008 included specific infor- by two government ministers prior to mation on criteria, quota and proce- being communicated to UNHCR. dures for resettlement in Romania. This decision expired in 2010 and was Romania has also contributed to global extended by Government Decision no. resettlement efforts through the 810/2012. The National Committee establishment of an Emergency Transit for Refugee Resettlement, a consul- Facility (ETF)66 in Timisoara in 2008. tative body made up of representatives The ETF facilitates transfers of refugees from the Ministry of the Interior and who for reasons of security urgently the Ministry of Foreign Affairs, makes need to be removed from a country of annual recommendations for the coun- asylum, but have not yet been accepted tries of asylum and refugee groups

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 66 See Chapter V for further information on ETFs. ments set by theMinistry ofHealth. tomeet statushealth minimum require - process,selection requires and refugees grationRomanianin society the during refugee demonstrates potentialfor inte Romaniaconsidersalso how far the Criteria related to integration       Persons eligible for resettlement must: Basic criteria Resettlement Criteria country. instead always transferred to athird the ETFdonotstay inRomania, andare Refugees that are accommodated by for resettlement to athird country.

resettled to Romania. have expressly accepted to be morals; and national security, health orpublic not present athreat to public order, dignity; under conditions of safety and repatriation to thecountry oforigin not have perspectives for voluntary the country ofasylum; not have integration perspectives in country ofasylum; tection onthe territory ofthe not benefit from aneffective pro- Status by aState orby UNHCR; the 1951Convention onRefugee be recognised assuchaccording to - Residency &Citizenship Residency Refugee Status, Permanent months. and departure isapproximately 2 processing time between submission and decisions10working is days and Processing timebetween submissions by theDirector General ofRIO. decisions whichneedto beapproved and psychological staff) drafts initial officers, registration officers, medical persons (decisionofficers, integration mission team whichconsists in6-7 Romanian delegation. Theselection out by adoctor travelling withthe vidual medical evaluations are carried during selection missions, andindi- tives from theMinistry ofthe Interior fugees are interviewed by representa- made by Allpre-selected UNHCR. re- All submissionsfor resettlement are andSelection Identification 67 refugees may apply for a permanent After 5years ofcontinuous residency, their arrival. concluded approximately 30days after a Ministry ofthe Interior andissuedwith legally recognised asrefugees by the 'transferred persons'. They are then Resettled refugees enter Romania as 3-year residence permit viaaprocess less thana total of10months ofabsence. than 6consecutive months andifthere has been applicant hasbeen absent from Romania for less Residence periodisdeemed continuous ifthe Romania 67 67

CHAPTER VII CHAPTER VI 240

residence permit if no action has been 18, other family members who are eli- taken regarding their removal from the gible for family reunification include: national territory.  children over 18 if they are single and unable to support themselves Those wishing to naturalise as Romanian for medical reasons; citizens must meet the requirements set  parents and parents-in-law of adult out in the 1991 Romanian Citizenship legal residents if they are unable to Law, which require applicants to: support themselves and if they lack  have been residing on the Romanian family support in their country of territory for at least 4 years;68 origin.  prove attachment to the Romanian The sponsor has to prove that he/she state and people by his/her behaviour has sufficient income to support the and attitude; family member or relative as well as  have reached 18 years of age; appropriate accommodation.  have a legal means of providing for him/herself;  have a general good behaviour and Resettlement in no convictions in the country or Practice abroad for a crime that makes him/ her unworthy of being a Romanian Linking Phases citizen; and  have a good knowledge of the How is information transferred between Romanian language, history, geog- selection and reception of refugees in raphy and Romanian institutions order to prepare for their arrival? enabling him/her to integrate him/ þ Sharing of information gathered herself in the Romanian social life. during Cultural Orientation (CO) Being naturalised as a Romanian citizen always results in the loss of the appli- How is information transferred for cant's former nationality. specific needs (medical or other)? There is no system established to share Family reunification information on specific needs.

Besides the married partners, children Pre-departure under 18 and parents of children under þ Cultural Orientation: CO programmes are not always organised. 68 This is a rule which applies to persons with a refugee status, other third country nationals must prove that they have been legally residing in Romania for at least 8 years (or at least 5 years if they are

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European married to a Romanian citizen). þ þ 69 In-country selection Where they are arranged, determined for arrivals in2013and responsible organisation to be Red Cross for arrivals priorto 2013; Travel arrangements: International mission doctor Medical Exam: Romanian selection tative, withthe supportofIOM. Department and oneNGO represen- sentative from GIIortheIntegration mixed team consisting ofonerepre- out duringtheselection missionby a Romania. In2013, CO willbecarried to integrate after their arrival into on expectations ofrefugees’ efforts asylum, andincorporate discussions procedures from the country of offered to refugees anddeparture tions andvalues, socialservices life inRomania, Romanian tradi- include practical information about funded underthe ERF. Programmes and acontracted NGO partnerand grammes are delivered by GIIstaff resettled in2010. No CO programmed was delivered to refugees submissions UNHCR UNHCR Selection mission Selection mission (Ministry of the (Ministry ofthe Interior) Final decision (Ministry Final decision (Ministry of theInterior) Approx. 2months Pre-departure discussion) CO (under CO (under 69 pro - pre- 2013) Travel Travel (ICRC (ICRC reception centres. for resettled refugees to remain inthe a maximum period of3weeks was set this was notpossible.Inthese cases, mination process sometimes meant the in-country refugee status deter the resettled refugees would go directly to - wherever possible - each group of20 arrivals, thegovernment decidedthat a civilsociety partner. For the 2013 Galati, Romania, operated by GIIand modated inareception centre ration, refugees were initiallyaccom - During the2010resettlement ope- Reception Integration inPractice modate refugees directly into private has stated that to itwilltry accom- In 2013, the Romanian government Placement policies and grant agreement). beyond (based onanopen tender municipalities. Delays caused by not possible, refugees go to areception centre for a maximum of3weeks) municipalities (where Arrival &direct placement in Romania (under discussion) 1-year integration programme in in -

CHAPTER VII CHAPTER VI 242

housing. The first group of 20 resettled at the level corresponding to their refugees will be placed in Bucharest, knowledge, school inspectorates offer while the remaining 20 in Timisoara. a free Romanian language course. There is no financial support from the central government for cities receiving Housing for resettled refugees is resettled refugees. However, the free during the first 12 months, and central government funds programmes financed through the ERF. Resettled implemented by local NGOs based in refugees are assisted by JRS Romania Bucharest and Timisoara. to identify accommodation based on their needs and requirements. Integration services & support Refugees receive a financial assistance of € 124 (540 lei) per month and per Length: 1 year person for 9 months.

Components: GII coordinates the inte- For future groups of resettled refugees, gration programme in cooperation with as a response to the challenges encoun- NGOs, and integration measures for tered by the first group of refugees resettled refugees are mainstreamed resettled to Romania (see 'Strengths into provision for all refugees. For and Challenges' below), JRS Romania resettled refugees, the integration pro- will provide social assistance and coun- gramme begins in a reception centre selling to support access to health and and consists of a language course, education, provide additional language cultural orientation, social counselling courses, and provide material support and two months of financial assistance. and subsidies for food and clothes. JRS Romania will also organise social, re- Outside of the reception centre, creational and cultural activities. refugees can access free language courses (four hours per week for Beneficiaries of international pro- twelve months) provided by school tection in Romania are legally inspectorates using a special cur- entitled to work, and to access unem- riculum.70 Refugees also receive 39 ployment benefits and employment hours of cultural orientation courses support under the same conditions offering information on Romanian as Romanian citizens. An ERF-funded geography, history, the constitution, project implemented by JRS Romania culture and values. In order to facilitate provides refugees with vocational school registration of refugee children training, assistance in looking for jobs and in preparing for interviews. 70 Language courses are delivered in local schools and are based on a special programme for minor and

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European adult foreigners. ¨ ¨ ¨ ¨ þ ¨ forspecific categories 2013 Pledges madeto resettleunderERF No resettlement arrivals in2013. funding Persons resettledusing2012ERF Refugee Fund (ERF) Use oftheEuropean ¨ ¨ ¨ ¨ þ ¨ 2013 resettlement commonEUprioritiesfor Pledges madeto resettleunderERF legal orphysical protection needs tlement orurgentresettlement for Persons inneed ofemergency reset resettlement that can onlybeaddressed through Persons with serious medical needs Survivors oftorture andviolence Unaccompanied minors Women andchildren at risk Programme mentation ofaRegional Protection or region designated for the imple Persons resettled from acountry Eritrean refugees inEastern Sudan Malaysia andThailand Burmese refugees in Bangladesh, Somali refugees inEthiopia Iran Afghan refugees inTurkey, Pakistan, Lebanon, Jordan Refugees from Iraq inTurkey, Syria, Lakes Region Congolese refugees intheGreat - - pening, and severalpening, refugees had tions orunderstand what was hap- were therefore notableto askques- not provided on arrival, and refugees tions before arrival. Interpreters were partially due to inadequate prepara- tered many challenges ontheirarrival, The refugees resettled in2010encoun- employment support. classes, CO sessions, ITtraining and supplementary Romanian language NGOs includingsocial counselling, UNHCR programmes by four national provided to them through ERFand program. Additionalsupportwas within thegovernmental integration Galati reception centre andregistered they were accommodated at the Romania from Malaysia. Upon arrival, refugees ofKachin originarrived to 2010, when agroup of38Burmese resettled refugees onone occasion in To date, Romania hasonlyreceived Challenges and Strengths this study have notbeen madepublic. fugees in2012.To date, theresults of of asylum seekers andresettled re- ation ofthereception andintegration Security, carried outanoverall evalu- the Ministry ofEmployment andSocial The Institute ofSocialSecurity (ISS),in Evaluations Romania 243

CHAPTER VII CHAPTER VI 244

specific health conditions and needs New Developments that they were not able to explain adequately. Many refugees felt that After a problematic resettlement financial assistance and in-kind dona- experience in 2010, Romania did not tions received from the Romanian gov- resettle in 2011 and 2012. In 2013, ernment were not sufficient to sustain however, a new group of Iraqi refugees a decent living, and several requested are planned to arrive from Turkey. The resettlement to another country. Romanian government envisages different measures to facilitate the inte- Most of the group subsequently left gration process of this group, focusing Romania and some sought asylum on increased language learning pos- elsewhere in Europe, mostly in Nordic sibilities (intensive language courses countries. Most were subsequently for the first six months) and becoming returned to Romania. Currently, six ref- economically self-sufficient. Possible ugees are still enrolled in the Romanian measures that have been discussed integration programme for refugees. for implementation include paid or apprenticeship programmes available to refugees within 4 months after arrival (depending on language proficiency).

Additional activities for the 2013 programme are awareness-raising activities aimed at local authorities from the areas where refugees will be accommodated, and outreach to existing Iraqi communities and to employers associations Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 245

Spain at a glance

 Population: 46 196 276  GDP (Per capita): 98 (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 2 565  Total decisions reached in 2012: 2 600  Positive decisions (including refugee status, subsidiary protection or humanitarian reasons): 525

2012 data, published by Eurostat in May 2013

The Spanish resettlement programme at a glance Resettlement quota and actors Start of ad-hoc pilot programme: 2011-12 Most recent quota (2011): Up to 100 persons per year Main national actors: Ministry of the Interior (MoI), Spanish Office for Asylum and Refugees (OAR), Ministry of Employment and Social Security (ESS), Spanish Red Cross, ACCEM, Spanish Commission for Refugee Aid (CEAR).

Resettlement numbers Country of originÜCountry of Year Accepted Arrivals Asylum of largest groups

2013-14 30 To be determined (anticipated to be in anticipated line with the common EU priorities for 2013)

2011-12 80 Eritrean, Sudanese, SomalianÜTunisia

UNHCR Submission categories considered for resettlement CHAPTER VI þ Legal and physical protection needs þ Survivors of violence and torture þ Medical Needs þ Women and girls at risk ¨ Family reunification CHAPTER VII 246

þ Children and adolescents at risk þ Lack of foreseeable alternative solutions

Ministries, authorising the reset- Spain ’s Resettlement tlement of a maximum of 100 refugees Programme in response to the UNHCR’s Global Resettlement Solidarity Initiative Legal Basis & Background calling for states to resettle refugees ex-Libya, from Shousha refugee camp Spain has been involved in ad-hoc in Tunisia. 80 refugees were subse- resettlement since 1999, when it quently selected and arrived in Spain in received Kosovo Albanians under July 2012. the UNHCR Humanitarian Evacuation Programme. On December 28th 2012, the Council of Ministries approved a second A legal basis for resettlement was intro- resettlement programme, authorising duced in the 2009 Law on the Right the resettlement of up to 30 refugees to Asylum and Subsidiary Protection during 2013-14. The programme will (Law 12/2009, October 30th) which again focus on particularly vulnerable sets out the annual adoption of a refugee families, women and minors. national resettlement programme by the government (Law 12/2009, First Resettlement Criteria Additional Provision) that determines the annual quota and priorities. The Basic criteria national resettlement programme is to A refugee must be recognised as such be adopted in close consultation with according to the 2009 Law on the Right UNHCR and other relevant interna- to Asylum and Subsidiary Protection, tional organisations. based on the criteria set out in the 1951 Convention on Refugee Status. The first National Resettlement Programme was adopted on the 7th Refugees can also be accepted for reset- October of 2011 by the Council of tlement for reasons of vulnerability. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Spain in July2012.Spain in final decision, andrefugees arrived in 3 months between submission and the processing timewas approximately For thefirst caseload from Shousha, Asylum for decision-making. final to theInter-ministerial Commission for selection mission, cases were referred viewed by bothOAR and ESS. After the Tunisia, where refugees were inter in June 2012 in Shousha camp in The first selectionmissiontook place gration potential andcapacity. and are responsible for assessinginte- (ESS) participate inselection missions of Employment andSocialSecurity fugees can access. programmes resettled orservices re- resettlement programmeotherin and of resources available bothwithinthe resettled refugees withassessments capacity, comparing theneeds ofthe related to integration potential and Spain appliesbroadselection criteria Criteria related to integration during pre-selected cases are interviewed for initialscreening by to OAR, andall theInterior.of submits cases UNHCR Sub-Direction ofAsylum ofthe Ministry Refugees (OAR) withinthe General asylum istheOffice ofAsylum and The national authorityresponsible for andSelection Identification selection missions. TheMinistry - Family Reunification of residency isten years. tional protection, therequired period beneficiaries of othertypesofinterna- can applyfor Spanishcitizenship. For residency, thosegranted refugee status After aperiodoffive years oflegal residence inthecountry. Spain, are granted five-year permanent ficiaries ofinternational protection in permits. Resettled refugees, asallbene- an identity card andtravel andwork asylum law. They are issuedwith rights andbenefits detailed inSpanish subsidiary protection, includingallthe immediately receive refugee status or On arrival in Spain, resettled refugees &Citizenship Residency Refugee Status, Permanent and theextension ofinternational unity through bothfamily reunification cognises theright to maintain family of origin.The Spanishlegislation re- already livingtogether inthecountry the sponsoruponproof that they were family members whoare dependent on unmarried partners, parents andother for family reunification include are other family members whoare eligible and parents ofchildren under 18, married partners, children under18 members to jointhem.Besides the refugees, can applyfor family Refugees inSpain,includingresettled Spain

CHAPTER VII CHAPTER VI 248

protection to family members who resettlement with a single two- do not individually meet protection hour pre-departure CO, during criteria. Family reunification is not the selection mission, covering included in the resettlement quota. the reception and integration processes of the Spanish resettlement programme, social benefits and Resettlement in employment. Participating refugees Practice were given the opportunity to raise questions. Linking Phases þ Medical Exam: IOM carried out How is information transferred 'fit-to-fly medical exams (ahead of between selection and reception of full medical examinations at the refugees in order to prepare for their reception centres in Spain). arrival? During the 2012 selection mission, þ Travel arrangements: IOM. representatives of ESS used a pre- prepared 'social file' to collect infor- The reception at the airport was mation on particular refugee needs. headed by the General Director for The files were shared with organisa- Interior Policy, the Deputy Director for tions managing reception centres (see Asylum (OAR) and the Deputy Director 'Reception' below) to support prepa- for Integration (ESS). The team that ration of appropriate reception and took part in the selection mission in integration measures. Tunisia, representatives of the centers and entities responsible for their Pre-departure reception in Spain, and representatives of UNHCR and IOM also participated in þ Cultural Orientation (CO): ESS the reception of the resettled refugees provided refugees selected for at the airport.

In-country selection

Arrival & reception centres – Selection 2-hour pre-departure start of the 2-year integration missions (OAR) CO (ESS) programme

UNHCR Pre-departure health Placement in Final decision submissions checks & Travel (IOM) municipalities

3 months 6-12 months Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European an independently inthecommunity, and to adjust to life inSpainbefore living resettled refugees withtheopportunity Reception centres are usedto provide and vulnerabilities ofeach refugee. dependent ontheindividualprofiles months, withthe finallength ofstay in the centres for aperiod of6-12 tract ESS. with Resettled refugees stay and theSpanishRed Cross undercon- directly orby theNGOs ACCEM, CEAR by ESS and managed either by ESS Refugiados' (CARs).CARsare directed centres called 'Centros deAcogida a in Spain, are first received at reception Resettled refugees, like asylum seekers Reception Integration inPractice tance andfinancialsupportin the can only receive integration assis - reception centre is located. Refugees in the samemunicipalitywhere the refugees move into individualhousing Afterstaytheir inthereception centre, and thenumberofavailable places. based onindividualrefugee profiles cates refugees to reception centres of resettled refugees, andinitiallyallo- ESS isresponsible for theplacement Placement their stay at thecentre. is established for each refugee during individual integration programme

to otherregions ifthey would like to. to, butare notprevented from moving municipality they are assigned initially Length: &support Integration services amount that each refugee willreceive, ESS decidesthe annual financial specialist provided services by NGOs. viduals at riskofsocialexclusion to connectinginclude groups andindi - guidelines andobjectives. Thismay accordance in its services withnational quantity andthelevel ofaccessibility grants, andeachregion establishes the into regional for services allimmi- vices for refugees are mainstreamed period oftwo years. Integration ser resettledincluding refugees, for a support for the integration of refugees, National government provides financial facilitate refugees integration. access to that municipalservices will in theirconstituencies by providing with thereception centres located although insomeinstances collaborate not responsible for refugee reception, entation. Spanishmunicipalitiesare healthcare, andcivicsocial ori- education,housing, employment, gration andsupport, including services are responsible for providing inte- Communities (regional governments) In Spain, theseventeen Autonomous Maximum 2years. Spain -

CHAPTER VII CHAPTER VI 250

based on family size, age, vulnerability Pledges made to resettle under ERF and other needs. Financial support71 is specific categories for 2013 received by refugees as pocket money þ Persons resettled from a country when they live in the reception centre or region designated for the imple- and a monthly allowance to cover the mentation of a Regional Protection costs of rent and living expenses after Programme they move to municipalities. Financial ¨ Unaccompanied minors support is received for the first 6 ¨ Survivors of torture and violence months in the municipality, after which ¨ Women and children at risk it is phased out. Refugees can apply for ¨ Persons with serious medical needs an extension of the financial assistance that can only be addressed through if they have particular special needs or resettlement vulnerabilities, but the allowance can ¨ Persons in need of emergency reset- only be paid for a maximum of two tlement or urgent resettlement for years after their arrival. legal or physical protection needs

Pledges made to resettle under ERF Use of the European resettlement common EU priorities Refugee Fund (ERF) for 2013 Spain did not pledge under the Persons resettled using 2012 ERF common EU priorities for 2013. funding þ Persons resettled from a country or region designated for the implementation of a Regional Protection Programme ¨ Unaccompanied minors ¨ Women and children at risk; particularly from psychological physical or sexual violence or exploitation ¨ Persons with serious medical needs that can only be addressed through resettlement

71 A ‘catalogue’ of economic support sets both the nature and the conditions of support as well as the maximum amounts available. The catalogue is revised annually based on identified global needs

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European and budget availability. Challenges and Strengths resettlement have yet beencompleted. 2012, noevaluationsand of theSpanish firstSpain received resettledrefugees in Evaluations  Challenges   Strengths

Refugees resettled to are Spain limited employment opportunities. aresocial services and increasingly quent budgetary reductions for and for the future, withsubse - nomic andfinancialsituation, now Spain isfacing an uncertain eco- vernments andNGOs. between central andregional go- mented through strong partnership tional protection inSpain are imple cants and beneficiaries ofinterna- Integration programmes for appli- heavily ontheSpanisheconomy. which hasimpacted particularly economicand the financial of crisis, This isdespite the ongoing effects mitment to resettlement inSpain. demonstrates astrong political com- further programme 2013-14, in and theplansto implement a resettlement programme for 2012, The implementation ofanational -

resettlement process inSpain’. diagnosis oftherefugees duringtheir participation inthe‘participatory planned inorder to facilitate their sessions withresettled refugees are actors. Additionally, three working local authoritiesandother relevant national authorities, NGOs, regional/ were organised gathering together 2012, national stakeholder meetings process oftherefugees resettled in address challenges intheintegration In order to exchange experiences and New Developments social welfare inthelonger term. refugees willbecome dependent on tlement, anditisfeared that many lenges in their integration and set therefore likely to experience chal- Spain -

CHAPTER VII CHAPTER VI 252

Sweden at a glance

 Population: 9 482 855  GDP (Per capita): 127 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 43 865  Total decisions reached in 2012: 31 520  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 12 400

2012 data, published by Eurostat in May 2013

The Swedish resettlement programme at a glance Resettlement quota and actors

Start of annual quota: 1950 Current quota: 1,900 Main national actors: Swedish Migration Board (SMB), central government authority on Aliens Affairs (under the Ministry of Justice), Ministry of Employment, municipalities and the Swedish Public Employment Service (PES).

Resettlement numbers NationalityCountry of Asylum of Year Accepted Arrivals largest groups 2013 1900 SomalisKenya anticipated AfghansIran EritreansSudan

2012 1827 1728 AfghansIran SomalisKenya EritreanSudan ColombiansEcuador / Costa Rica

2011 1885 1900 SomalisKenya Afghans  Iran EritreansSudan Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 253

NationalityCountry of Asylum of Year Accepted Arrivals largest groups 2010 1776 1799 AfghansIran, Uzbekistan EritreansSudan IraqisSyria SomalisKenya

2009 1922 1882 IraqisSyria, Jordan StatelessSyria IraniansTurkey

UNHCR Submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs - approximately 1,000 individuals are considered on dossier basis  Women and girls at risk  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlement  Urgent within 6 weeks between submission and resettlement - prioritised as emergency or normal - 350 places allocated for emergency submissions (including urgent priority)  Normal within 12 months between submission and resettlement

Sweden’s Resettlement and an annual Swedish Migration Board Programme (SMB) Decision regulates the operation of the programme. The current SMB Legal Basis Decision on Resettlement outlines strategic and operational assessments for Resettlement is regulated by the Aliens 2013.

Act (2005) in which resettlement cri- CHAPTER VI teria are specifically mentioned in the Resettlement Criteria text. The Act serves as the legal basis for resettlement selection and proce- Basic criteria dures. An annual spending authori-  Refugees according to the 1951 sation from the Swedish Parliament Convention on Refugee Status. CHAPTER VII 254

 Persons in need of international Selection mission cases require appro- protection due to armed conflict, ximately 20 days processing time from natural disaster or threats of vio- submission to decision, and Sweden lence/abuse and that qualify for aims to facilitate refugees' arrival subsidiary protection. within 2 months of a decision to accept  Former tribunal witnesses and their for resettlement. Those selected family members. UNHCR is not via dossier submissions receive a involved in these cases as such, but resettlement decision within 3 weeks they are included in the emergency of submission, with the exception of quota. During 2012 one case was emergency cases (1 week) and urgent resettled under this category. cases (2 weeks). During 2012, Sweden resettled 352 refugees as emergency Criteria related to integration cases. None Sweden may consider cases rejected Identification and Selection by other countries. In these cases, UNHCR informs Sweden of the reason Sweden follows UNHCR priorities for for rejection, and Sweden will then resettlement, with a focus on pro- determine the grounds for a refugee tracted refugee situations, particularly claim based on information presented from the Horn of Africa and Iran.72 by UNHCR.

The SMB considers for resettlement In addition to submissions from both refugees interviewed during UNHCR, Swedish diplomatic mis- selection missions (4-5 each year) and sions may on occasion refer cases for via dossier submissions from UNHCR. resettlement. In accordance with the The current quota of 1,900 refugees principle of family unity, resettlement per year is divided more or less equally is generally offered to all members of between those selected during mis- a particular family where one or more sions and those selected on a dossier family members meet the criteria for basis. All cases are assessed in accor- resettlement. dance with the Aliens Act, and SMB case officers make final decisions on all Responding to emergencies - submissions. Sweden’s mixed quota model The Swedish quota is known for its capacity to respond to emergency 72 Sweden chairs the Contact Group on Iran which needs. In 2011, the emergency situa- monitors the strategic use of resettlement in Iran, in dialogue with other resettlement countries, the tion in North Africa led UNHCR to

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Iranian authorities and UNHCR. (photo, fingerprints, signature)and that can obtain biometric information makesa portable useof photo station selected SMB missions, selection during the countryasylum. of For refugees topermit (PUT)prior departure from tlement withapermanent residence SMB issuesrefugees accepted for reset &Citizenship Residency Refugee Status, Permanent be usedfor Syrian refugees. Iran (20).In2013, 200poolplaceswill Horn ofAfrica (20), Costa Rica (20)and Africa (20), allMENA (20),Syria (20), (20), Indonesia (20), Gulf and North nationalities from China/HongKong used to resettle refugees ofvarious reserved for theemergency poolwere the ATCR. In2012, places that were in Julyeachyear around thetimeof use for the places, generally agreed UNHCR to decide uponanalternative emergency occurs, Sweden works with such asthat in North Africa. Ifnosuch of anunforeseen crisisoremergency year, ready to beusedintheevent located duringthe first halfofeach ‘pool’ placesremain formally unal- places withinthe quota. The 250 while alsomaintaining 350emergency 250 places asa non-targeted ‘pool’, to UNHCR’s request, Sweden offered these typesofsituations. Inresponse emergency resettlement needs in available apoolofplaces to meet appeal to governments to make - required for citizenship. is nocivicknowledge orlanguage exam demonstrate good conduct, butthere are foreign citizens. Allapplicants must prove theiridentity andtheirparents after five years, even where they cannot rules -they can become Swedish citizens under 18years are subjectto special apply for Swedish citizenship. Children for eight years before being eligible to country oforiginmust reside inSweden not have identity documents from their prove their identity, and those whodo migrants. Citizenship applicants must granted subsidiary protection other and legal residency, oneyear lessthanthose Swedish Resettled refugees may applyfor upon arrival inSweden. formally applyfor atravel document one entry to Sweden. Refugees can a temporary alienspassportvalid for possess anational passport are issued To facilitate travel, refugees who do not cards inthecountry ofasylum. documentspermanent and residence from the applicant totravel issue both  gible for family reunification include: 18, otherfamily members who are eli- under 18andparents ofchildren under Besides marriedpartners, children Family reunification

sex partners); cohabiting partners (includingsame- citizenship after four years of Sweden

CHAPTER VII CHAPTER VI 256

 persons who have lived close Pre-departure together may be eligible, where a special relationship of dependence  Cultural Orientation: SMB is instructed that already existed in the country by the government to prepare of origin, that makes it difficult for refugees for their resettlement to them to live apart can be proved. Sweden ahead of their departure. To Relationships must be proven either implement this instruction, SMB runs with identity documents or DNA CO programmes, distributes written tests. There is no requirement to materials and shares information demonstrate income or access to online. CO programmes are delivered housing sufficient to meet the needs by SMB representatives, with rep- of incoming family members. resentatives from selected municipalities and PES, both of whom must independently meet the costs of their Resettlement in participation. The CO programme Practice provides groups of both adult and child refugees with approximately Linking Phases 9-10 hours of information, discussions and film viewings. CO programmes How is information transferred between are offered to approximately 50% selection and reception of refugees in of the selected refugees depending order to prepare for their arrival? on location, needs and costs. SMB  Forwarding pertinent information also provides each refugee selected from Refugee Referral Form (RRF) to for resettlement with explanatory integration actors letters and additional information at  Sharing of information gathered the same time as sharing the formal during Cultural Orientation (CO) decision of resettlement or communi- Municipality representatives attending cating travel arrangements. The SMB CO missions transfer information also makes CO information available gathered there on their return to on their website.73 Sweden.  Medical Exam: not standard practice. How is information transferred for Examinations are carried out by IOM specific needs (medical or other)? as needed, and basic fit-to-fly exami- Information on special needs is nations are carried out for all refugees. included in RRFs forwarded to integration actors.  Travel arrangements: IOM

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 73 Available at www.migrationsverket.se/resettlement 74 Administrative Boards (CABs). established by SMB,PES andtheCounty on acounty level distribution quota received by each municipality isbased refugees. The numberofrefugees to be receive refugees, includingresettled 150 ofthe290municipalities inSweden Placement policies their housinginmunicipalities. Sweden andaccompanied directly to resentatives upontheir arrival into Refugees are met by municipalityrep- Reception Integration inPractice relatives that may already beresiding and SMBtries to placerefugees close to number ofrefugees they willreceive, CABs agree withmunicipalities the tiating placement for other refugees. of resettled refugees andPES for nego- responsible for negotiating placement Emergency cases: 1week, Urgent cases: 2weeks, Normal prioritycases: 3weeks Dossier selection (includingemergency andurgent cases) submissions In-country selection County Administrative Board. Sweden isdivided into 21counties, eachwith a UNHCR Selection missions Selection missions Selection ofcases ona dossier basis(SMB) (SMB) 20 days Final decision Final decision 74 SMBis 9-10-hr pre-departure CO (SMB -sometimes with PES andmunicipalities) Pre-departure healthchecks resettled refugees. Thishasledboth quently lessableto offer housing for housing. Municipalities are subse- in available socialoraffordable private the sametimeasanoverall decrease minors into arriving the country, at asylum seekers andunaccompanied substantial increase inthenumber of In recent years Sweden hasseen a receiving refugees aged 65orover. children. No one-off grant ispaidfor for adultsand€332(3,000 SEK) for one-off grant of€830(7,500 SEK) addition, municipalities receive a monthly over a two-year period.In The standard grant isdistributed SEK) for individualsaged 65orover. children received, and€5700(51,400 of €9,100 (82,200 SEK) peradultor municipalities receive astandard grant refugees isvoluntary Municipality participation inreceiving must findtheir own housing. different municipalityat any point, but in Sweden. Refugees may move to a if needed &travel (IOM) Pre-departure health checks (asrequired) & travel (IOM) Sweden . Participating Arrival &direct municipalities reception in programme integration 2-year

CHAPTER VII CHAPTER VI 258

to an under-utilisation of the Swedish integration programme for all new- resettlement quota in recent years, and comers to Sweden. an increase in the numbers of resettled refugees placed in more remote areas PES provides an introduction pro- in the north of the country where gramme for each newcomer, the housing is more readily available. length and content of which will vary depending on individual needs Integration services & support identified with PES caseworkers. Introduction programme activities are Length: approximately 2 years. carried out for up to 40 hours per week, and include language tuition, social Components: Integration programmes orientation courses and employment apply to all newcomers, including support. Language tuition and some resettled refugees. In 2010, respon- professional training is arranged by sibility for coordinating integration municipalities in the framework of programmes was transferred from the national Swedish for Immigrants individual municipalities to the (SFI) programme, which offers 4 levels PES, reflecting the importance of of Swedish education and 3 teaching rapid labour market integration in methodologies (or 'tracks') allocated current Swedish integration policy. according to individuals' educational Municipalities remain responsible for backgrounds and abilities. supporting refugees during the period directly following their arrival and for PES is responsible for facilitating pro- arranging appropriate housing, and fessional training and supporting re- CABs monitor and support the inte- fugees’ jobsearch activities. Refugees gration activities of municipalities may also request an individual ‘guide’ within a given county. to support their employment, education and/or training activities. This change remains a subject of some Guides are provided by a number of debate in Sweden. Some stakeholders organisations contracted by PES. favour the increased standardisation of integration practice that a national Newcomers following an introduction system can provide, while others plan receive an introduction benefit of query the loss of expertise in working around € 27 (231 SEK) a day payable for with refugees developed by munici- five days of each week, and loans are palities over a number of years and if made available to refugees to furnish the specific needs of refugees can be their homes. Ongoing access to the adequately met within a mainstream introduction benefit is conditional on Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European municipalities. local integration programmes insome additional activitiesto complement tlement inSweden, althoughdooffer NGOs are notwidely involved inreset transfers to thereceiving municipality. for arranging language tuitionviaSFI initially placed,andresponsibility other thanthat inwhichthey were refugees whomove to amunicipality dinating integration activitiesfor PES remains responsible for coor the introduction programme. refugees following activities set outin Vattenfall andH&M. nesses such as IKEA, Coca Cola, PES partners have included busi- dating theirskillsandexperience. Refugees receive adocument vali- a three-week paidwork placement. training andskillsvalidation during additionalskillslanguage learning, such assubsidies for ‘on-the-job’ employer, offering various measures tailored to the needs ofthe specific between PES and employers are tocreate ‘Step In’jobs. Agreements (PES) offers subsidies to employers Swedish PublicEmployment Service employment experience, the newcomers to Sweden to gain To provide opportunitiesfor Trotting Association between PESandtheSwedish INTEGRATION INFOCUS:Agreement - - Swedish language training. the remainder undertook further after finishingtheirinternship, while the Swedish Trotting Association the participants were employed by to obtain adrivinglicence. Four of gramme alsooffered the possibility week internship at astable. Thepro- skills assessments andafinal,ten- additional week of occupational of classroom-based education, an assessments, followed by four weeks of two weeks ofoccupational skills market. Theprogramme consisted no experience intheSwedish labour months to two years andwithlittle or countries, livinginSweden from five 40 years ofage from five different eight refugees, aged between 19and The first group ofparticipants were PES. mented aproject for refugees with Trotting Association therefore imple language ability, andtheSwedish for persons with limited Swedish are largely manual, andthussuitable Trotting industry. Jobs inthe sector whom are employed by theSwedish mately 30,000 people, 3,000 of horse industry employs approxi- with regard to refugees. TheSwedish one example of successful practice the Swedish Trotting Association is The programme operated by PES and Sweden -

CHAPTER VII CHAPTER VI 260

Use of the European  Afghan refugees in Turkey, Pakistan, Refugee Fund (ERF) Iran  Somali refugees in Ethiopia Persons resettled using 2012 ERF funding:  Burmese refugees in Bangladesh, 1770 refugees were anticipated Malaysia and Thailand  Persons resettled under a Regional  Eritrean refugees in Eastern Sudan Protection Programme  Unaccompanied minors HIGHLIGHT: Children’s Introduction  Women and children at risk; particu- in Jämtland larly from psychological physical or The ERF-funded ‘Barnintroduktion i sexual violence or exploitation Jämtlands län’ (‘Children’s Introduction  Persons with serious medical needs in Jämtland) project, which ran from that can only be addressed through 2010-12, aimed to improve intro- resettlement duction activities for resettled refugees aged up to 19 years in the county of Pledges made to resettle under ERF Jämtland. specific categories for 2013  Persons resettled from a country The project was delivered by a part- or region designated for the imple- nership of the CAB and 6 munici- mentation of a Regional Protection palities, who together produced and Programme distributed ‘The Best Thing for Kids’,  Women and children at risk a handbook for local practitioners  Unaccompanied minors working with resettled refugee  Survivors of torture and violence children and young people, and com-  Persons with serious medical needs piled a brochure collating good prac- that can only be addressed through tices in the participating municipal- resettlement ities (‘Kids in Focus’). The partners  Persons in need of emergency reset- also engaged in a programme of acti- tlement or urgent resettlement for vities to raise awareness of refugees, legal or physical protection needs resettlement and the particular needs of young refugees amongst Pledges made to resettle under ERF local practitioners and stakeholders. resettlement common EU priorities for The follow-up ‘Begripligt hela vagen’ 2013 (‘Understanding all the way’) project  Congolese refugees in the Great Lakes will run until mid-2014. Region  Refugees from Iraq in Turkey, Syria, The manual and brochure produced Lebanon, Jordan as part of the first project can be Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European of resettled refugees Sweden'in - TheemploymentIncluded? integration research project. 'Resettledand publicationfinal of anERF-funded In 2009,UniversityMalmö the issued been completed. Swedish resettlement programme has prehensive evaluation ofthe national As inmany European countries, nocom- Evaluations 75  Strengths Challenges and Strengths groups resettled to Canada. of resettled refugees Swedenin with licationcontrastedalso theexperiences employmentintegration. and Thepub statusof thehealth ofrefugees on the impact Leone andLiberia,including those from Vietnam, Sierra Bosnia, refugees resettledto Sweden, including strategiesand of different groups of employment experiences, outcomes collected together researchthe on

website at www.barnintro.se. downloaded from theproject integration ofresettled refugees inSweden’, 2009 Sofia ‘Resettled andIncluded? -Theemployment Bevelander, Pieter; Hagström, MirjamRönnqvist, largest inEurope, andstrong The Swedish quota isamongthe 75 -

    Challenges

Sweden grants Sweden

requirement. civic knowledge orlanguage exam made more accessibleby the lackof tively shortperiod (4years) -andis resettled, isavailable withinarela- in Sweden, includingthose whoare Access to citizenship for refugees use ofportable equipment. ments infield situations through the asylum, producing residence docu- their departure from the country of to resettled refugees ahead of this regard. Swedish quota's responsiveness in gency, hasfurther enhanced the year incase of unforeseen emer places, kept free for 6months ofthe ation ofa'pool'250emergency emergency cases. The2011cre- resettlement ofalarge number of facilitates thespeedy departure and both pre-departure andpost-arrival coordination between partners palities. Together withthedecrease and inspecific counties andmunici far a growth insupport for thepolitical newcomers, includingrefugees, with has become lesstolerant toward In recent years thepolitical climate the Swedish quota inrecent years. has ledto the under-utilisation of tlement inSwedish municipalities A lackofavailable housingfor reset

right evident bothnationally Sweden permanent status - - -

CHAPTER VII CHAPTER VI 262

in available housing, this political SMB have implemented several context further complicates ongoing changes to improve how pre-departure commitment of municipalities to information is provided to refugees receive resettled refugees. There selected for resettlement to Sweden. have also been some reports of Written and video information is racism directed toward refugees in available on the SMB website and via particular localities. email, and explanatory letters are  Both language-learning and provided to refugees together with employment remain the main resettlement decisions and travel challenges for refugee integration information. On arrival in Sweden, in Sweden. The 2010 transfer of refugees are provided with a 'Welcome responsibility for integration to PES Card' that describes how their onward directly attempted to address these domestic journey will continue, and issues, although the outcomes of the name of their final destination. the new system are not yet clear.

New Developments

In January 2011, following the transfer of responsibility for implementing integration programmes to PES, responsibility for oversight and coordination of the integration programme nationwide was transferred from the Ministry of Integration and Gender Equality (now defunct) to the Ministry of Employment.

In an extension of its role with regard to the integration of resettled refugees, PES recently began to participate in pre-departure CO programmes, so as familiarise refugees with the Swedish labour market and capture information on individual skills and experience as early as possible in the resettlement process. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 263

The UK at a glance

 Population: 62 989 551  GDP (Per capita): 109 PPS (available for 2011 only) PPS=Purchasing Power Standard, based on the EU 27 average of 100  Asylum applications total: 28 175  Positive decisions (refugee status, subsidiary protection and humanitarian reasons): 7 735

2012 data, published by Eurostat in May 2013

The UK resettlement programme at a glance Resettlement quota and actors Start of annual quota: 2004 Current quota: 75076 Main actors: Home Office, Horton Housing Association, local authorities in the Yorkshire & Humber and Greater Manchester regions, Refugee Action and British Refugee Council.

Resettlement numbers77 Ethnic Nationality  and other Year78 Accepted Arrivals Country of Asylum of minorities (if largest groups applicable) 2013-14 - 750 N/A anticipated

2012-13 740 740 Bhutanese  Nepal; N/A Congolese  Tanzania; Iraqis  Jordan; Ethiopia  Kenya; Sudanese  Egypt;

Eritrean  Egypt; Ethiopian CHAPTER VI  Egypt; Somali  Kenya

76 In addition to resettlement, during 2010-2011, the UK has relocated 10 persons from Malta under the EUREMA I programme (2010-11 ). The UK does not participate in EUREMA II. See Chapter V for further details of intra-EU relocation and the EUREMA programmes. 77 A UK resettlement programme year runs from 1st April to the following 1st April (matching the UK financial year). CHAPTER VII 264

Ethnic Nationality  and other Year78 Accepted Arrivals Country of Asylum of minorities (if largest groups applicable) 2011-12 752 752 Bhutanese  Nepal; Oromo Somali  Kenya; Iraqis  Syria & Jordan; Ethiopians  Yemen; Somali  Yemen

2010-11 613 613 Iraqis  Syria & Jordan; Rohingya Bhutanese  Nepal; Somali  Kenya; Burmese  Bangladesh 2009-10 845 845 Iraqis, Palestinians (ex-Iraq) Karen  Syria & Jordan Congolese  Burmese  Thailand

UNHCR Submission categories considered for resettlement  Legal and physical protection needs  Survivors of violence and torture  Medical needs - up to 3% of the total quota  Women and girls at risk - up to 10% of quota  Family reunification  Children and adolescents at risk  Lack of foreseeable alternative solutions

UNHCR Priority levels accepted (with sub-quota where applicable)  Emergency max. 7 days between submission and resettlemen  Urgent within 6 weeks between submission and resettlement  Normal within 12 months between submission and resettlement Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European benefits asotherrefugees inthe UK. programme butdoreceive thesame not benefit from the GPPintegration historical links. Mandate refugees do nections to theUKthrough family or need ofresettlement whohave con- an unspecified number ofrefugees in which UNHCR refers to the Home Office Mandate Refugee Scheme (MRS), under is alsoorganised undertheseparate it shouldbe noted that resettlement focusGPP isthe primary ofthischapter, in Section59ofthisAct.Althoughthe funding for resettlement are discussed for international collaboration and the programme andlegal framework Protection Programme (GPP), and programme isreferred to asthe Gateway status eligibility. The UK’s resettlement framework for asylum andrefugee Asylum Act(2002)provides thegeneral The Legal Basis&Background Programme The UK’s Resettlement 78  Basic criteria Resettlement Criteria

pdf?view=Binary asylumpolicyinstructions/apis/manadaterefugees. gov.uk/sitecontent/documents/policyandlaw/ Scheme, refer to: http://www.ukba.homeoffice. For further information ontheMandate Refugee Convention. accordingsuch to the1951 Refugee A refugee must be recognisedas Nationality, Immigration and 78 None Criteria related to integration within aim isfor refugees to arrive intheUK final decision can vary, butthe overall Processing timefrom submissionsto by theHomeOffice Refugee Team. All resettlement decisions are made refugees from Nepal were accepted. from 2011-12, when150Bhutanese for resettlement ona dossier basis began considering refugees referred the HomeOffice every year. TheUK selection missionsare carried outby exclusively by Anumberof UNHCR. Submissions for resettlement are made andSelection Identification  ficient demonstrable Englishlanguage the UK' requirement. Those with suf the 'knowledge of language and life in All applicants for citizenship must meet fugees may applyfor UKcitizenship. After 5years residency, resettled re- years limited leave. who are granted refugee status with5 leave to remain, unlike other refugees granted refugee status withindefinite Refugees resettled to the UK are &Citizenship Residency Refugee Status, Permanent

resettlement by UNHCR. A refugee must be submitted for 6 months ofaselection mission. UK -

CHAPTER VII CHAPTER VI 266

ability can take the ‘Life in the UK’ citi- Resettlement in zenship test that includes questions on Practice topics such as legal rights and responsibilities, history and customs of the UK, Linking Phases and is set at a level equivalent to the national English for Speakers of Other How is information transferred between Languages (ESOL) Entry Level 3 standard. selection and reception of refugees in If the applicant’s English ability is below order to prepare for their arrival? this level, he/she can obtain an ESOL  Forwarding pertinent information qualification by taking an accredited from the Resettlement Registration course combining ESOL and citizenship. Form (RRF) and Medical Health Those granted citizenship must attend a Assessments, and relevant infor- citizenship ceremony carried out by the mation gathered at selection inter- local authority of the area in which they views, to integration providers and reside, at which they must swear alle- local and health authorities in the giance to the Queen and undertake to UK uphold both democratic values and the  Other: In some local authorities, laws of the UK. NGOs have organised information sessions for local stakeholders on Family reunification specific refugee groups prior to their arrival. Cases are also assigned to Besides the 'nuclear' family (married caseworkers in advance. partners, children under 18, parents of children under 18), other family Pre-departure members of refugees who are eligible for family reunification include:  Cultural Orientation: Home Office  unmarried partners (including same- mission teams generally provide sex partners); one-day cultural orientation pro-  other family members (in excep- grammes during selection missions tional compelling and compas- in countries of asylum. sionate circumstances).  Medical Exam: IOM pre-selection exams and fit-to-fly assessments. Unlike other migrants, refugees are not  Travel arrangements: IOM required to evidence sufficient income or accommodation to meet the needs of family members joining them in the UK. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Integration inPractice providers were selected through an tlement programme. Theseservice the Home Office to deliver the UK reset support organisation are contracted by 2 NGOs and one specialist housing and arranged. A total of 9 local authorities, whereauthority placement hasbeen Refugees travel directly to thelocal Placement policies 3-4 weeks after arrival. and advice refugees receive intensive orientation to contact inanemergency. Resettled equipment inthe homesafely andwho new housing-includinghow to operate and receive abasicinductionto their palities. They are introduced to staff, accompany them ontravel to munici- (with interpreters asrequired) who in theUK resettlement programme nisations providing integration support airport by staff from one ofthe orga- Upon arrival, refugees are met at the Reception In-country selection submissions UNHCR UNHCR from NGOs duringthefirst missions (Home missions (Home Selection Selection Office) Final decision 5-hour pre-departure CO (Home Office & Max. 6months IOM) checks &Travel (IOM) Pre-departure health - ERF andnational government funding 12 months following arrival, again via funded through theprogramme for the healthcare andeducation are also and housing).Welfare benefits, months specialist integration support and integration costs (including 12 and ERFcovering pre-arrival, reception The GPPisfunded by UK government    via thefollowing 3grant agreements: GPP runsduringthe period2011-14, (see 'Highlight', below). Thepresent open andcompetitive tender exercise

The per year. support organisation, 100refugees Bradford) –specialist housingand (Yorkshire &Humber region -cityof Horton HousingAssociation 180 refugees peryear. the NGO BritishRefugee Council, and Hull)-2local authorities and Humber region -cities ofSheffield Sheffield CityCouncil(Yorkshire & 470 refugees peryear. ities andtheNGORefugee Action, Manchester region) –7local author Resettlement Partnership (Greater Refugee Action, Horton Housing Association & Housing Association & intensive orientation (Refugee Council, North West Gateway Arrival &3-week municipalities) UK Placement in Placement in municipality municipality & 12-month & 12-month programme integration -

CHAPTER VII CHAPTER VI 268

but via separate individual contracts or months of their stay into the UK. NGOs funding arrangements with the com- serve as a liaison point for refugees, petent authorities. providing group information sessions and individual advice, and supporting Integration services & support refugees to access mainstream services including social welfare, edu- Length: 12 months cation and training, healthcare and language-learning. NGOs also promote A 12-month programme of integration integration by strengthening refugee support exclusively for resettled ref- communities, for example by assisting ugees, funded by the Home Office and refugees to establish community organ- implemented by the 2 specialist NGOs isations, participate in local events and and housing/support organisation initiatives. (Horton Housing Association) working on the 3 resettlement programmes Housing is arranged by local author- operating in the UK (see above). ities in the Greater Manchester and Sheffield-Hull programmes and Horton The refugee and their caseworker Housing in Bradford. Housing is both together agree a Personal Integration social housing and that owned by Plan (PIP) that sets out the refugee's private landlords. Housing providers needs and aspirations for the first 12 are also responsible for supporting the Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European resettled to theUK. employment outcomes for refugees research exercise focused onlong-term Home Office isplanningalongitudinal comes across refugee groups. TheUK data for long-term integration out and asubsequent ofcomparative lack for non-resettled refugees intheUK, no national integration programme ugees resettled to theUK. There isalso term integration outcomes for ref is alackofavailable data onthe long- solely for aperiodof12months, there As the GPPintegration programme is Long-term integration: are notregistered asactive jobseekers. and may becharged to attend ifthey stream ESOL classesintheir local areas, GPP. Refugees may register for main- Language classes are notfunded by the area (known as'move-on support'). housing inthesame local authority toauthority find more permanent fugees receive supportfrom thelocal months after arrival, after re- which housing isarranged for thefirst 8-12 Manchester programme, temporary adequate standard. IntheGreater landlords maintain properties to an 'tenancy support'),includingensuring first 12months after arrival, (known as refugee-landlords relationship for the of 7local authoritiesprovides In Greater Manchester, apartnership assistance inGreater Manchester INTEGRATION INFOCUS:Housing

- - staff alsobecomes familiar with other local residents. GPP support housing onmuch thesame basis as about thelocation oflonger term ability to make informed choices initial stability onarrival, andthe arrivals. This model gives refugees - orusedfor future resettlement The initialhousingisthen‘recycled’ first placed. close to, thearea where they were choose to move to housingin, or want to benear, andmost refugees theymunities, amenities orservices based onfactors suchasthe com- can evaluate their housingoptions welfare andlegal systems. They vigate’ housingandassociated social refugees receive supportto ‘na- or inthe private rented sector. The eitherviasocial housinghousing, to findmore permanent ‘move-on’ received therefugees assists them tenancy, the local authoritythat months 12-month 6-9of theirinitial where they would like to live. During their new towns before deciding months to settle inandlearn about that they have approximately 12 Refugees are informed onarrival areas.authority in one ofthe participating local given tenancies ofupto 12months Programme. Resettled refugees are through theGateway Protection housing for refugees beingresettled UK

CHAPTER VII CHAPTER VI 270

the housing and neighbourhoods  Women and children at risk where resettled refugees are initially  Unaccompanied minors placed, and are able to invest in  Survivors of torture and violence long-term, sustainable development  Persons with serious medical needs and awareness-raising work with that can only be addressed through local communities. The model also resettlement enables the regional local authority  Persons in need of emergency reset- partnership to accommodate tlement or urgent resettlement for resettled refugees on an ongoing legal or physical protection needs basis without placing cumulative demands on social housing stock, or Pledges made to resettle under ERF carrying out a housing procurement resettlement common EU priorities for exercise for every arrival group. 2013 The UK did not pledge to resettle under the 2013 common EU priorities. Use of the European Refugee Fund (ERF) HIGHLIGHT: Delivering local resettlement programmes Persons resettled using 2012 ERF Funding for the GPP is a mixture of funding: government and ERF funding chan-  Persons resettled from a country neled through the Home Office. or region designated for the imple- From 2004-10, the Home Office mentation of a Regional Protection commissioned both single organ- Programme isations and consortiums to deliver  Unaccompanied minors local resettlement programmes on  Women and children at risk; particu- an annual basis. Commissioning was larly from psychological physical or via individual grant agreements with sexual violence or exploitation the Home Office that specified the  Persons with serious medical needs number of refugees to be received that can only be addressed through each year period and the Programme resettlement activities. In 2010, to bring the programme into line with wider govern- Pledges made to resettle under ERF mental public procurement practice, specific categories for 2013 the Home Office introduced an open  Persons resettled from a country tendering process for the delivery or region designated for the imple- of the GPP for a three-year period mentation of a Regional Protection during 2011-14, and issued 3 grant Programme agreements for programmes in Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 79  Evaluations An April 2014have notbeen finalised. a new call for tender for GPPafter arrangementsof writing, for issuing Orientation andtravel). At the time checks, pre-departure Cultural pre-arrival element ofGPP(medical awarded the grant agreement for the requirements ofeach. IOMwere streams, conforming to the different for boththeUKandERFfunding 3 grant recipients provide reports quota commitment of750.The every year, totalling the UK’s annual fugees eachprogramme willreceive ments the numberofre- specify Greater Manchester. Theagree Sheffield (andHull),Bradford and odology, conductingquestionnaire study usedalargely qualitative meth- areas oftheUK2009. The during refugees resettled to 6different (Burmese), Iraqi andCongolese (DRC) ences of agroupof 146 Rohingya gramme with regard to the experi- 2010, the study evaluated thepro- mid- in 2011. Carriedout January ac.uk/research/cresr, by the HomeOffice’, HomeOffice (UK), www.shu. Protection Programme, AReport Commissioned Hallam University), ‘An Evaluation ofthe Gateway Platts-Fowler &Robinson, 2011(CRESR &Sheffield the Home Office, from SheffieldUniversityHallam by tlement programme evaluation ofthe GPP reset 79 was in published , commissioned - - 

sharing best practice. relatedissues toresettlement and informationstrategicand policy on These meetings facilitate of sharing at theNationalGateway Forum. actors involvedGPP income together variousgovernment society andcivil Approximately three times ayear, the integration ofresettled adults. benefitedhad thesocio-economic howand volunteering educationand refugees and mainstream services, viders acted asmediators between gration,how integration prosupport - tolanguage limitedhad tuition inte howincluded access alackof findings refugeespecific groups.Other key tomeet capacities theneedsand of that integrationbe adapted support different areas,recommended and groupsality resettledthose and to the programmenation amongboth varying levelssatisfaction of with highlightedFindings the widely implementing the programme. interviewsindividual agencies with groupsresettled with refugees, and research, interviewsfocus and UK - -

CHAPTER VII CHAPTER VI 272

Strengths and  The structuring of the GPP pro- Challenges gramme according to the UK financial year presents challenges Strengths for UNHCR to submit cases within the required programme period.  3-year agreements for the delivery of the national GPP programme facilitate easier planning at the local level, and provide a degree of New Developments transparency in the allocation of resources for local programmes.  The UK fulfilled its resettlement quota for the first time in 2011-12.  Strong partnerships exist between  In June 2010, responsibility for national government and the local national integration policy was authorities and civil society organ- transferred from the Home Office to isations delivering GPP, facilitated the Department for Communities & by the national Gateway Forum and Local Government. A new national regular dialogue between actors. integration strategy targets all third country nationals and existing Challenges migrant communities in the UK, and does not specifically mention inte-  The GPP does not have a specific gration for refugees. language-learning component, and  From July 2012, new biometric resettled refugees must therefore residence permits are issued to all access mainstream ESOL classes. resettled refugees. This new identi- The capacity of ESOL providers can fication can make accessing welfare be very limited in some locations, benefits, employment and other and classes suited to refugees' entitlements more straightforward, educational ability and experi- although submitting biometric data ences may not always be available. on arrival is not possible in every Additionally, resettled refugees that resettlement location and can be arrive toward the end of the aca- time-consuming and prevent ref- demic year or during the summer ugees' initial access to subsistence break may experience longer waiting and other entitlements. times before language-learning can commence. Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European 273

Other Countries the support from these communities already present in the country. Refugees from the former Soviet Bulgaria Republic may be another possibility.

Bulgaria: starting in 2014 Under the envisaged programme for 2014, it is expected that resettled In 2010, Bulgaria established an refugees will be placed for 1-2 Intergovernmental Task Force on months in a central reception centre Resettlement under the State Agency and then would move on to private for Refugees.80 In 2011, it was com- accommodation. municated that a policy framework for resettlement would be developed Resettled refugees will be able to by the end of the year (2013). In June access all standard services provided 2012, during the Stakeholder meeting to recognized refugees but will also organised by the State Agency for benefit from a longer integration and Refugees, the Bulgarian Red Cross support programme. For example, and UNHCR under the ‘Linking-In EU recognized refugees generally receive Resettlement project’, the Bulgarian State-funded housing for 6 months government announced its com- while resettled refugees would receive mitment to resettle 20 individuals in it for 18 months. 2014.81 The refugee profiles and countries of origin will be defined in accor- Lack of available social housing and dance to the EU resettlement prior- municipalities engagement are men- ities and benefit from ERF funding for tioned as being the biggest challenges. countries engaging in resettlement for Therefore, refugees often remain for the first time (between €6.000 - 10.000 longer periods in the reception centres. per person). Bulgaria has a voluntary integration Bulgaria has received asylum seekers programme in place which provides re- from Afghanistan, Iraq, Iran, Syria and fugees with Bulgarian language courses Armenia. It is expected that the same and employment support from which 82 groups will be chosen for resettlement resettled refugees could benefit. CHAPTER VI so that the refugees can benefit from The services envisaged for resettled refugees will be more generous than those that are available for recognized 80 Order No P-57/30.03.2010 81 The decision to launch the programme came too late to qualify for the EC resettlement funding for 2013 as pledges were due by EU Member States by 82 Report from the National Stakeholder Meeting on May 1st, 2012. Resettlement, Sofia, Bulgaria, 19 June 2012 CHAPTER VII 274

refugees. It is expected that additional Hungary resources for resettlement will benefit both groups and lead to an overall upgrading of integration services. Hungary: preparing for resettlement In addition to the resettlement discussions, Bulgaria pledged in 2012 The Hungarian government announced to relocate 4 persons under EUREMA its decision to become a resettlement II (see Chapter V for more details).83 country in October 2010, confirming Such decision was considered as a pre- its commitment through a pledge sub- resettlement exercise84 and helped the mitted to the Ministerial Conference country establish contacts in the reset- organized by UNHCR in Geneva in tlement field. December 2011. While government officials and NGOs have participated in several study visits and twinning programmes, there has been for a long time no movement towards establishing a comprehensive resettlement framework, selection methodology or integration arrangements.

Following the economic crisis, Hungary has been confronted with high unemployment and poverty rates. Over the last 2 years, UN Special Rapporteurs and the Council of Europe have expressed concerns about xenophobia, racism and intolerance encountered by refugees and asylum seekers in Hungary as well as the harsh conditions of detention imposed on asylum-seekers. UNHCR has noted that Hungary has no legal or policy framework for the integration of beneficiaries of international protection. There is however a strong NGO partnership in place including 83 EASO, Fact finding report on intra-EU relocation NGOs such as the Cordelia Foundation, activities from Malta, July 2012 84 Report from the National Stakeholder Meeting on the Hungarian Helsinki Committee,

Chapter VI - European Resettlement Programmes Resettlement Chapter VI - European Resettlement, Sofia, Bulgaria, 19 June 2012 275 the Menedék Association, and the Reformed Church which provide services and legal aid.

The Hungarian government is currently considering the implementation of a pilot resettlement programme. In that context, Hungary pledged to resettle one family (5-8 persons) in 2012- 2013 from the North African region as a response to the ‘Arab spring’. The Hungarian government has not specified resettlement criteria for this first case but it is likely that refugee profiles and countries of origin will be defined according to the EU list of specific and common resettlement prio-rities for 2013.

Before embarking in resettlement, there is however an urgent need to establish the necessary conditions for refugee integration in Hungary and to develop an adequate mechanism to receive resettled or relocated refugees prioritizing essential reception and integration arrangements.

In addition to the resettlement discussions, the Hungarian government was part of the EUREMA project and offered places for a family (5 persons)

from Malta in 2011. CHAPTER VI CHAPTER VII Part I - Resettlement and Refugee Integration Chapter VII – Building a New Life in the Community: Approaches to reception and integration in Europe De Opslach (Netherlands)/UNHCR/P. de Ruiter Bhutanese child playingatelementary school 277 Overview of reception and integration in European resettlement countries

Belgium Czech Republic Denmark after grant of refugee after grant of refugee after 5 years/after 8 Access to PR/citizenship status /after 5 years status/after 5 years years

FEDASIL -IOM DIS or municipalities -Czech Department Receiving for Asylum and organisation Migration Policy - Refugee Facilities

Reception Administration

Centralised/ Centralised (4-6 Centralised (6 Direct Direct weeks) months) reception

Municipal Voluntary Voluntary Mandatory involvement in resettlement

Financial Yes Yes Yes contribution involvement by central Regional/ Municipal Municipal Regional/ government

Mainstream / 12-18 Mainstream / Mainstream /3 years Type/ Duration months minimum 12 months

Flanders & Brussels: n/a Integration contract: civic orientation & Language tuition, Dutch tuition; social vocational training, Mandatory and employment Danish society orientation courses, employment orientation

Wallonia & Brussels: Language tuition, / French tuition & cultural and social Voluntary registration for orientation

Integration programme for refugees for programme Integration employment support

Personalised No No No integration planning

Additional integration -Additional inte- Additional integration services and support gration services and services and support The role of NGOs and support volunteers -Cultural mediator between different stakeholders (BCP) For abbreviations & acronyms see page 282 CHAPTER VII 278 For abbreviations & acronyms see page 282 Finland France Germany on arrival/after 4 upon approval of after 5 years /after 8 Access to PR/citizenship years refugee status/idem years (6-7 years in exceptional cases)

Finnish Red Cross Lead NGO of BAMF Receiving (volunteers) respective organisation programme

Direct Both, depending on Centralised (up to 14

Reception Centralised/ programme (cen- days) Direct reception tralised reception 3-6 months)

Municipal Voluntary Voluntary Voluntary involvement in resettlement

Financial Yes Funding for reception Yes contribution and housing involvement by central programmes run by Regional/ Municipal Municipal Regional/ government NGOs

Type/ Duration Mainstream/3 years Mainstream/variable Mainstream/2 years

Integration plan: Integration contract: Integration course(for Language tuition, Language tuition those with insuf- society orientation (if level deemed ficient language skills) Mandatory courses, short insufficient), civic including language work placements, orientation class tuition and orien- internships tation course

/ Administrative Varies between Voluntary & employment federal states assistance Integration programme for refugees for programme Integration Personalised Yes No No integration planning

Additional integration Administration of Varies between services and support reception centres, federal states The role of NGOs and and/or temporary volunteers housing facilities and provision of most integration services ife in the Community L ife Chapter VII – Building a N ew 279 For abbreviations & acronyms see page 282 Iceland Ireland The Netherlands after 4 years/ after Annually renewable after 5 years/after 5 Access to PR/citizenship 5 years temporary residence/ years after 3 years

Receiving IRC / receiving Representative from COA organisation municipality the selection mission

Centralised/ Direct Centralised (8-12 Direct Reception Direct weeks) reception

Municipal Voluntary Voluntary Mainstreamed into involvement in existing refugee resettlement distribution system

Financial Yes Yes, only for interpre- Yes

involvement contribution tation during the first by central Regional/ Municipal Municipal Regional/ two weeks government

Specialised/1 year Mainstream/up to 18 Mainstream/3 to 5 Type/ Duration months years

Language tuition Cultural, civic and Integration courses psychological language course (in are not mandatory Mandatory assessment, social the reception centre) but the national counselling. integration exam is.

/ Language tuition Civic integration Voluntary and CO course, Dutch language course

Integration programme for refugees for programme Integration Personalised No Yes Yes integration planning

-Additional inte- Additional integration Additional integration gration services and services and support services and support support -Together with munic- The role of NGOs and ipalities, involvement volunteers in the coordination and implementation of the integration programme (IRC) CHAPTER VII 280 For abbreviations & acronyms see page 282 Norway Portugal Romania PR after 3 years /after 5 year residence PR after 5 years/after Access to PR/citizenship 7 years permit/ after 6 years 4 years

Receiving Municipality CPR (with JRS from GII organisation 2013 onwards)

Direct Centralised (6 Direct (unless not months) possible for practical Centralised/ reasons, the stay at Reception Direct reception the reception centre is then limited to a maximum of 3 weeks)

Municipal Voluntary Voluntary Voluntary involvement in resettlement

Financial Yes Not available No contribution involvement by central Regional/ Municipal Municipal Regional/ government

Mainstream/Up to 3 Mainstream/ 6 Mainstream/1 year Type/ Duration years months

Language tuition, 3-hour orientation n/a training, employment, class, language tuition career guidance, (150 hrs) Mandatory social studies (for all refugees between the age of 18-55)

/ -Additional language Language tuition, tuition (150 hrs) CO, health and Voluntary -legal & social support education assistance, social assistance and Integration programme for refugees for programme Integration counselling

Personalised Yes Yes No integration planning

Collaboration with Additional integration Additional integration The role of NGOs and municipalities on services and support services and support volunteers a project basis for (CPR) (JRS) integration activities. ife in the Community L ife Chapter VII – Building a N ew 281 For abbreviations & acronyms see page 282 Spain Sweden UK On arrival/after 5 On arrival/after 4 years On arrival/after 5 Access to PR/citizenship years years

ESS Municipalities &/or Refugee Action/ PES Refugee Council/ Receiving Horton Housing organisation Association (depending on assigned municipality) Reception Centralised/ Centralised (6-12 Direct Direct Direct months) reception

Municipal Voluntary Voluntary Voluntary involvement in resettlement

Financial Yes Yes Yes contribution involvement by central Regional/ Municipal Municipal Regional/ government

Mainstream/2 years Mainstream/Approx. Specialised/12 Type/ Duration 2 years months

n/a Introduction pro- PIP (education & gramme: language training, lan- tuition, social guage learning, Mandatory orientation courses and employment, employment support housing) (depending on the refugee’s needs)

Language tuition, / / vocational training, employment support, Voluntary health assistance and civic & social orien- Integration programme for refugees for programme Integration tation, psycho-social and legal counselling

Personalised No Yes Yes integration planning

- Management of Additional activities to Main providers for some of the CARs complement municipal integration services, under contract with programmes in some also responsible for The role of NGOs and ESS(ACCEM, CEAR and locations. the development volunteers Cruz Roja) and mainte- - Implementation nance of refugee of the integration communities programme CHAPTER VII 282 Abbreviations & acronyms:

BAMF: Federal Office for Migration and Refugees BCP: Burma Centre Prague CAR: Centros de Acogida a Refugiados (reception centres) CO: Cultural Orientation CPR: Portuguese Refugee Council COA: Central Agency for the Reception of Asylum Seekers and Refugees DIS: Danish Immigration Service ESS: Ministry of Employment and Social Security GII: General Inspectorate for Immigration IRC: Icelandic Red Cross JRS: Jesuit Refugee Service PES: Public Employment Service PR: Permanent residency

1. Refugee integration of safety and welcome - that also serve & resettlement as indicators and outcomes of the wider integration process.3 1.1. What is integration? It is widely agreed that institutions in Integration is generally acknowledged the receiving society should provide to be a ‘dynamic, multifaceted and the conditions for successful integration ongoing’ process,1 that is ‘two-way’ in by guaranteeing refugee and migrant the sense that it involves some level of participation in the ‘economic, social, mutual adaptation and accommodation2 cultural, civil and political life’ of the by refugees, migrants and other new- receiving society.4 Rights and opportu- comers and the local communities and nities provided by the receiving society societies in which they settle. Integration are generally articulated together with can be understood as a set of related responsibilities for individual refugees processes - in areas such as housing, within the integration process, for health, employment, language-learning, example by actively pursuing opportu- civic participation and refugees’ feelings nities for language-learning and abiding by the laws and regulations of the receiving society. 1 UNHCR, A note on the integration of refugees in the European Union, 2007 2 European Commission , Common Basic Principles 3 Ager & Strang , Indicators of Integration, 2004 (CBP) for Immigrant Integration Policy in the 4 ECRE, The Way Forward: Towards the Integration of

ife in the Community L ife Chapter VII – Building a N ew European Union, 2004 Refugees in Europe, 2005 283

For refugees, the 1951 UN Refugee Member States’ in this regard.5 The EU Convention lists a range of social, eco- therefore adopts an ‘open method of nomic and legal rights states should coordination’ in relation to integration, afford refugees, including a long- coordinating integration policy without term, secure legal status leading to harmonising it. citizenship, and the possibility of being reunited with family members living in The EU has articulated a common a third country. policy agenda to underpin its actions in the field of integration, most clearly 1.2. EU involvement in set out in the Common Basic Principles Integration for Immigrant Integration Policy in the EU (CBPs) adopted by the Justice and While the EU exercises some level Home Affairs Council in November of competence in a number of areas 2004. The CBPs include the definition related to refugee and migrant inte- of integration (CBP 1 - see above), and gration - such as in immigration policy, the following ten additional principles: reception conditions and family reunification - integration remains a Member CBP 2: Integration implies respect for State competence. There is thus no the basic values of the EU. common European integration pro- CBP 3: Employment is a key com- gramme for refugees or migrants, and ponent of the integration no legally binding European standards process. It is central to immi- on integration. Member States are able grant participation, facilitating to develop national integration legis- and making visible immigrant lation and shape national programmes, contributions to receiving and the extent to which these policies societies and making these and programmes are articulated and contributions visible. implemented thus varies widely across CBP 4: Basic knowledge of the the EU. receiving society’s language, history and institutions is The Lisbon Treaty enables the EU to indispensable for integration, ‘establish measures to provide incentives and immigrants should be and support for the actions of Member provided with opportunities States with a view to promoting the to acquire it. integration of third-country nationals’, CBP 5: Education prepares immi- while also prohibiting ‘any harmoni- grants and their descendants sation of the laws and regulations of for a more successful and

5 Lisbon treaty Article 63a (4) CHAPTER VII 284

active role in the receiving regional actors in facilitating the social, society. political, economic and cultural partici- CBP 6: Integration is facilitated by pation of refugees and migrants in the equal and non-discriminatory EU.7 access to institutions, goods and services for immigrants. The European Commission (EC) has CBP 7: Frequent interaction between developed a number of instruments immigrants and Member and programmes to promote inte- State citizens is fundamental gration through knowledge-sharing to successful integration. and cooperation among different CBP 8: The practice of diverse cul- actors in Europe. In the absence of a tures and religions should be common integration policy, the EC has safeguarded (except where also mainstreamed integration prin- it conflicts with European or ciples into many European legislative national law). and policy areas. CBP 9: Participation in the democratic process, and in the The EU supports programmes to formulation of integration promote the integration of migrants policies and measures, sup- and refugees via two funds - the ports individual integration. European Integration Fund (EIF) and CBP 10: Mainstreaming integration the European Refugee Fund (ERF). should be considered in the Both the EIF and the ERF are part of the formation and implemen- General Programme on Solidarity and tation of all relevant public Management of Migration Flows 2007- policy. 2013 (SOLID). The EIF funds integration CBP 11: Developing clear goals, indi- projects for newly arrived third-country cators and evaluation mecha- nationals (although not for asylum nisms is necessary to review seekers or beneficiaries of interna- and adjust integration policy tional protection), while the European and to exchange information.6 Refugee Fund (ERF) focuses on projects for asylum seekers and beneficiaries of Subsequent communications have international protection. expanded the CBPs by emphasising the importance of the local context for In order to streamline financing for integration, and the role of local and projects with similar beneficiaries, the forthcoming Asylum and Migration 6 European Commission, ‘Common Basic Principles (CBP) for Immigrant Integration Policy in the European Union’ & ‘Communication on the 7 European Commission, European Agenda for the

ife in the Community L ife Chapter VII – Building a N ew Common Agenda for Integration’, 2005 Integration of Non-EU Migrants, 2011 285

Fund (AMF) 2014-20 will unify the EIF, resettled refugees sufficient support ERF and the European Return Fund. and opportunities to facilitate their Resettled refugees will thus become integration, and make available one beneficiary group for AMF funding. appropriate resources and expertise for these measures. 1.3. Integration & refugee  Resettlement states must make resettlement advance preparations for the reception and integration of re- 1.3.1. Integration and the durability of fugees selected for resettlement, resettlement including by establishing specialised Resettlement to a third country plans to meet the needs of specific is designed to provide a durable individuals and groups identified solution to particular refugees’ propre-arrival. tection needs. While the success of  Integration programmes must be resettlement is often conceived of in accessible to all resettled refugees.8 terms of the numbers of refugees that arrive into resettlement countries, for 1.3.2. The particular needs of resettled resettled refugees themselves, arrival refugees marks the beginning of a long process As a general rule, all newcomers to a of settlement and integration. Overall country face similar challenges such evaluations of the durability of reset- as learning the local language, finding tlement should therefore be based housing and employment and under- on both qualitative and quantitative standing social codes and the institu- integration outcomes for resettled tional framework. However, because refugees in the receiving country. of their specific circumstances and journey of migration and arrival, While acknowledging that resettlement resettled refugees often face some is not a right, UNHCR considers that particular common challenges relevant resettlement states have a number of to resettlement planning and services: obligations toward the resettled re-  Resettled refugees have often lived fugees they agree to receive to ensure for extended periods in camp situ- ongoing protection and the long-term ations with very basic facilities, and durability of their resettlement: resettlement is often a sudden move  Resettled refugees must be afforded to a technologically advanced and a permanent legal status that facili- more individualised society. tates access to basic rights and to eventual naturalisation. 8 UNHCR, The Integration of Resettled Refugees: Essentials for Establishing a Resettlement  Resettlement states must offer PRogramme and Fundamentals for sustainable Resettlement Programmes, 2013 CHAPTER VII 286

 Refugees from both camp situa- Reception and Integration of Resettled tions and urban settings may have Refugees’11 which identified 4 key prin- developed dependency on assis- ciples in this area: tance and aid, and so find it dif-  Empowering refugees, fostering ficult to adjust to doing things for independence - programmes must themselves. be designed to take account of the  Having spent many years without cultural background of resettled re- the possibility of planning their fugees, and refugees should have future, resettled refugees can have the opportunity to give feedback unrealistic expectations about their on services and be involved in their new home country, especially in delivery. terms of employment, housing and  Enabling integration - pre-departure social assistance. They are often information must be accurate and unaware that life can be challenging realistic, and be communicated to in highly industrialised countries. both refugees and all actors involved  Resettled refugees often have no in the resettlement process, existing community, family or other including those receiving refugees in support networks that can offer resettlement countries. Integration emotional and orientation support programmes must be time-limited, on arrival, or during the initial linked to mainstream services, period when everything is new and provide translated information on often complicated.9 key topics, make use of personal integration planning and ensure 1.3.2. Principles for reception and access to safe and secure housing integration and family reunification procedures. In September 2010, ICMC organised  Enhancing partnerships, planning a conference10 on resettlement and together - those involved in pro- integration in Europe attended by 45 grammes in receiving countries participants and facilitators from civil must develop mechanisms for joint society organisations and municipal- planning and coordination, and com- ities working with resettled refugees municate with actors in the country in 11 countries. The conference proof asylum to ensure information on duced ‘A Charter of Principles for the refugees’ specific needs is incorporated into pre-arrival reception 9 ICMC, Paving the Way: A Handbook on the Reception planning. Mainstream services in the & Integration of Resettled Refugees, 2011 10 ICMC -led workshop on the reception and inte- receiving country must be informed gration of refugees held on 14-16 June 2010, and organised in the framework of the IOM, UNHCR and ICMC project ‘Promotion of resettlement in the European Union through practical cooperation by 11 ICMC, Paving the Way: A Handbook on the Reception

ife in the Community L ife Chapter VII – Building a N ew EU Member States and other stakeholders’ & Integration of Resettled Refugees, 2011 287

about refugees’ needs to support  builds public support for reset- more informed and effective service tlement, thus creating welcoming delivery both for refugees and the communities; wider community.  is supported with adequate and sus-  Strengthening receiving commu- tainable resources; and nities - the local community must  is part of a broader national strategy be informed about refugees’ arrival, to promote equality, inclusion and and offered opportunities to engage diversity. 12 in welcoming refugees and offering longer term support on a voluntary It is not clear if UNHCR would consider basis. the absence of effective integration programmes and/or national strategies UNHCR echoes many of these practi- on equality and diversity as grounds tioner recommendations for common for postponing or ceasing resettlement principles for the reception and inte- arrangements with a specific country. gration of resettled refugees. It considers both ‘legal integration’ (secure 1.3.3. Selection and integration legal status and access to rights Some European resettlement countries including family reunification) and have adopted resettlement selection effective integration programmes as criteria related to ‘integration potential’, ‘essentials’ for establishing and sus- assessing in the country of asylum how taining resettlement programmes. well an individual refugee will integrate in the future. In both Denmark, Finland For an integration programme for and The Netherlands, the requirement resettled refugees to be effective, to assess integration potential as part UNHCR recommends that it: of resettlement selection is incorpo-  is supported by consultation with all rated into national legislation. Danish relevant stakeholders; legislation, for example, views elderly  is underpinned by clear roles and people and those not literate in their responsibilities for all partners; first language as unlikely to integrate  engages civil society; well into Danish society. In the Czech  ensures access to essential and spe- Republic, Germany and Romania factors cialised services that respond to the such as previous education, language diverse needs of different refugee ability and ‘willingness to integrate’ are groups and individuals; considered within the selection process.  includes feedback mechanisms for all stakeholders, including resettled 12 UNHCR ‘ATCR 2012 Discussion Note - The Integration of Resettled Refugees: Essentials for Establishing refugees; a Resettlement Programme and Fundamentals for Sustainable Resettlement Programmes’ CHAPTER VII 288

Selection based on an assessment of 2. Organising reception integration potential can undermine & integration for or work counter to the role of reset- resettled refugees in tlement as a protection tool for vul- Europe nerable refugees. There are many different ideas about what constitutes 2.1. Placement integrating ‘well’ or not ‘well’ - the factors such assessments will focus on Resettlement placement policies - and the weight attached to each factor or decisions about where to locate within the consideration process will resettled refugees on the territory of subsequently differ quite widely. There the receiving country - can have an is also no empirical evidence sup- important influence on the individual porting the idea that individual inte- integration process. gration outcomes can be predicted. In most European countries, munici- In addition to assessing individual inte- palities voluntarily choose to receive gration potential, many European reset- refugees in their locality. The exception tlement countries consider the capacity to voluntary municipality participation of their programme to offer adequate is Denmark, where municipalities are integration services and support for legally obliged to receive a specified resettled refugees during the pre- number of refugees every year.13 arrival phase. In the UK, for example, the central government Home Office Municipality decisions to participate in and health services in the receiving resettlement are often taken by political city negotiate individual funding for representatives, such as the multi-annual refugees with long-term and/or serious political approval for resettlement health conditions, ahead of refugees’ granted by participating local author- arrival. If an agreement on the level ities in force in the UK. If municipalities of funding to be provided cannot be withdraw their participation in reset- concluded, the refugee concerned (and tlement, as has increasingly happened their dependants) may not be selected in Finland, the country’s resettlement for resettlement to the UK. In some capacity can be significantly reduced and countries where housing is scarce and/ annual quotas are not filled. or expensive, relatively large families may not be selected because of dif- 13 The number of refugees to be received by each ficulties in finding adequate and/or municipality changes each year, and is fixed by negotiation between the central government and affordable housing. Local Government Denmark (the interest group and member authority of Danish municipalities). The legal obligation for municipalities to receive an annually

ife in the Community L ife Chapter VII – Building a N ew determined number of refugees remains constant. 289

It is therefore crucial that national into existing asylum and refugee dis- governments create and maintain tribution systems. In Sweden, for awareness of refugee protection and of example, municipalities negotiate with the importance of resettlement for pro- regional authorities to agree on the tection among local authorities and their number of refugees they will receive partners. Some cities, such as Sheffield in the coming year, with final arrivals in the UK, view resettlement activities as made up both of resettled refugees and a humanitarian commitment on the part refugees exiting the asylum process. of the city, meaning the commitment to running a local programme is highly sus- Other countries have used pre-existing tainable and long-term. Good practices distribution keys and systems for the in terms of awareness-raising include placement of resettled refugees, such the national resettlement stakeholder as Germany’s use of the Königsteiner meetings involving municipalities, NGOs Schlüssel, an established formula for and local welfare agencies in the Czech allocating resources and equalising Republic (2012) and Belgium (2012 provision from federal to state level. and 2013).14 Transparent and adequate While the use of distribution keys can financial compensation for resettlement produce an equitable spread of ref- activities can also be important in main- ugees within a region or national ter- taining municipality support for and ritory, it can also result in a situation involvement in resettlement. This is where refugees are placed in small acknowledged by the current work of numbers in a high number of localities. the Finnish government in reviewing They can then be isolated from others the level and system of reimbursing in their immediate national, language resettlement costs to municipalities or religious community, and from other as the main method for improving migrant communities and specialist their engagement in the national service providers. Smaller refugee programme.15 numbers can also present difficulties for developing good quality local inte- In some European countries, placement gration programmes due to the proof resettled refugees is mainstreamed hibitive economies of scale involved.

The location of affordable housing is a 14 During 2012-13, seven national multistakeholder meetings on resettlement were organised in key driver of placement within reset- the framework of the IOM, UNHCR and ICMC 289 Linking-In EU Resettlement project brought tlement. Larger cities, in which spe- together government officials, civil society, UNHCR and IOM, in Belgium, Germany, Bulgaria, Spain, cialist medical and trauma services and Czech Republic, Portugal and Italy. 15 This work is being undertaken as the VIPRO Project, organisations with expertise in working an initiative of the Finnish government co-funded by the European Refugee Fund. See the Finland with refugees are often located, are country profile in Chapter VI for more information. CHAPTER VII 290

often unwilling to receive resettled ref- services, creating challenges for service ugees because of a lack of available and providers in delivering programmes affordable housing. Affordable housing accessible to all refugees. In the is generally more readily available in Swedish region of Gävleborg, munici- smaller municipalities, which can be palities have addressed this challenge some distance from the main economic through regional cooperation, such and cultural urban centres. For those as holding joint Cultural Orientation with specific employment skills and/or sessions in one municipality to which who wish to access trainings and uni- refugees from around the region are versity education, placement in smaller transported, and jointly procuring or more remote areas can constitute a interpreters for particular refugee huge barrier for integration and their groups. aspirations for their own resettlement. For those from specific religious or cul- When deciding on placement, national tural backgrounds, living some distance authorities may also consider factors away from relevant institutions and such as the presence of similar facilities can also be problematic.16 ethnic, national, religious or language groups, the presence of appropriate Despite these limitations, smaller com- interpreters and the capacity of local munities can offer resettled refugees services when making decisions on a ‘soft landing’ in the resettlement placement for resettled refugees. country in which both essential services and local communities and net- 2.2. Planning reception & works are more easily accessible. This integration can particularly benefit families with younger children, single-parent house- Resettlement is a planned activity, and holds and more vulnerable individuals information about resettled refugees is or groups with limited experience of known prior to their arrival into a reset- larger urban contexts. tlement country. To be effective, local reception and integration programmes Outside of larger cities, affordable must receive information on the groups housing may be located in more iso- and profiles that will come to their lated areas some distance from basic community in an as full and accurate form as possible, and within timescales that make pre-arrival planning realistic. 16 An evaluation of the 2008 local programme to resettle Rohingya refugees to Carlow County in Ireland, for example, found that the absence of a mosque and space for religious burials created huge In Europe, timescales for the provision barriers for their long-term integration, and were the main motivating factors for refugees considering of information to local actors vary

ife in the Community L ife Chapter VII – Building a N ew leaving the area. 291 considerably. In the UK, municipality contain, and must therefore re-interview and civil society organisations agreed refugees to establish their personal with the Home Office that 6 weeks details and histories. was the minimum period in which reception could be planned, and the Data protection regulations in reset- grant agreements that underpin the tlement countries can limit sharing of UK programme currently incorporate personal information about refugees this requirement. In Germany, many amongst stakeholders, in particular cities do not receive information on that related to health. the refugees they will receive prior to their arrival at the central reception 2.3. Partnerships to coordinate facility in Friedland. Refugees stay in resettlement the centre for a period of between one and three weeks, during which time Partnerships underpin the resettlement municipalities are contacted with infor- process at the many different levels at mation on the refugees they are due to which it operates. At the global level, receive, thus limiting the time available UNHCR, IOM, NGOs and national gov- to plan local reception. ernments in countries of asylum and of resettlement work together to identify The accuracy and type of information refugees for resettlement and facilitate about individual refugees and their their travel to resettlement countries. dependants provided to local actors also In resettlement countries, govern- varies across Europe. At a conference ments establish and maintain national organised by ICMC in May 2013, an Iraqi programmes in partnership with local refugee speaker recounted how, due to actors, and local actors themselves col- a lack of efficient information-sharing laborate on reception and integration amongst actors at different levels, his programmes for resettled refugees in disabled child was not provided with a their towns and cities. wheelchair until some time after their arrival, and the family was initially offered In many local resettlement pro- an apartment on the fourth floor of a grammes across Europe, local actors building without an elevator.17 In France, have formed partnership groups and NGOs operating local resettlement structures to coordinate pre-arrival programmes do not receive copies of planning. In Carlow County In Ireland, Resettlement Registration Forms (RRFs) for example, schools, housing pro- or summaries of the information they viders, civil society organisations and health services formed a Resettlement 17 See report of the event ‘A City Says Yes! Welcoming Resettled Refugees in Europe’, held May 8 2013, at Steering Committee to plan for the www.resettlement.eu CHAPTER VII 292

arrival of a group of Rohingya refugees. Resettlement programmes in Europe The Committee produced a reception generally take two distinct approaches schedule with allocated roles for all to reception. Several European reset- partners, and facilitated the pooling tlement countries use a ‘centralised of resources between partners to fund reception’ system, in which resettled interpretation.18 In Swedish munici- refugees are initially received into an palities, informal coordination groups accommodation facility where they stay of key local resettlement partners can for a defined period before moving to arrange to receive individual refugees municipalities. In others, resettled re- resettled on an emergency or urgent fugees move directly into independent basis, often within 1-2 days. accommodation in a municipality after arrival, in an approach referred In both these examples, and in suc- to as ‘direct reception’. Approaches to cessful local programmes elsewhere in reception in European resettlement Europe, a single partner leads on coor- countries are shown below: dinating the local programme, maintaining oversight of a central reception Direct plan, updating partners, suggesting Centralised reception in changes and acting as a single point of reCeption municipalities local contact for national governments. Belgium (6 weeks) Denmark

Czech Republic Finland 2.4. Approaches to reception - (6-8 months) centralised reception or direct placement in local authorities Iceland France (both approaches - 3-6 months)

The ‘reception’ phase for resettled Germany (7 days) Netherlands refugees describes the period directly following their arrival in the country Ireland (8-12 Norway weeks) of resettlement. The length of the reception phase is generally defined Portugal (3-6 Sweden by individual resettlement countries months) within their national programmes, and Romania (6 UK so varies from the first few weeks to months-1 year) periods of up to 6 months after arrival. 2.4.1. Centralised reception Centralised reception is organised in 18 Resettlement in smaller cities and municipalities workshop, EU Resettlement Skills Share Day, 14-15 a number of different ways within May 2012 at www.resettlement.eu Titley, A., Carlow Rohingya Resettlement Programme European resettlement programmes.

ife in the Community L ife Chapter VII – Building a N ew Evaluation Research Report, 2011 293

Some reception centres, such as Centre in Belgium,19 are specifically those in Belgium and France, accom- linked to language tuition and orien- modate both resettled refugees and tation programmes that take place in asylum seekers. Others, such as the receiving municipalities after refugees Integration Centre used in the Czech depart from the centre. Many more resettlement programme, accom- - such as those in Germany - are not modate only resettled refugees. The linked in this way, and local actors in majority of central reception facilities receiving municipalities often express are managed by governmental author- frustration at the ‘lost opportunity’ to ities or agencies. In countries including begin working on long-term integration France, Portugal and Spain, they are directly following arrival. also managed by NGOs. Some resettlement countries use For some resettled refugees, cen- centralised reception as a means to tralised reception can be unsettling or create more time for locating housing frustrating in that it introduces an addi- in municipalities and planning access tional stage of adjustment and waiting to essential services. Not requiring before settlement in municipalities housing to be finally secured prior to and long-term integration. Reception refugees’ arrival can make national facilities can also reinforce, to differing programmes more flexible, particularly degrees, dependencies that have in terms of receiving emergency and developed in camp settings. urgent resettlement cases within short timescales. In cases where housing For highly vulnerable resettled re- proves difficult to secure, however, fugees, in particular those from pro- such as those involving special medical tracted situations and/or who have needs or larger families, refugees may experienced trauma and conflict, an stay in central facilities for far longer initial stay in a reception facility can periods than originally intended. In provide a period of rest and recovery several programmes, NGOs assist in and an opportunity to build resil- identifying suitable housing and liaising ience and capacity for long-term inte- with landlords on refugees’ behalf. gration. It can also offer opportunities to support the long-term integration In some programmes resettled ref- of resettled refugees by providing ugees resident in centralised facilities intensive language classes and civic/ cultural orientation. Some reception 19 The programme delivers the initial modules of the national Inburgering (Integration) programme that orientation programmes, such as operates in the Flemish region and parts of Brussels, and resettled refugees can continue with the same the one provided in the Sint Truiden programme after they move from the centre and to municipalities. CHAPTER VII 294

are assisted to find permanent housing Additionally, a multitude of factors in municipalities, and are able to may delay the departure of resettled choose their area of residency in a refugees from countries of asylum, country or city. resulting in their arriving into resettlement countries later than originally 2.4.2. Direct reception envisaged. Housing providers in direct Direct reception offers resettled re- reception models may therefore be fugees the opportunity for immediate required to ‘block’ accommodation in settlement and integration in munici- anticipation of refugees’ arrival, while palities. Resettled refugees are thus also limiting the additional rental costs faced with a single point of adjustment they incur in doing so. between the country of departure and the resettlement country, and will be 2.5. Mainstream and specialised immediately oriented toward more integration programmes long-term integration and settlement. Children, for example, can immediately In those resettlement countries with start their education at the school they predefined programmes for the inte- will attend in the longer term and start gration of newcomers, services for their new lives without losing addi- resettled refugees are often main- tional time. streamed into this wider provision. This is the case in Sweden, where Immediately placing refugees in a the Public Employment Service coor- municipality requires that adequate dinates a national integration pro- housing is available as soon as refugees gramme available to all newcomers arrive into the country. Direct reception that includes language-learning, can therefore create some significant education and vocational training. challenges for housing providers. In Germany, eligible newcomers can Accurate information on family size, access civic orientation classes and physical disabilities or other needs for up to 600 hours of language tuition adapted housing and equipment, and via a national integration programme any requirements to be close to spe- developed and commissioned by the cialist services, must be collected and federal government. communicated to local resettlement actors prior to refugees arriving. Local Other European resettlement countries programmes must also incorporate have developed specialised integration sufficient flexibility to deal with spe- programmes specifically for resettled cific needs affecting housing that only refugees. In the UK, for example, become apparent after arrival. partnerships of local authorities and ife in the Community L ife Chapter VII – Building a N ew 295 civil society organisations provide a identify and meet their needs, manage 12-month programme of dedicated their circumstances and achieve their post-arrival integration support specifi- aspirations. Those delivering this cally for resettled refugees. support for refugees may have a variety of titles, including caseworkers, support Specialised programmes can be more workers, refugee workers, social workers responsive to the particular needs of or project workers. resettled refugees. They are better able to adapt the integration measures In refugee resettlement, in both main- they offer according to the profiles of stream and specialised reception particular refugee groups, including by and integration programmes, it is ge- engaging new partners with expertise nerally NGOs or municipality social ser- in relevant areas. Specialised pro- vices that provide casework support. grammes also support the devel- Casework support for resettled re- opment of local expertise and refined fugees is typically provided for a approaches for reception, and can defined period, from a few months provide a gradual, structured entry to several years, and can include a into mainstream services for resettled range of mediation and support roles refugees at the end of the programme. including:  orientation to the new country; Mainstreamed provision can also assist  acting as a point of reference for the integration of resettled refugees other services; by providing early opportunities for  emotional support; them to mix with other refugees and  referral to relevant agencies; migrants, and by ensuring integration  advice and information on housing, outcomes for resettled refugees are benefits and other social services; measured alongside those of other  mediation between family members migrant groups. Additionally, main- and the host community; stream programmes often have a  advocacy, support and awareness- strong basis in national policy and raising with mainstream services – funding frameworks and so may be see previous page; more sustainable in the longer term.  family reunion and legal assistance.20

2.6. Casework and Personal By bringing together partners working Integration Plans with resettled refugees in a number of different capacities post-arrival, local ‘Casework’ refers to the process of supporting individuals or families (‘cases’) to 20 ICMC, Paving the Way: A Handbook on the Reception & Integration of Resettled Refugees, 2011 CHAPTER VII 296

partnerships are able to facilitate joint integration planning model are used case management, involving moni- in programmes in Sweden (by the toring the progress in the integration Swedish Public Employment Service), of individual refugees and developing Portugal (Portuguese Refugee Council), joint strategies to address particular the UK (national NGOs) and others. needs. Local partnerships can also act as vehicles for joint projects to enhance 2.7. Working with volunteers resettlement programmes, such as the ERF-funded extended integration Volunteers are an important resource support project developed by the Carlow for resettlement programmes and Resettlement Committee in Ireland. important source of guidance and friendship for resettled refugees in Many agencies and organisations pro- many European countries. viding longer term integration support for resettled refugees use a person- Volunteers can be used in many dif- alised integration planning approach. ferent roles, including: Personalised integration plans are a  language support; tool to set short, medium and long-term  one-to-one mentoring for outcomes and targets for individual employment and befriending; refugees’ integration, and to plan the  orientation to the local area; steps to take in order to achieve them.  social guidance, such as accompa- Plans are generally reviewed at regular nying refugees to appointments; intervals and can be amended over  computer, art and sports classes.22 time, thus providing a highly individualised and flexible way of planning and Volunteers can broaden the integration managing refugee integration. experience of resettled refugees by facilitating social connections outside Personalised integration plans are of refugees’ immediate communities generally co-developed with resettled and of a structured, service delivery refugees themselves, meaning they environment. Volunteers working with reflect refugees’ aspirations for their resettled refugees use their experi- resettlement in addition to assessing ences to raise awareness about refugee their needs. Plans are also a useful resettlement within their own com- tool to show refugees what they have munities, and to help build political and achieved and how far they have come.21 community-based support for current and future resettlement programmes. Variations on the personalised

22 ICMC, Paving the Way: A Handbook on the Reception

ife in the Community L ife Chapter VII – Building a N ew 21 Ibid. & Integration of Resettled Refugees, 2011 297

Raising awareness about Save Me in Aachen/Amnesty International Aachen

Previously resettled refugees of all Several national resettlement pro- backgrounds have a knowledge of the grammes fund civil society organisa- resettlement process and life in the tions to coordinate volunteer pro- resettlement country that can be of grammes. In the UK programme, great value to those who are newly the government funds national NGO resettled. They can therefore be an partners to recruit volunteers to spe- important resource for local reset- cific roles within local programmes, tlement programmes, both as indi- such as befriending and English lan- vidual volunteers and as communities. guage teaching. The Icelandic Red The ‘Save Me!’ campaign in Aachen Cross recruits volunteer friends or fam- enables previously resettled re- ilies in municipalities to assist resettled fugees to volunteer with new arrivals, refugees in local orientation and social hosting welcome and cooking events activities, and the city of Munich funds and acting as city tour guides. In the the Munich Refugee Council to coor- Swedish county of Gävleborg, via the dinate the involvement of volunteers Landa Project23, resettled young people from the ‘Save Me’24 network in the contributed their knowledge and expe- local resettlement programme. rience to the development of a Cultural Orientation programme specifically for refugee youth. 24 ‘Save Me!’ is a German grassroots, city-based campaign begun in Munich in early 2008 by the Bavarian and Munich Refugee Councils, Refugio Munich and Kammerspiele MÛNCHEN. Save Me mobilises local 23 The Landa (‘Leaving, Landing, Living’) Project is an support for and involvement in refugee resettlement initiative to improve pre-departure and post-arrival in over 50 regions, cities and towns throughout cultural orientation for refugees resettled to the Germany. For more information see the 2013 SHARE Swedish county of Gävelborg. Landa is led by the Project publication ‘A City Says Yes! Reflections on County Administrative Board of Gävelborg and co- the experiences of the Save Me campaign to promote funded by the European Refugee Fund. refugees resettlement in Germany’ CHAPTER VII 298

While some European Member States advocacy methods to inform local com- have long-standing traditions of vol- munities about resettlement and build unteering, others have no tradition political and public support for local of voluntary work or of volunteer resettlement programmes.26 In the UK, involvement in refugee resettlement the British Refugee Council hold pre- and integration. Across Europe, civil arrival, multiagency briefings about the society organisations and govern- background and profile of particular mental authorities have produced a refugee groups for local service pro- number of resources for volunteering viders and stakeholders. in refugee resettlement - including films, reports, descriptions of volunteer Resettled refugees can sometimes be roles and tasks - and materials to assist extremely visible in localities unac- in attracting, recruiting, training and customed to migration and/or with no supporting volunteers. To enable vol- established migrant or refugee com- unteering expertise and experience to munities. In some contexts, visibility be further shared among resettlement can increase susceptibility to racism actors all over Europe, the European and discrimination. Some national Resettlement Network has gathered initiatives seek to address this issue together English language translations ahead of refugees’ arrival. In the Czech of volunteering resources produced Republic, for example, mayors of the by organisations in Belgium, Denmark smaller towns and cities that receive and The Netherlands, in addition resettled refugees directly engage in to resources produced in English by building awareness of and support organisations in the UK, all of which for resettlement among the local are available on the Network website.25 population ahead of refugees’ arrival, and work with local media to create 2.8. Strengthening refugee & features giving local residents infor- receiving communities mation about resettlement and the municipality’s programme. Local ‘Save Preparing local communities for reset- Me’ campaigns in Germany promote tlement ahead of refugees’ arrival increased awareness of resettlement can help to create the welcoming and and directly engage local populations supportive conditions essential for successful refugee integration. Local 26 At 2013, 51 German city councils had passed reso- ‘Save Me!’ groups across Germany lutions stating their support for a national refugee resettlement programme and their willingness to developed innovative campaign and receive resettled refugees. Over 7,000 individuals have registered online to offer practical help to refugees after arrival. ICMC and PRO ASYL, ‘A City Says Yes! Reflections 25 These resources are accessible at www.resettlement. on the experiences of the Save Me campaign to

ife in the Community L ife Chapter VII – Building a N ew eu/page/volunteering-refugee-resettlement-0 promote refugees resettlement in Germany, 2013 299 in resettlement, and wider initia- where there is no widespread culture tives carried out by City of Sanctuary of volunteering with refugees or any and Vluchtelingenwerk Vlaanderen other vulnerable groups, and where (Flemish Refugee Council) also benefit it is therefore not possible to create a local resettlement programmes by strong role for volunteers within local building welcoming and supportive resettlement programmes. The Czech communities. Republic, for example, received many Baptist refugees from Burma, many of Bringing refugees together to discuss whom were introduced to local Baptist their experiences can be a useful source congregations on arrival into the of feedback on local resettlement pro- receiving municipalities and are now grammes and a source of social support active members. for refugees themselves. In December 2012, the municipality of Brandýs nad Labem-Stará Boreslav hosted a 3. Integration practice – meeting of Burmese refugees living in setting up the basics the Czech Republic, bringing together previously resettled and newly arrived 3.1. Housing refugees to discuss their experiences. In the Czech programme, individual Access to safe, secure and permanent families are received by smaller towns housing is both a basic integration some distance away from each other, need for refugees, and a key feature and both municipalities and BCP noted of successful and positive refugee inte- the benefits that contact with others gration. The provision of housing for from their community had for indi- resettled refugees is perhaps the most vidual refugees. In the UK, the Gateway crucial aspect of local resettlement Communities Forum (supported by the programmes, dictating as it does where British Refugee Council) brings together refugees can live - both within national community associations formed by ref- territories (see ‘Placement’ above) ugees resettled to Sheffield to plan cul- and within a city or municipality - and tural and civic activities, and support how the organisations and service pro- new arrivals and one another. viders working with them must subsequently structure local integration Religious institutions such as churches programmes. and mosques can provide friendship, voluntary support and a wider social Many different actors are involved network for resettled refugees. This can in the provision of housing in local be particularly important in countries resettlement programmes in Europe. CHAPTER VII 300

Some use housing owned by munici- units can often be large by comparison palities, or by housing companies or to European averages. Many European management vehicles owned/part- towns and cities have existing shortages owned by municipalities. An increasing of housing for both larger families and shortage of social housing in Europe single people. Reductions in social means many programmes source welfare that are currently taking place housing for resettlement from private in many European countries can also landlords. Municipalities or NGOs often restrict refugees’ ability to pay for subsequently act as a liaison between larger housing in the longer term. Some landlords and refugee tenants, building local housing providers in European relationships for defined period after a programmes have developed a number tenancy begins. of strategies to deal with these issues, including splitting larger families over The location of housing for reset- two adjoining properties and accom- tlement within a city or town can modating young adults independently have significant impacts for local inte- from other family members. gration capacity. In bigger cities, low- cost housing is often located in areas Unrealistic expectations of the type where mainstream services such as of housing they would be offered in schools and healthcare are already the resettlement country can colour under pressure from the needs of resettled refugees’ early integration local populations. Many housing pro- experiences. Those from more affluent viders in many European resettlement urban backgrounds may be accustomed cities therefore involve local health to larger houses with gardens,27 while and educational services in planning other groups may associate apartment the location of housing. In many buildings with insecurity and poverty. larger cities, competition for low-cost Both may be dissatisfied with a local housing drives up rental costs, so less- programme that is able to source ening both availability and affordabilty housing only in smaller apartments. for resettlement. Some European resettlement pro- The type of housing provided for grammes create an element of housing resettled refugees similarly influ- choice for resettled refugees. In some ences both individual experiences of centralised reception models, NGOs resettlement and local resettlement provide support and information for programmes. Housing must be of refugees to secure their own long-term adequate size for resettled refugees 27 Platts-Fowler, D. & Robinson, D., ‘An Evaluation and their families, and refugee family of the Gateway Protection Programme: A Report

ife in the Community L ife Chapter VII – Building a N ew Commissioned by the UK Home Office’, 2011 301 accommodation. Other programmes In many national programmes in Europe, provide short-term housing for an initial resettled refugees access language- period of 6-12 months, after which re- learning via mainstream programmes fugees are supported to locate and move available to other refugees and new to more permanent housing. These arrivals in the country. In some of these, models have the advantage of enabling agencies responsible for language refugees to use their awareness of the tuition sometimes develop specialist, city to decide where they want to live highly localised language-learning ini- in it. They also create a pool of static tiatives for resettled refugees, such as accommodation that can be used to the ‘Construindo uma Nova Vida em accommodate new groups on a reliable Portugal’28 project developed by the and sustainable basis, streamlining Portuguese Refugee Council. However, resettlement planning and removing some national integration programmes the ongoing need to procure housing. can lack capacity in particular local contexts, and resettled refugees then 3.2. Language-learning become part of a wider user group competing for limited opportunities for Language-learning is vital for problem- language-learning in their town or city. solving, building social networks and obtaining employment. Europe is Countries using centralised reception rich in languages, many of which are generally provide intensive language- quite challenging to learn. The vast training programmes for resettled ref- majority of resettlement programmes ugees during the stay in the reception in Europe include a specific language- centre, before they move to municipal- learning component for resettled ities and take up mainstream provision. adults, generally via an allocation of In the Czech Republic, for example, a specific number of hours of tuition the Ministry of the Interior guarantees - in Europe ranging from 100 to 500 400 hours of language tuition during hours - completed within defined the 6-month stay in the Integration periods of between 12 months and 3 Centre, with an additional 200 hours years (see Annex V). There are many available via the mainstream State varying national and local caveats as Integration Programme after arrival into to when tuition can continue beyond municipalities. these periods. Some countries make attendance at language classes a 28 From September 2011 to August 2012, this project offered Portuguese language training adapted to requirement for continued receipt of the special needs of resettled refugees, including literacy classes for refugees illiterate in their first social welfare (often together with language or unfamiliar with the Latin alphabet In addition to promoting language and communication attendance at civic orientation classes). skills, the project also aimed to enhance refugees self-esteem and self-confidence. CHAPTER VII 302

In Europe, language-learning outcomes municipalities after refugees leave the are often explicitly linked to residency centres. and citizenship requirements. Both Germany and Denmark restrict per- NGOs sometimes develop civic ori- manent residency to those achieving a entation programmes specifically for specified level of language proficiency, resettled refugees, as in the UK where and Iceland to those completing 250 Refugee Council and Refugee Action hours of language classes. In Denmark, have developed a series of information particularly, refugees can struggle to briefings on UK law, mainstream ser- achieve the B2 language requirement vices, employment and education. In necessary for permanent residence, many European programmes, resettled and so remain on renewable temporary refugees attend civic orientation residence permits for many years. classes within mainstream integration programmes. 3.3. Civic & cultural orientation In Sweden, pre-departure and post- Several European countries provide arrival cultural and civic orientation are post-arrival civic and cultural ori- explicitly linked. Municipalities and the entation programmes for resettled Swedish Public Employment Service refugees. Programme content varies, can participate in pre-departure orien- but generally includes a basic intro- tation activities in countries of asylum duction to the receiving country’s (generally at their own expense) and legal framework, history and electoral initiatives such as the LANDA Project29 system, plus practical information have enabled these actors to develop about the integration programme, and CO curricula to be used across the pre areas such as housing and education. and post-arrival stages. The length of programmes varies widely, from a single 6-hour session Similarly to language proficiency, civic to 50 plus hours of classes. Civic and knowledge is often used by European cultural orientation is often delivered countries as a requirement to acquire together with language tuition. permanent residency or citizenship. Denmark and Germany require appli- Countries using centralised reception cants for permanent residency to pass tend to provide civic orientation a civic knowledge exam. Belgium, the specifically for resettled refugees Netherlands, the UK and others require within central reception facilities. In applicants for citizenship to pass some cases, these classes are linked

to provision that will continue in 29 See footnote 28, above, for more information on the

ife in the Community L ife Chapter VII – Building a N ew Landa Project 303 civic knowledge tests, and the Czech young people leaving school are able to Republic will introduce a social and enter ‘production schools’ that provide historical knowledge requirement for young people seeking employment with citizenship acquisition from 2014. training and placements in a range of different vocational professions. 3.4. Employment & training Language ability is the key barrier Employment promotes integration in to employment for many refugees, a number of key ways, including by including those who are resettled. Even enabling self-sufficiency, improving where basic language skills are acquired, language and creating social and pro- many professions require knowledge of fessional networks. National refugee specific vocational language and termi- and migrant integration programmes nology in order to take up employment. in Europe are increasingly focused on A good practice in this regard is the employment as the long-term goal of national Swedish for Immigrants (SFI) integration. In Sweden, for example, a programme has developed a Labour 2010 change transferred the primary Market Training component that pro- national responsibility for refugee and vides refugees specialised vocational migrant integration from municipalities language training for refugees training in to the Swedish Public Employment specific professions - including welding, Service. bakery, cleaning and bus driving.

The employment skills and experiences European civil society organisations of resettled refugees differ widely and municipalities are increasingly depending on background and pre- engaging with private business in the arrival experiences. Those who were area of employment for refugees, resident in camps may not have worked including those who are resettled. The for long periods, so becoming deskilled, Dutch Refugee Council has worked while others will have no experience of with the national employment office formal employment at all. Some local and private businesses on three sep- actors have developed initiatives to arate programmes to develop 6-month provide resettled refugees with work employment contracts for refugees,30 experience in the receiving country. and the local integration service of the Municipalities in the Czech Republic, for Danish municipality of Faaborg-Midtfyn example, often provide adult refugees works in partnership with a local with ‘starter’ jobs in public services such manufacturer to provide entry-level, as gardening and general maintenance.

In some Danish municipalities, resettled 30 Collectively , the 3 programmes created approximately 3600 placements during the period 2006-12. CHAPTER VII 304

manual employment for resettled Resettled refugees’ expectations of refugees.31 At the European level, employment can also play an important the European Resettlement Network role in their integration experiences. organised a roundtable meeting in late Some highly qualified and experienced 2012 involving governments, NGOs, refugees may have expected to find and private businesses interested in employment in their own profession playing a role in helping refugees to find relatively quickly after arrival, when in employment, which produced several reality their qualifications may not be recommendations to further develop recognised to the level they expected the role of private business in the or they may need to complete extensive employment of resettled refugees.32 retraining programmes.

Municipalities and civil society organisations also assist resettled refugees to 4. Connecting to main- search for employment within the wider stream services labour market. The UK’s 12-month integration programme supports refugees 4.1. Education (children) to compile CVs and complete job applications, and the Burma Centre Prague In European resettlement programmes, recently implemented a programme of resettled refugee children enter main- aptitude testing for resettled refugees stream schools, either after a period of designed to highlight their skills for separate intensive tuition or immediately the Czech labour market.33 Volunteer after arrival. Separate ‘pre-mainstream’ mentors from local populations, such as tuition is delivered in both central those recruited by the Dutch Refugee reception facilities and municipalities Council’s Emplooi programme, can also be that receive refugees directly, and gen- extremely effective in assisting refugees erally includes intensive language tuition to look for jobs in a chosen profession. and orientation into the classroom environment. Centralised reception does not necessarily mean that resettled children 31 Site visit to Faaborg Midtfyn municipality, 304 Look & Learn Visit to Denmark(11-14 June 2012) - in the will attend ‘pre-mainstream’ education framework of the IOM, UNHCR and ICMC ‘Linking-In EU Resettlement’ project and ICMC’s SHARE Project - in the Pôndrome reception centre in 32 Roundtable on private business engagement in the integration of refugees (Brussels, December 2012) Belgium, for example, children attend - in the framework of the IOM, UNHCR and ICMC ‘Linking-In EU Resettlement’ project mainstream schools located close to the 33 Burma Centre Prague’s ‘Improving Employment Opportunities for Refugees from Burma’ project, centre for the period of their stay there. supported by the European Social Fund and implemented from September 2011 until August 2013 The Emplooi programme has operated for 20 years, at different capacities according to available funding. In many European towns and cities, At end 2012, the project had enabled 8500 refugees to find employment, and 2500 to access vocational resettled children can benefit from

ife in the Community L ife Chapter VII – Building a N ew training and/or work placements. 305

Horton Housing Association/2012 the expertise in working with children for local resettlement programmes. of a refugee or migrant background In the Czech Republic, for example, developed by local schools. Many of a school in the town of Brandýs nad these schools have produced resources Labem-Stará Boleslav due to receive to aid learning for children who do 2 resettled pupils ran a series of pre- not speak the national educational arrival resettlement awareness-raising language, including those not literate sessions for staff and pupils, and dis- in their first language, and to support tributed information about the new parents to understand school systems arrivals so existing pupils could greet and engage in their children’s education them when they arrived. in the resettlement country. 4.2. Education (adults) Attending school has been shown to have a positive impact on children’s In almost all European resettlement integration, particularly in terms of countries, resettled refugee adults rapid language acquisition and the are eligible to access mainstream edu- opportunity to form friendships and cation34 on an equal basis with other social networks. In recognition of the adult permanent residents, including role that a welcoming school envi- in terms of equivalent fees, financial ronment can play in the successful support and entry requirements. Where integration of resettled children and young people, many schools have 34 ‘Mainstream education’ here refers to all education provided after mainstream school edu- become active partners in planning cation, including university education but excluding language-learning and vocational training. CHAPTER VII 306

permanent residence is not made imme- Universities generally require pro- diately available to resettled refugees, spective students from overseas to such as in Germany or Denmark, the demonstrate their proficiency in the entitlement to access education may be language of study. At a national level, practically impeded where the length of different specialist language qualifica- the temporary status is less than that of tions are implemented for particular the chosen course or does not meet the professional courses, particularly requirements of student funding assis- those related to medicine. Integration tance schemes. programmes generally provide basic and intermediate language-learning National resettlement placement only, and resettled refugees, like policies can affect how far individual other refugee and migrant groups, refugees are able to pursue further can struggle to access the advanced education or attendance at university. or specialist language tuition they Where housing is provided some dis- need to meet university entrance tance from universities or educational requirements. institutions, resettled refugees must consider travelling long distances or In addition to language proficiency, rec- delaying entry until they can move to a ognition of former qualifications is also different part of the country. a central issue for a refugee’s access to higher education. Many refugees will In the Netherlands, the Foundation not have access to the certificates or for Refugee Students (UAF) supports other documents that confirm their refugees to access higher education former study and, for those that do, by providing advice, information and having qualifications recognised can assistance with tuition fees and living be a time-consuming and challenging expenses. UAF works with the Central process. Where qualifications are not Agency for the Reception of Asylum available or recognised, or are recog- Seekers (COA) and several munici- nised at lower than equivalent level palities to identify refugees wishing in the resettlement country, refugees to pursue university education during may need to complete foundation or resettlement selection, and provide pre-university qualifications. housing for them near Dutch universities. While locating housing in bigger 4.3. Health cities where universities are has proved challenging, UAF has been successful in Health and wellbeing are key com- sourcing housing in smaller ‘satellite’ ponents and outcomes of successful towns close to university cities. integration. In resettlement, accurate ife in the Community L ife Chapter VII – Building a N ew 307 pre-arrival information and planning services have been developed in some are essential to enable local actors - European cities and regions to meet hospitals, health services and those these needs. In 2008, for example, the preparing central reception facilities Swedish county of Jamtland established and housing in municipalities - to a trauma and crisis centre specifically be able to meet the health needs of for traumatised resettled refugees. resettled refugees.

Local actors may require some assis- 5. Longer term inte- tance to understand the implica- gration: family reunifi- tions of particular health needs for cation, permanent resi- housing, education, social care and dency and citizenship other aspects of local programmes. In Norway, the government contracts hos- 5.1. Family reunification pital doctors on a case-by-case basis to review pre-arrival medical information Being separated from family members for individual refugees, and produce can be a significant barrier to refugees’ reports advising municipalities on how integration and wellbeing. Refugees’ to develop local programmes in a way right to be reunited with family that meets the needs of those they will members is set out in the 1951 Refugee receive. Convention35, and UNHCR recommends that resettlement countries apply the Resettlement reception programmes in principle of dependency - meaning Europe generally include assistance for economic, social and emotional depen- refugees to access mainstream health dence - when defining ‘family’ for the services on arrival. Doctors visit cen- purposes of reunification.36 tralised reception facilities in Romania and the Czech Republic directly post- Member State provisions for family arrival, and programmes in Belgium, reunification for refugees in Europe France and the Netherlands assist are regulated at the European level refugees to obtain health insurance as by both the Charter of Fundamental part of wider integration support.

35 Recommendation B on the principle of unity of the In some contexts, housing availability family: ‘the Conference recommends governments to take the necessary measures for the protection can mean that resettled refugees suf- of the refugee s family especially with a view to (1) ensuring that the unity of the refugee s family fering torture or trauma are not placed is maintained particularly in cases where the head of the family has fulfilled the necessary condi- within easy reach of appropriate spe- tions for admission to a particular country.’ - 1951 Convention relating to the Status of Refugees cialist services. Localised specialist 36 UNHCR ‘ATCR 2008 Discussion Paper - Challenges and Opportunities in Family Reunification’ CHAPTER VII 308

Rights, which recognises the obligation on family reunification. The legal to respect family life, and the 2003 status granted to resettled refugees Council Directive on the right to family can restrict family reunification - those reunification of third country nationals, resettled to Germany for example, which determines the conditions under are not granted formal refugee status which family members from outside and so are unable to benefit from the the EU can come to reside in EU three-month exemption for family member states.37 reunification.

While the Directive applies a general, A 2008 report by the European limiting definition of a ‘nuclear’ family,38 Commission found that some Member it provides that Member States ‘may’ States exceed the 2003 Directive’s use an expanded definition in relation minimum standards, while others to family members dependent on a have failed to adequately transpose refugee (see Annex III). The Directive its requirements into their national establishes that those applying for law.40 Additionally, Member States family reunification must evidence have extremely varied approaches to adequate accommodation and defining ‘family’ for the purposes of sickness insurance for themselves and family reunification, as shown in the their family, and a stable and regular table in Annex III. income. Refugees can be exempt from these requirements if they submit their 5.2. Permanent residency & application for family reunion within citizenship three months after refugee status is granted.39 UNHCR’s definition of resettlement requires that the status granted to The multitude of challenges faced by resettled refugees ‘ensures protection resettled refugees in the period directly against refoulement’, provides the after their arrival can make submitting ‘resettled refugee and his/her family family reunification applications within or dependants with access to rights the three-month exemption period similar to those enjoyed by nationals’, challenging. Many reception and inte- and carries with it ‘the opportunity to gration programmes subsequently eventually become a naturalised citizen include early provision of information of the resettlement country’.41

37 Council Directive 2003/86/EC of 22 September 2003 40 Report from the Commission to the European on the right to family reunification Parliament and the Council of 8 October 2008 on 38 Ibid. Article 4. the application of Directive 2003/86/EC on the right 39 Council Directive 2003/86/EC of 22 September 2003 to family reunification

ife in the Community L ife Chapter VII – Building a N ew on the right to family reunification, Article 12 41 UNHCR Resettlement Handbook, 2011 309

The practices of Member States in refugees and their family members. allocating permanent residency to The majority of countries require resettled refugees vary widely (see applicants for naturalisation to pay Annex IV). Belgium, Portugal and the UK fees for tuition, testing and issuing of grant permanent residency to resettled new passports and associated identity refugees on arrival and without any documents. additional requirements. Others grant temporary residency permits that must While many resettled refugees be periodically renewed, and make have naturalised as citizens of their acquisition of permanent residency receiving country, for others language conditional on minimum residency requirements mean that citizenship is periods (ranging from 3 to 7 years) and almost impossible to obtain despite a range of other requirements such as long periods of residency in the completing language and orientation receiving country. As noted above in courses, passing related tests and 3.3, resettled refugees in Denmark being economically self-sufficient. can struggle to attain the language proficiency necessary for a grant of Access to citizenship and nationality permanent residence, and so remain was originally included in the reset- on renewable temporary residence tlement definition to protect refugees permits for many years. from the possibility that hosting states would withdraw their protection. In 2011, the EU amended existing le- Naturalisation as a citizen of the gislation on long-term residents of receiving country is often considered third countries to include refugees and to be the end of the ‘legal integration’ beneficiaries of subsidiary protection, process,42 while social and economic who can now acquire long-term res- integration may continue for longer ident status after legally living in the periods. EU for 5 years or more.43 Long-term refugee residents for whom citizenship In many countries both within and is not accessible after 5 years or in the outside of Europe, access to citizenship longer term can now enjoy the right to is subject to a minimum period of free movement within the EU, and take residency. In addition, many countries up residency in another EU Member have introduced language and civic State as they wish. knowledge tests as a pre-condition for naturalisation, including for both 43 2011 amendment to the Council Directive 2003/109/EC of 25 November 2003 concerning the 42 UNHCR, ‘A note on the integration of refugees in the status of third-country nationals who are long-term European Union’ , 2007 residents CHAPTER VII 310

BIBLIOGRAPHY UNHCR Executive Committee, ‘Protracted refugee situations’, 30th meeting of the Chapter I – RESETTLEMENT AND Standing Committee, EC/54/SC/CRP14, 2004 INTERNATIONAL PROTECTION UNHCR, An Introduction to International 1951 Convention Relating to the Status of Protection, August 2005 Refugees UNHCR Executive Committee, Conclusion 1967 Protocol Relating to the Status of on Protracted Refugee Situations, No. 109 Refugees (LXI), 8 December 2009

UN General Assembly, Statute of the Office UNHCR, Resettlement Handbook, 2011 of the United Nations High Commissioner UNHCR, Global Appeal 2012-2013 – for Refugees, 14 December 1950, A/ Bangladesh, December 2011 RES/428(V) UNHCR, Global Trends 2012 European Commission, Commission Staff Working Document, General Guidelines UNHCR, UNHCR calls for urgent action to on Operational Priorities for Humanitarian prevent Rohingya boat tragedies, Briefing Aid in 2013, 27 November 2012 notes, 22 February 2013

Loescher, G. & Milner, J., Responding to UNHCR Projected Global Resettlement protracted refugee situations. Lessons Needs 2014 from a decade of discussion, Forced Migration Policy Briefing, January 2011 Chapter II – GLOBAL RESETTLEMENT

Radio Free Asia, UN expert visits refugee High Commissioner’s Forum, Multilateral camps, 11 February 2013 Framework of Understandings on Resettlement, FORUM/2004/6, September Pavanello, S., Elhawary, S. & Pantuliano, 2004 S., Hidden and exposed: Urban refugees in Nairobi, Kenya, HPG Working Paper, UNHCR/IOM/39/97-FOM/44/97 of 27 March 2010 May 1997 on cooperation between UNHCR and IOM UNHCR, The Strategic Use of Resettlement, June 2003 UNHCR, Discussion Paper: Implementation of the Strategic Use of Resettlement, UNHCR, Agenda for Protection, October 2003 September 2011 Bibliography 311

UNHCR Policy Development des Evaluation Human Rights Watch, World Report 2013. Service, Leaving Libya. A review of UNHCR’s emergency operation in Tunisia and Egypt, Human Rights Watch, Ad Hoc and 2011-2012, April 2013 Inadequate. Thailand’s Treatment of Refugees and Asylum Seekers, September Chapter III – REFUGEE SITUATIONS IN 2012 FOCUS IOM Nepal, Resettlement of Bhutan Amnesty International, CCME, ECRE, Letter Refugees from Nepal Passes 75,000, to the Cyprus Presidency – The Syrian December 2012 refugee crisis and the role of the European Union, October 2012 International Rescue Committee, Syria: A Regional Crisis – The IRC Commission on Amnesty International, Abused and Syrian Refugees, January 2013 Abandoned – Refugees denied rights in Malaysia, June 2010 Jesuit Refugee Service, Kenya, Civil society group urges government to end abuse of Danish Refugee Council, Living conditions refugees, January 2013 for Afghan refugees in Iran are decreasing, March 2013 Paddon, E. & Lacaille, G. (Refugee Studies Centre), Stabilising the Congo, Forced European Commission, Commission Staff Migration Policy Briefing 8, December 2011 Working Document, General Guidelines on Operational Priorities for Humanitarian Swedish Migration Board, Continued Focus Aid in 2013, November 2012. on the Horn of Africa in Sweden’s Quota Selections for 2013, February 2013 European Parliament & European Council, Annex, Decision No 281/2012/EU of the UNHCR, Protection of refugees in mass European Parliament and of the Council influx situations: overall protection of 29 March 2012 amending Decision No framework, Global Consultations on 573/2007/EC establishing the European International Protection 1st meeting, 19 Refugee Fund for the period 2008 to 2013 as February 2001 part of the General programme ‘Solidarity and Management of Migration Flows’ UNHCR, International Conference on the Solutions Strategy for Afghan Refugees, Harper, A. Iraq’s refugees: ignored and to support Voluntary Repatriation, unwanted, in International Review of the Sustainable Reintegration and Assistance Red Cross, Volume 90, no.869, March 2008 to Host Countries, May 2012 312

UNHCR & ATCR 2013 Fact Sheet on pri- UNHCR Tool for Participatory Assessment ority situations for the strategic use of in Operations, May 2006 resettlement UNHCR, Guidelines on Determining the UNHCR, Strategy for Enhancing the Use Best Interests of the Child, May 2008 of Resettlement as a Protection Tool for Durable Solution for Syrian Refugees, 2013 UNHCR, The Heightened Risk Identification Tool, June 2010 Chapter IV – THE RESETTLEMENT PROCESS: FROM IDENTIFICATION TO UNHCR, Baseline Standard Operating DEPARTURE Procedures on Resettlement, 2011

1984 Cartagena Declaration on Refugees UNHCR, Baseline Standards Checklist (annex to Baseline Standard Operating IOM, IOM Resettlement Services, 2012 Procedures on Resettlement), 2011

MOST project, Pre-departure Orientation UNHCR-IRC, Field Handbook for for Resettled Refugees: a Guide, 2008 the Implementation of UNHCR BID Guidelines, 2011 Organization of African Unity, 1969 Convention Governing the Specific Aspects Dutch Immigration and Naturalisation of Refugee Problems in Africa Service, Video Interview Pilot, February 2011

UN General Assembly, Convention on the UNHCR Guidance note on Emergency Rights of the Child, 20 November 1989, Transit Facilities, 4 May 2011 United Nations, Treaty Series, vol. 1577 Chapter V – RESETTLEMENT IN UNHCR, Pre-Mission Questionnaire for EUROPE Resettlement Interview Missions EASO (July 2012) Fact finding report on UNHCR, Pre-Mission Checklist for intra-EU relocation activities from Malta Resettlement Interview Missions Regulation of the European Parliament and of the Council establishing a European UNHCR, Operational Guidance Note: Asylum Support Office, 19 May 2010 Preparing Abridged Resettlement Registration Forms (RRFs) for Expedited Council of the EU, Conclusions on the Horn Resettlement Processing of Africa, 14 November 2011 Bibliography 313

Council of the EU, Council Conclusions European Commission, Communication on a Common Framework for genuine from the Commission to the Council and and practical solidarity towards Member the European Parliament on Regional States facing particular pressures on their Protection Programmes, 1 September asylum systems, including through mixed 2005, COM(2005) 388 final migration flows, 3151st Justice and Home Affairs Council meeting, 8 March 2012 European Parliament & European Council, Decision No 573/2007/EC of European Council, Presidency Conclusions, the European Parliament and of the Tampere, 15-16 October 1999 Council of 23 May 2007 establishing the European Refugee Fund for the period European Commission, Communication 2008 to 2013 (called: ERF III) as part of from the Commission to the Council and the General programme “Solidarity and the European Parliament Towards a Management of Migration Flows” and common asylum procedure and a uniform repealing Council Decision 2004/904/EC status, valid throughout the Union, for persons granted asylum, November 2000 European Union Council, Council Conclusions on the reception of Iraqi refugees, 2987th European Commission, Communication Justice and Home Affairs Council meeting, from the Commission to the Council and Brussels, 27-28 November 2008 the European Parliament on the Managed Entry in the EU of persons in need of inter- European Commission, Evaluation of Pilot national protection and the enhancement Regional Protection Programmes, 2009 of the protection capacity of the regions of origin “improving access to durable solu- European Commission, Communication tions”, 4 June 2004 from the Commission to the European Parliament and the Council on the European Commission, Proposal for a Establishment of a Joint EU Resettlement Decision of the European Parliament and Programme, September 2009 of the Council of amending Decision No 573/2007/EC establishing the European European Commission, Communication Refugee Fund for the period 2008 to from the Commission to the European 2013 as part of the General programme Parliament, the Council, the European 'Solidarity and Management of Migration Economic and Social Committee and the Flows' and repealing Council Decision Committee of the Regions Building an 2004/904/EC, COM(2009) 447 final open and secure Europe: the home affairs budget for 2014-2020, 15 November 2011 European Commission, Communication 314

on enhanced intra-EU solidarity in the the proposal for a regulation of the field of asylum – An EU agenda for better European Parliament and of the Council responsibility-sharing and more mutual establishing the Asylum and Migration trust, 2 December 2011 Fund, Rapporteur: Sylvie Guillaume, 12 December 2012 European Commission European Refugee Fund 2008-13 - Community Actions Work ICMC & IRC, 10 000 refugees from Iraq, Programme for 2012, 2012 A Report on Joint Resettlement in the European Union, 2010 European Parliament and European Council, Decision No 281/2012/EU Migration Policy Centre (February 2013) by the Parliament and the Council on Between Solidarity and the Priority to Amending Decision No 573/2007/EC Protect – Where Refugee Relocation Establishing the European Refugee Fund meets Refugee Resettlement for the period 2008 to 2013, 29 March 2012 Chapter VI – EUROPEAN RESETTLEMENT PROGRAMMES European Commission, Commission Staff Working Document on the Third Chapter VI is mainly based on interviews Annual Report on Immigration and with representatives of international Asylum (2011) accompanying the organisations, national governments, Communication from the Commission to regional and local authorities and NGOs. the European Parliament and the Council Third Annual Report on Immigration and Chapter VII – BUILDING A NEW LIFE Asylum (2011), 30 May 2012 IN THE COMMUNITY: Approaches to reception and integration in Europe European Parliament, Resolution on enhanced intra-EU solidarity in the field Council of the European Union, Council of asylum, 11 September 2012 Directive 2003/86/EC of 22 September 2003 on the right to family reunification European Commission, Proposal for a Regulation of the European Parliament ECRE, The Way Forward: Towards the and of the Council establishing the Integration of Refugees in Europe, 2005 Asylum and Migration Fund, COM(2011) 751 final, 15 November 2011 European Commission, European Agenda for the Integration of Non-EU European Parliament, Draft mandate Migrants, 2011 for inter-institutional negotiations on Bibliography 315

Report from the Commission to the - The Integration of Resettled Refugees: European Parliament and the Council Essentials for Establishing a Resettlement of 8 October 2008 on the application Programme and Fundamentals for of Directive 2003/86/EC on the right to Sustainable Resettlement Programmes' family reunification UNHCR, The Integration of Resettled European Commission, Common Refugees: Essentials for Establishing Basic Principles (CBP) for Immigrant a Resettlement Programme and Integration Policy in the European Fundamentals for sustainable Union, 2004 Resettlement Programmes, 2013

European Parliament & Council of the UNHCR Resettlement Handbook, 2011 European Union, Directive 2011/51/ EU of the European Parliament and of UNHCR 'ATCR 2008 Discussion Paper - the Council of 11 May 2011 amending Challenges and Opportunities in Family Council Directive 2003/109/EC to extend Reunification' its scope to beneficiaries of international protection UNHCR, A note on the integration of refugees in the European Union, 2007 ICMC and PRO ASYL, A City Says Yes! Reflections on the experiences of the Ager & Strang , Indicators of Integration, Save Me campaign to promote refugees 2004 resettlement in Germany, 2013

ICMC, Paving the Way: A Handbook on the Reception & Integration of Resettled Refugees, 2011

Platts-Fowler, D. & Robinson, D., 'An Evaluation of the Gateway Protection Programme: A Report Commissioned by the UK Home Office', 2011

Titley, A., Carlow Rohingya Resettlement Programme – Evaluation Research Report, 2011

UNHCR 'ATCR 2012 Discussion Note 316 ANNEX I - UNHCR Resettlement Submission Categories in Focus

Legal and/or Physical Protection Needs

Definition Refugees falling under this category are faced with threats which seriously jeopardize their continued stay in a country of refuge and resettlement is seen as the only means to preserve their fundamental rights and to guarantee their protection. The legal and/ or physical protection needs of refugees may differ depending on personal characteristics of the individual concerned, such as their sex, age, disability, sexual orientation, gender identity, ethnicity or other characteristics.

Conditions for One or more of the following conditions must be met: resettlement  immediate or long-term threat of refoulement to the country of origin or expulsion to another country from where the refugee may be refouled;  threat of arbitrary arrest, detention or imprisonment;  threat to physical safety or fundamental human rights in the country of refuge, rendering asylum untenable.

Survivors of Violence and/or Torture

Definition Refugees who have survived torture or violence may have specific needs that warrant resettlement consideration because the trauma they have endured may have a serious detrimental effect on their mental and physical well-being. The situation in the country of asylum may not be conducive for effective medical, psychological and/or support and may compound the trauma.

Conditions for All 5 conditions must be met: resettlement  has experienced torture and/or violence either in the country of origin or the country of asylum; and  may have lingering physical or psychological effects from the torture or violence, although there may be no apparent physical signs or symptoms; and  could face further traumatization and/or heightened risk due to the conditions of asylum or repatriation; and  may require medical or psychological care, support or counselling not available in the country of asylum; and  requires resettlement to meet his/her specific needs.

Specific Survivors of violence and/or torture may not be easily identified unless they show challenges clear signs of trauma or inform UNHCR of their experience.

Medical Needs

Definition Refugees whose medical needs have been assessed by an independent clinical practitioner who has determined the medical diagnosis and prognosis for treatment. The most serious and compelling cases that can only be addressed through resettlement will fall under this category. Annexes 317

Medical Needs

Conditions for All 4 of the following conditions must be met: resettlement 1. Diagnosis  The health condition and/or disability is life-threatening without proper treatment; or  There is a risk of irreversible loss of functions without proper treatment; or  The particular situation/environment in the country of asylum is the reason for or significantly worsens the health condition; 2. Treatment  Adequate treatment is not available or is inaccessible in the country of asylum; and  Adequate treatment cannot be ensured through temporary medical evacuation to a third country; 3. Prognosis  The health condition and/or disability presents a significant obstacle to leading a normal life and puts the individual and/or dependent family member(s) at heightened risk in the country of asylum; or  The particular situation/environment in the country of asylum significantly worsens the health condition and/or disability; and  There is a favourable prognosis that treatment would significantly improve the health condition or lead to an improvement in daily functioning and quality of life; 4. informed consent It is the expressed wish of the individual, after having been counselled, in particular with regard to prospects for treatment of the medical condition or disability as well as the social, cultural and psychological adaptation required in a new community.

Specific  Resettlement opportunities are limited. challenges  Difficulty to promote resettlement of persons with medical needs

Women and Girls at Risk

Definition Women or girls who have protection problems particular to their gender, and lack effective protection will fall under this category. They may be: single heads of families, unaccompanied girls or women, or together with their male (or female) family members. They may be at risk of or have suffered from a wide range of protection problems, including expulsion, refoulement and other security threats, sexual violence, physical abuse, “corrective” rape of women perceived to be lesbians, intimi- dation, torture, particular economic hardship or marginalization, lack of integration prospects, community hostility, and different forms of exploitation.

Conditions for Resettlement under this category is considered when: resettlement  She faces precarious security or physical protection threats as a result of her gender;  Has specific needs arising from past persecution and/or traumatization;  She faces circumstances of severe hardship resulting in exposure to exploitation and abuse, rendering asylum untenable;  There has been a change in the social norms, customs, laws and values resulting in the suspension of or deviation from traditional protection and conflict resolution mechanisms and the lack of alternative systems of support and protection. This places the refugee woman or girl at such risk that it renders asylum untenable. 318

Women and Girls at Risk

Specific Women and girls are often less visible in displaced populations than men and boys challenges and may not be able to report protection incidents, particularly if these occur in the private domain or are perpetrated by humanitarian workers.

Family Reunification

Definition The submission of a resettlement case under this category is made to reunite refugees with a family member already in a resettlement state. In some situations, the State’s direct family reunification or other humanitarian programmes will be privileged. But in other situations, family members may not meet the state’s criteria, there may be very long waiting lists, or the circumstances of the family member in the resettlement country makes it unlikely that the reunification will be processed quickly. In these cases a resettlement submission may be a solution.

Conditions for All 4 of the following conditions must be met: resettlement  At least one person within the family unit to be reunited is a refugee under the UNHCR mandate or a person of concern to UNHCR; and  The individuals to be reunited are family members under UNHCR’s inclusive definition; and  The individuals are reuniting with a member of the family already in a resettlement country; and  The availability and accessibility of other family reunification or migration options has been reviewed and the submission of a resettlement case has been determined to be the most appropriate option given the resettlement needs and protection implications for the family member.

Specific  Restricted to cases facilitating reunification of refugees in a country of asylum with challenges a family member already in a resettlement country;  Dispersal of family members;  While UNHCR relies on the concept of dependency, states’ family definition may be more restrictive.

Children and Adolescents at Risk

Definition Children at risk have legal and physical protection needs, may be survivors of violence and torture, and may be submitted for resettlement to facilitate family reunification. Girls at risk may also be submitted under the Women and Girls at Risk category.

Conditions for A child and adolescent submitted under this category: resettlement  is under 18;  may or may not be an unaccompanied or separated child. All unaccompanied and separated children being considered for resettlement require a Best Interests Determination (BID);  has compelling protection needs which are not addressed in the country of asylum and resettlement has been determined to be the most appropriate solution.

Specific  In the context of resettlement, it should be borne in mind that some countries challenges require that every individual, including children, meet the refugee definition, whether or not the child is the principal applicant.  It may be difficult for an unaccompanied child to establish refugee status using the same refugee criteria and procedures applied to adults. Annexes 319

Lack of Foreseeable Alternative Durable Solutions

Definition This submission category focuses on refugees who do not require resettlement for immediate protection needs, but who require an end to their refugee situation – a durable solution. These refugees are unable to return home in the foreseeable future, and have no opportunity to establish themselves in their country of refuge. In many cases, these refugees are in protracted refugee situations.

Conditions for The submission of groups of refugees under this category requires prior resettlement consultation with the Resettlement Service at UNHCR Headquarters, as well as resettlement states. An abridged Resettlement Registration Form (RRF) may be developed under the group methodology. The preconditions and the indicators relating to legal protection and durable solutions, conditions of asylum, the socio-economic situation, and the individual’s psychosocial situation must be carefully considered.

Specific One of the main challenges for UNHCR is to resettle refugees who objectively challenges are without local integration prospects in the first country of asylum while at the same time working towards expanding and strengthening the quality of asylum and the refugees’ local integration prospects.

ANNEX II - THE The standard RRF includes the following RESETTLEMENT sections: REGISTRATION FORM 1. Case-related data – includes Case, (RRF) File, Reference Numbers, Submission Priority, Resettlement Submission A Resettlement Registration Form (RRF) is Category, Case Size, and Cross- submitted together with any relevant sup- Referenced Cases. porting documentation to a resettlement 2. Individual bio-data – includes basic country; it is the primary tool used for information for each individual sub- presenting the resettlement needs of indi- mitted as part of the same case such vidual refugees and their family members. as: Names, Languages, Date of Birth, Specific Needs etc. Countries who conduct selection mis- 3. Relatives of principal applicant and sions base their decisions on interviews spouse not included in this submission conducted during these missions together – includes the details of all close rela- with the RRF, while some countries such tives and dependants of the members as France base their decision solely on the of the case. It is particularly important RRF received as a ‘dossier submission.’ As that this section is as complete and such, any incomplete or inaccurate infor- accurate as possible as it is used for mation provided in this form can signifi- retaining family unity, demonstrating cantly delay the processing of a case. linkages to family already resettled and CHAPTER SEVEN Basic procedures to follow in processing resettlement submissions

An RRF can be generated through proGres, which populates the basic case information including the bio-data for members of the case and their relatives. Staff must then add the case information that is not populated from proGres. This includes: a comprehensive outline of the refugee claim and of the UNHCR determination for each adult on the case; a substantiated explanation of the need for resettlement; detailed information on any specific needs and vulnerabilities; and any additional information including dependency assessments.

This section of the Handbook covers some of the key points related to the completion of the RRF. However, the RRF User Guides are more detailed, and must be followed closely.

Sections 1 & 2

The case and bio-data information in both of these sections will either be automatically populated for proGres users, or selected from pull-down menus for non-proGres RRFs. In all cases, however, these details should be very carefully checked to ensure that the data is current, and accurately reflects the details on theCase, physical File and file. Reference Numbers: The UNHCR case number is mandatory and will be automatically assigned to the case for proGres users. The embassy file number is assigned by the resettlement country, and the HQ reference number Beforewill be assignedgenerating to dossier the RRF cases submitted through the Resettlement Service Officesby the Processingusing proGres Unit. should ensure that an authorized staff member enters allSubmission known information Priority: onEnsure the proGres that justification basic bio-data for screen emergency before and generating urgent theprioritization RRF, including is provided the name in of Section each individual’s 5. Confirm biological the prioritization mother and of cross-father. Thereferenced Field Office’s cases, Resettlementespecially the casesSOPs ofshould dependent specify family which members staff members that should are authorizedtravel together to revise but have registration been separated and bio-data. onto their own cases at the request of the resettlement country. Corrections AnyResettlement required corrections Submission to Category:any of the Ininformation many cases, populated categories by proGresmay overlap, must beand entered submissions into proGres can effectively. This includes be made any changes under twoto the or case more composition resettlement or tosubmission individual categories.bio-data details. Staff are encouraged to identify both a primary and secondary relevant category. 320Case Size: Take care to ensure that all family members, including potential non- Sectionrefugee dependants 1: Case-related included data on the case are counted. The case size must match the number of family members listed in Section 2. Cross-Referenced Cases: Ensure that all cross-referenced cases are listed accurately. This is particularly important where dependent family CHAPTER members SEVEN have been split into separateBasic cases procedures at the to request follow in of processing the resettlement resettlement country. submissions Ideally, the cases should be submitted to the resettlement country together, as part of the same submission. All linked cases should be listed, including those cases previously submitted to the resettlement country.

Section 2: Individual bio-data member’s photo is of good quality and recent.28 (If the RRF is not proGres- generated, full name and case number should show on each picture.) 337 Include the names of each individual’s biological mother and father and note in parentheses if the parent is deceased.

Section 3: Relatives of principal applicant and spouse not included in this submission

Inaccurate or incomplete information in this section can significantly delay the processing of the case. Points to remember: Children should be listed in birth order from oldest to youngest. Other dependants should be listed after the spouse and children. Verify and cross-check bio-data carefully, including date of birth, and spellings of names for all members of the case. Ensure consistency in the spelling of names between linked cases. Verify that the identity of each person on the case matches their photo on the RRF. Photos are an important anti-fraud measure. Ensure that each case Listfor all future close family relatives reunification. and dependants of the countriesmembers rely of the on case this ininformation this section. to 4.Ensuring Refugee thatclaim the – detailsincludes provideda detailed in this sectionguide them are duringcomplete their and interviews accurate or, 338isoutline important and legal for analysisretaining of thefamily refugee unity, demonstratingin the case of linkages dossier selections,to individuals form alreadyclaim of resettled, the Principal and Applicant for future and family of reunification.the basis for Points their todecision. remember: eachRelatives adult dependant. should be Many listed countries starting with5. Need the Principal for resettlement Applicant’s – includes relatives, the alsothen carry the out spouse’s eligibility relatives, determination then the children’sconcise details relatives, regarding and the finally refugee’s any duringrelatives their of missionsother adult and dependants decision includedneed infor the resettlement case. and why this process;Verify thatit is veryall immediate important biologicalthat this and legalis deemed parents, the spouses, most appropriate children and(or sectionsiblings, is comprehensiveincluding step- andand well-half- relationships,the only) of durable each person solution. on Measures the case articulated,are listed. as many resettlement that have been taken to explore local Annexes Include individuals who are dependent on a member of the case, but were not able to be included in the case. (A comment should be added in Section 7 regarding such dependants.) Include relatives in the country of origin, the country of asylum, a resettlement country, or any other country. Include any family members that are missing, even if they are presumed to be dead. Where possible, include more distant relatives if the relationship is important in the context of the resettlement submission. This includes relatives residing in a country of resettlement, and sole surviving family members. Include all known family members of unaccompanied/separated children.

28 UNHCR, UNHCR Handbook for Registration, September 2003, Chapter 16, page 151-154, http:// www.unhcr.org/refworld/docid/3f967dc14.html

339 321

integration and voluntary repatriation resettlement process provides an need to be detailed in this section – opportunity for the refugee(s) to this further substantiates the need for confirm and guarantee that the infor- resettlement. This section also includes mation included in the RRF is accurate the reasons for the chosen resettlement and complete. It can also serve as an submission category1 and prioritisation opportunity to address any concerns level (emergency, urgent or normal). and expectations that the refugee(s) 6. Special needs assessment – includes may have. By signing the RRF, refugees any additional information about the give permission to UNHCR to share the specific needs of any member of the information provided in the RRF with case that should be shared with the the resettlement country, as well as resettlement country. This could include permission to the resettlement coun- physical or mental health conditions, tries to share information on their spe- or specific vulnerabilities related to the cific needs (section 6), such as medical possible need of additional support conditions, with service providers and/ in the country of resettlement. This or local authorities. information is vital as it can assist the 9. Attachments – includes any rel- resettlement country in ensuring that evant documents such as identifi- adequate support during the reception cation documents from the country and integration process is provided. of origin or country of asylum, birth Although this information is shared certificates, marriage certificates, with the resettlement country, the custody documents, etc. Best Interest challenge is ensuring that this infor- Determination (BID) or Best Interest mation is detailed and passed on to the Assessments (BIA) reports as well as appropriate agency in the country of Medical Assessment Forms (MAF), if resettlement. applicable, are mandatory. 7. Additional remarks (if applicable) – this could include information about As explained in Chapter IV, in an effort to particular family relationships, distant promote and harmonise good practices relatives in countries of resettlement, to enhance expeditious resettlement pro- changes in marital status, custody cessing, two global abridged templates for issues, immigration applications etc., if abridged RRFs have been developed – 1. applicable. Abridged RRF for group submission; and 8. Declaration – this stage of the 2. Abridged RRF for individual submission.

1 The resettlement submission categories include the 1. Abridged RRFs for group submissions following: 1) Legal and/or physical protection needs; 2) Survivors of violence and/or torture; 3) Medical should include the following sections of needs; 4) Women and girls at risk; 5) Family reunification; 6) Children and adolescents at risk; and 7) the RRF: Lack of foreseeable alternative durable solutions. Information requested by some resettlement States Resettlement States may request that Section 7 include particular details important for their screening, or for the destining and integration of the refugee family. This may include information about military service or political activity if not already provided as part of their profile or refugee claim, as well as additional details about family linkages to the resettlement country, or details on education, occupation or languages if these were not included in Section 2.

Section322 8: Declaration

The Section signing 1: ofCase-related the RRF declaration data is a significant Section stage 2: Individual in the overall bio-data resettlement – it is nec- process. Section The 2: Individual declaration bio-data is an essential toolessary for theto add refugee(s) information to affirmon military and guarantee Section that3: theRelatives information of principal contained inservice the RRF and ispolitical complete affiliation. and correct. If handledapplicant correctly, and spouse the not signing included of the in RRF canSection be a useful3: Relatives occasion of to manageprincipal resettlementthis submission expectations, address concernsapplicant about fraud and spouseand counsel not included refugees in on Sectionthe meaning 7: Additional of resettlement. remarks (if this submission – it is no longer ne- By applicable)signing the declaration, the refugee(s) authorize:cessary to add certain information such  SectionUNHCR 8: to Declaration use the information and any documentsas the legal pertaining status of the to relative. the family to  Sectionpursue 9: the Attachments case with Governments other Section than her/his 4: Refugee own; claim and – the claim should be provided in summary format the Governments receiving the resettlement submission to share information Since members of the ‘group’ normally along with a short legal analysis, contained in Sections 1-3 and 6-7 with an appropriate settlement service shareagency common (governmental refugee claims orand non-governmental) needs exclusion provided analysis a and confidentiality concluding for resettlementagreement whichexists are between detailed thein the agency statementand the Governmentof eligibility authorityfor refugee to Groupprotect Profile the and confidentiality Proposal Document of that information; status. and (submitted to the resettlement country), Section 5: Need for resettlement – this UNHCR to receive any information relating to resettlement submission Sectionson the 4 (Refugeerefugee’s claim), behalf 5 from(Need thefor Governmentsection wouldauthority. be presented This includes, in a sep inresettlement)particular, andthe refugee’s6 (Specific agreement needs that aratethe reasons document for referred a decision to as summary relating assessment)to a resettlement of the RRF aresubmission not required. are shared analysiswith UNHCR. of resettlement needs, which would include the analysis of the pros- 2. Abridged RRFs for individual submission pects for voluntary repatriation and local 346 are similar to the RRF but with the fol- integration, identifying resettlement as lowing modifications: the most appropriate solution. Annexes reunification: aEuropeanoverviewreunification: Annex III-Resettled refugees’ accessto family Nuclear family (Married partners, unmarried Other require- Use children under 18, ments (income, of Definition of parents of children Unmarried accommodation, DNA family under 18) partners Other dependant family members integration) test Belgium  2 Children over 18 suffering from mental or No3 physical disability Czech Republic 4  None No

Denmark 5  None No6

7 Finland   Foster children, guardian of a minor, minor No  siblings of an unaccompanied minor France 8 9 None No

Germany 10 None Yes 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 Iceland  11 None No

Ireland 12 Parents, grandparents, siblings, children or No13 grandchildren, ward or guardian of the applicant Netherlands 14 15  Children over 18 No16   Parents of a minor child with an asylum status

2 If registered 3 No during the first year following the refugee status recognition and if the family link already existed prior to the refugee’s arrival in Belgium. 4 Including married children 5 Yes, but restricted to children under 15 of age and under some circumstances, extended to children aged between 15 and 18. 6 No if the spouse/partner still risks persecution in his/her country of origin. In other cases, income and integration requirements will apply. 7 If they have cohabited in a household for two years (or have a child together or other weighty reasons) and live in a marriage–like partnership. 8 Including children until 19 years old. 9 If they have the same nationality and if the partnership has been mentioned to OFPRA during the asylum procedure. 10 The spouse must be at least 18 years old. Children over 16 years old arriving independently from their parents have to fulfil integration requirements 11 If they have been together for at least 2 years. 12 Only spouse and children under 18 years of age that are not married. 13 Upon ministerial discretion. 14 No if the application is submitted within 3 months after arrival or after the date the residence permit is granted. In the case of refugees, spouses, biological children 323 under 18 and foster children who are part of the family would be eligible for family reunification under the resettlement quota. 15 Only if dependent on the person who has been granted asylum 16 After 3 months, it is still possible to apply but not within the resettlement programme and upon fulfillment of income requirements. Annexes 324 Nuclear family (Married partners, unmarried Other require- Use children under 18, ments (income, of Definition of parents of children Unmarried accommodation, DNA family under 18) partners Other dependant family members integration) test Norway  17  Children over 18 if single No18  Single parents over 60 with no family in home country  Full siblings under 18 with no parents or caregiver in home country or country of residence and with no parents in another country  Other family members when strong humanitarian conditions Portugal 19   Children over 18 No  Adopted children of the applicant and/or his/ her partner  Parents and parents-in-law of adult legal residents  Minor siblings upon legal recognition of guardianship by Portuguese authorities Romania   Children over 18 if they are single Yes  Parents and parents-in-law of adult legal residents if they lack family support in their country of origin Spain   Parents and other family members upon proof that Not available they were already living together in the country of 17 18 19 20 21 22 origin Sweden  21 In special circumstances, persons who have lived No  close together may be included.22 UK   Other family members under exceptionally compelling No and compassionate circumstances

17 Only if they have been cohabitating for at least two years or are expecting a child 18 No if the application concerns the nuclear family and if it has been submitted within one year after the sponsor was resettled. 19 Including married children 20 Children over 18 who are single and attending official education are also eligible. 21 If cohabiting 22 Dependency link already existing in the country of origin must be proved. 325 Annex IV – Resettled refugees’ access to permanent residency and citizenship: a European overview

- 24 lan ? the q u i re m ents i n g access o re t are g e W hat c i t iz ensh p g ua pr io r B1 level in Czech B1 level A2 level in one of theA2 level (French, languages national German) Dutch, B1 level in written and oral in written B1 level Finnish or Swedish. B1 level of oral French French of oral B1 level Passing Dansk 2 (as of Dansk 2 (as of Passing June 15th, 2013) B1 level in German B1 level ?

io n g rat Formal tests on socio-political tests Formal aspects of the and historical Republic Czech character’ test ‘Good Demonstrating assimilation to assimilation Demonstrating societyFrench of the rights Charter Signing the citizen and duties of the French Being self-sufficient Being of of knowledge Proof and of Danish society the and history Danish culture a certificate presenting by test of a special citizenship Being self-sufficient Being test Naturalisation q u i re m ents

re Inte   Evidence of both socialEvidence and economic integration participation No       ? 26

D ual c i t iz ensh p Yes (since 2013) (since Yes Yes Yes Yes - recog for Yes nised refugees No for resettled resettled for No refugees

w 25 h o r fo y the y y y ears m an y can appl c i t iz ensh p Af ter 5 years 5 years 5 years - of con 8 years legal secutive residence 4 years Once refugee refugee Once - is offi status cially granted 8 years 8 years

23 ? ? U p o n ? i denc y res y y ears m an y q u i re m ents w re o re f u g ees o t h o having a‘secure livelihood’; a‘secure having German of the knowledge by and social system legal of the final test passing the + B1 level course orientation in German. being self-sufficient being of declaration signing the integration test passing Danish language 1 or higherlevel full-timeholding regular or beingemployment in an education involved 3 of least at for programme the 5 years per m anent

i s gi ven ifi c spec Af ter 5 years. Conditions include 5 years. - is offi status refugee Once cially granted - is offi status refugee Once cially granted 5 years. Conditions include: 5 years.   After 4 years After Once refugee status is officially status Once refugee 10 every (renewable granted years)    

Refugees can be exempted after 8 years of legal residency. of legal 8 years after be exempted can Refugees details. more on Finland for See Chapter skills requirements. language the from an exception ask for may applicants Illiterate quickly. and relatively successfully is completed programme integration if the 6 or 7 years to down Brought of origin citizenship. assume dual German- country can procedure asylum the domestic through recognized refugee contrary, On the 24

Denmark Czech Republic Czech Belgium Germany Finland France France 23 23 24 25 26 Annexes 326 After how After how many years many years What are the lan- is permanent residency can they guage requirements given to refugees? Upon apply for Dual Integration prior to accessing specific requirements? citizenship? citizenship? requirements? citizenship? 4 years after completion of 250hrs of Icelandic language Iceland lessons 5 years Yes No A2 level in Icelandic Ireland On arrival, temporary residency 3 years Yes No No card to be renewed annually Netherlands After 5 years of residency + after 5 years Yes for recog- Naturalisation ceremony A2 level in Dutch. passing the integration exam nised refugees during which the person has and when there has been no to declare allegiance to the violation of public order. NL. Norway After 3 years of residency and 7 years 27 No No No28 after the completion of the Norwegian introduction courses Portugal No permanent residency 6 years Yes No A2 level in Portuguese permit.29 Romania After 5 years30 4 years No  Attachment to the Good knowledge of the Romanian State and Romanian language people  Being self-sufficient Spain On arrival 5 years Yes No No Sweden On arrival 4 or 8 years 31 Yes No No UK On arrival. Resettled refugees 5 years Yes  Life in the UK test ESOL entry Level 3 27 28 29 30 31 receive a permanent residence  Citizenship ceremony standard card referred to as “indefinite leave to remain”.

27 7 years of residency during the past 10 years and 5 years during the last 7 years for minors 28 If one has a permanent residence permit and has completed tuition in Norwegian in order to get that permit, there is no need to provide any further document. 29 Refugees are granted a 5-year renewable residence permit upon arrival. 30 With less than 6 consecutive months of absence and less than a total of 10 months of absence 31 4 years if refugees are able to provide identity documents from their country of origin, otherwise 8 years. refugees: aEuropeanoverview Annex tuitionprovision V-Language for resettled Linked to social benefits &/or Mandatory/ other financial Duration/Nr of hours of Country Voluntary support Free tuition Implemented by Belgium  In Flanders: Yes in Flanders Yes In Flanders: up to 600 hrs  In Flanders & Brussels region: Mandatory In Wallonia and Brussels: Variable Houses of Dutch  In Wallonia:  Wallonia & Brussels region: Voluntary Schools of social promotion,  In the Brussels long-life learning education, region: Voluntary socio-professional integration institutions Czech Mandatory No Yes 12 months + long-term language Ministry of Interior, Municipalities, Republic tuition depending on needs/400 hrs NGOs of intensive Czech during the initial 6 months Denmark Mandatory Yes Yes 3 years32/up to 2,000 hrs (15-18 hrs a Municipalities, NGOs (DRC, Danish week) Red Cross, KIT) Finland Mandatory Yes 3 years/60 study units of 35 hrs each Municipalities, employment offices, CSOs France Mandatory No Yes Variable/Up to 400 hrs Language learning centres Germany Mandatory if the local No No Variable/4 hrs during 5 days initially Civil society organizations commis- immigration office and then 600 hrs (+ additional 300 hrs sioned by BAMF considers it necessary. free of charge if necessary) Iceland Mandatory No Yes Initial 6 months (long-term learning Municipalities available through private lessons if necessary)/3 hrs per day, 4 days per week Ireland Mandatory No Yes 8-12 weeks in the reception centre  Municipalities or CSO in the followed by a 2-year programme/ reception centre depending on needs  Vocational Education Committees (VECs) in the 2-year programme 33 34 32Netherlands33 34 Voluntary No No Maximum of 3 years/variable Contracting body: DUO depending on needs Courses delivered by official course institutes 327

32 In May 2013, the government and the Enhedslisten party came to an agreement to extend the right to attend free Danish classes from 3 to 5 years but such decision has not been implemented at the time of writing. 33 However, the integration exam which is mandatory includes a language component. 34 Refugees may request a loan to attend the language courses, which they are exempted from the requirement to repay if they pass the civic integration test. Annexes 328 Linked to social benefits &/or Mandatory/ other financial Duration/Nr of hours of Country Voluntary support Free tuition Implemented by Norway Mandatory Yes Yes 2 years which can be extended to 3 Municipalities and sometimes NGOs years/550 hrs as part of the introduction course + 2,400 hrs if necessary Portugal Mandatory in the No Yes Initial 6 months (+ long-term learning CPR in the reception centres; reception centre and available if necessary)/150 hrs initially IEFP and partners such as profes- then optional (+optional 150 hrs +150 hrs if deemed sional training centres and high necessary) schools are responsible for the mainstream language course

Romania Voluntary No Yes One year/4 hrs a week GII in collaboration with the Ministry of Education, Research and Youth through school inspectorates. Spain Not available Not available N/A 2 years/depending on the individual NGOs integration programme Sweden Mandatory Yes Yes Variable/depending on the refugee’s PES needs UK Mandatory No Yes Depending on the PIP Various higher education, training and community-based institutions

Abbreviations & Acronyms: BAMF: Federal Office for Migration and Refugees Hrs: hours CPR: Portuguese Refugee Council IEFP: Institute for Employment and Vocational Training CSO: civil society organisation PES: Public Employment Service DRC: Danish Refugee Council PIP: Personal Integration Plan 42 Autrement dit mardi 2 avril 2013 rEportAgE Cette cité britannique fait office de ville pilote au sein d’un réseau de communes européennes qui accompagnent les personnes directement débarquées des camps de réfugiés. Partenaire du programme, Paris s’intéresse de près aux méthodes expérimentées sur ce territoire pour développer son propre modèle A Sheffield, des réfugiés guidés dans leur nouvelle vie

SHEFFIELD (Angleterre) De notre envoyé spécial La mairie de Paris veut promouvoir une nouvelle voie pour accueillir des réfugiés en France. La capitale est membre, depuis peu, d’un réseau européen de villes hôtes baptisé « Share ». Elle s’intéresse en par- ticulier au modèle de Sheffield, commune postindustrielle du nord de l’Angleterre regroupant 550 000 habitants. Le dispo- sitif « Gateway » y propose sur une durée de douze mois un accompagnement sou- tenu des personnes réinstallées. En dix ans, 600 réfugiés originaires de Répu- blique démocratique du Congo (RDC), du Liberia, d’Irak, de Birmanie, du Soudan ou d’Éthiopie ont été réinstallés dans la ville. Mugiraneza, Pierre Ngunda Kabaya, réfugié de la 25 ans RDC au Rwanda, est arrivé le 31 janvier (ci-dessus), 2011 avec sa femme et ses quatre enfants. a souhaité Sa famille a été directement logée dans avoir une des nombreuses maisons de briques son propre rouges disponibles dans le parc social de logement la ville. « Nous n’avions plus d’avenir. Et à Sheffield. puis, du jour au lendemain, tout était là », s’exclame le père de famille, passé de Akoi Bazzie l’insécurité la plus totale à un quartier (ci-contre), un Libérien s tranquille. « Au départ, c’était assez dés- I tabilisant de vivre dans un logement o arrivé il y a neuf ans, équipé, avec des lits préparés, un frigo, une E FRANÇ est devenu st machine à laver, une gazinière, mais au I responsable pt bout d’un mois, nous avons pris nos de la marques », poursuit-il. communauté : JEAN-BA des personnes « Au départ, c’était assez réinstallées. photos déstabilisant de vivre Pierre dans un logement équipé, Ngunda 25 ans, Mugiraneza est orpheline. Dans L’une des grandes originalités du pro- d’expériences entre pairs, ne serait-ce que avec des lits préparés, Kabaya, le camp de Kibiza, au Rwanda, elle a gramme repose sur le recours aux com- pour se faire traduire le courrier admi- arrivé été accueillie dans la famille de Pierre. munautés locales de réfugiés déjà réins- nistratif. « Nous sommes aussi là pour faire un frigo, une machine le 31 janvier Mais à son arrivée à Sheffield, elle a tallés. Un groupe de 300 personnes a été comprendre que tous les problèmes ne sont à laver, une gazinière… » 2011, gagne demandé à être logée séparément et constitué, avec pour mission de guider pas réglés le jour de l’emménagement et en aisance s’est alors heurtée à l’incompréhension les nouveaux arrivants qui, le temps venu, qu’il faudra encore travailler très dur pour Le premier mois, le comité local des chaque jour générale. « J’avais besoin de gagner en aideront à leur tour les suivants. Une dé- se faire une place », souligne Akoi Bazzie, réfugiés a rendu visite au ménage prati- grâce confiance et de savoir si je pouvais m’en marche très iconoclaste pour la France, un Libérien responsable de la commu- aux cours quement tous les jours. C’est tout un ap- sortir seule », explique-t-elle dans un peu rompue aux approches multicultu- nauté des personnes réinstallées. Arrivé d’anglais. prentissage qui commence. Il s’agit d’in- anglais déjà parfait. ralistes. Cela permet toutefois un partage il y a neuf ans, il a fait partie des tout pre- tégrer le fonctionnement de la maison, miers accueillis dans la ville après douze des transports en commun, de donner années passées en camp humanitaire. accès aux services médico-sociaux et de Lui est désormais travailleur social, sa l’emploi, de scolariser les enfants, etc. On rePÈreS ont été réinstallées dans 600 pour la Grande-Bretagne, femme est aide-soignante à l’hôpital. ne peut décrocher un travail sans une 22 pays, soit 15 % de moins un millier pour la Norvège, Si la méthode britannique étonne, bonne maîtrise de l’anglais, spécialement La prise en charge que l’année précédente. 2 000 pour la Suède, près c’est aussi qu’elle place la communica- dans cette période de ralentissement des réfugiés P Parmi les bénéficiaires de 6 000 pour le Canada ou tion comme condition sine qua non de économique. Pierre Ngunda Kabaya gagne P Le Haut-Commissariat de la réinstallation, figuraient l’Australie, autour de 50 000 réussite. En amont du lancement du en aisance chaque jour dans la langue de pour les réfugiés (HCR) des réfugiés originaires concernant les États-Unis… programme, la mairie de Sheffield a Sha kes peare grâce à des cours. de l’ONU donnait protection du Bhoutan (18 000), P La France enregistre conçu un plan de sensibilisation de la Parfois, la réinstallation bouscule la et assistance à 26 millions de Birmanie (18 000), d’Irak 60 000 demandes d’asile population locale aux réalités subies e cellule familiale. Dans un camp huma- de personnes en 2011, (8 700), de Somalie (4 600), par an, arrivant en 4 position par les réfugiés dans leur ancienne vie. nitaire, la vie en collectivité et l’entraide soit 700 000 de plus de l’Érythrée (2 800), derrière les États-Unis, Côté médias, la ville a noué un parte- sont de mise. Il s’agit d’un monde en vase qu’en 2010. de la République démocratique l’Afrique du Sud, nariat avec la presse régionale pour clos où l’autorité des aînés n’est pas remise P En 2011, 61 649 personnes du Congo (2000) et d’Iran et l’Allemagne. Mais le taux s’assurer d’une « couverture positive » en cause. Au-dehors, cependant, les as- reconnues comme réfugiées (1900). La France n’en accueille d’admission des dossiers des différentes réinstallations. Des porte- pirations individuelles, celles des jeunes par les Nations unies qu’une centaine par an, contre reste autour de 25 %. parole ont été formés parmi les réins- notamment, ont tôt fait de s’exprimer. À tallés pour faire la promotion ppp

La Croix (French national newspaper), 2 April 2013

reasentamiento pārcelšanās búferlaflutningum This publication is written by ICMC under the framework of the

réinstallation joint IOM, UNHCR and ICMC project ‘Linking in EU resettlement

persikėlimo – Linking the resettlement phases and connecting (local) resettlement practitioners’. The project is co-funded by the European Refu- gee Fund 2010 (Community Actions) of the European Commission. The views expressed and information provided in this publication preselitev do not necessarily reflect the views of the EC, and are the sole презаселване relocare responsibility of ICMC Europe. uudelleensijoittamista znovuosídlení presídľovania uchodźców gjenbosetting reinsediamento przesiedlenia

vidarebosättning IOM OIM reinstalação áttelepítés

umsiedlung

International Catholic Migration Commission (ICMC) Europe Rue Washington 40, 1050 Brussels, Belgium ümberasustamine TEL. +32 (0)2 227 97 29, FAX +32 (0)2 648 63 69 hervestiging hervestiging resettlement genbosætning #80003 • #80003