photo © UNHCR / ZALMAI United Nations High Commissioner for Refugees/Asylum Aid, London, November 2011 This document is for general distribution. All rights reserved. Reproduction and translation is authorised, except for commercial purposes, provided that UNHCR/Asylum Aid is acknowledged as the source. CONTENTS Acknowledgements ..........................................................................................................4 Executive Summary ..........................................................................................................6 Abbreviations ..................................................................................................................11 CHAPTER 1: INTRODUCTION .......................................................................................12 1.1 Structure of the report .........................................................................................13 1.2 Definitions and scope ..........................................................................................13 1.3 Methodology ........................................................................................................15 1.3.1 Quantitative methodology ..........................................................................15 1.3.2 Qualitative methodology ............................................................................17 1.3.3 Data collection ...........................................................................................19 1.3.4 UK Border Agency co-operation ................................................................20 1.3.5 Legal research ............................................................................................20 CHAPTER 2: STATELESSNESS ACROSS THE GLOBE AND UNHCR’S .....................22 ENGAGEMENT WITH STATELESSNESS 2.1 Introduction .........................................................................................................22 2.2 Causes of statelessness .....................................................................................23 2.3 Consequences of statelessness .........................................................................25 2.4 UNHCR’s engagement with statelessness .........................................................26 CHAPTER 3: ESTIMATING THE POPULATION OF STATELESS ..................................28 AND “UNRETURNABLE” PERSONS IN THE UK 3.1 Introduction .........................................................................................................28 3.2 Home Office published immigration statistics ....................................................29 and UK Border Agency management information 3.3 Total numbers of stateless persons coming into ................................................34 contact with immigration control 3.3.1 Visas and entry clearance ..........................................................................36 3.3.2 Passengers granted leave to enter on arrival in the UK .............................37 3.3.3 Asylum ........................................................................................................39 3.3.4 Immigration cases ......................................................................................45 3.3.5 Stateless Person’s Travel Documents issued ............................................49 under the 1954 Convention in the United Kingdom 1 3.4 Published statistics: enforcement and compliance ............................................52 3.5 Data sets discounted or given minimal weight ...................................................55 3.5.1 Census data ...............................................................................................55 3.5.2 Eurostat ......................................................................................................56 3.5.3 Indirect data sets ........................................................................................57 Conclusions ...............................................................................................................58 Recommendations ....................................................................................................60 CHAPTER 4: THE IDENTIFICATION OF STATELESS PERSONS .................................62 IN THE OPERATION OF IMMIGRATION CONTROL 4.1 Introduction .........................................................................................................64 4.2 Profiles of participants in the research ................................................................65 4.3 The UK and the 1954 Convention .......................................................................66 4.4 The history of the status of the 1954 Convention in domestic law .....................66 and the treatment of stateless persons in UK immigration law and policy 4.4.1 The Immigration Rules ...............................................................................66 4.4.2 Discretion and policy ..................................................................................68 4.4.3 Regularisation ............................................................................................71 4.4.4 Identity and Travel Documents ...................................................................73 4.5 The identification of statelessness in immigration law ........................................75 4.6 Guidance and training .........................................................................................79 4.6.1 Screening and early identification ..............................................................82 4.6.2 The attribution of nationality without appropriate evidence .......................83 4.6.3 Difficulties in establishing whether consular authorities ............................84 treated participants as nationals 4.6.4 The approach of legal representatives .......................................................88 Conclusions ...............................................................................................................88 Recommendations ....................................................................................................89 CHAPTER 5: THE HUMAN RIGHTS CHALLENGES FACED BY ..................................90 STATELESS AND “UNRETURNABLE” PERSONS IN THE UK 5.1 Introduction .........................................................................................................90 5.2 Relevant provisions of international law ..............................................................91 5.2.1 International human rights law ...................................................................91 5.2.2 International refugee law ............................................................................92 5.3 Destitution (including access to employment, social ..........................................93 assistance and housing) 5.3.1 Entitlement to work ....................................................................................93 2 Mapping statelessness 5.3.2 Entitlement to benefits, housing and the right to .......................................95 a minimum standard of living 5.3.3 Relevant domestic provisions ....................................................................97 5.4 Healthcare .........................................................................................................102 5.5 Detention ...........................................................................................................104 5.6 Failed forced removal ........................................................................................110 5.7 Immigration-related offences .............................................................................114 5.8 Private and family life.........................................................................................116 5.9 Refugee status determination ...........................................................................118 5.9.1 Palestinians and refugee status ...............................................................120 5.10 The situation of British Overseas citizens........................................................122 Conclusions .............................................................................................................129 Recommendations ..................................................................................................130 CHAPTER 6: THE REDUCTION AND PREVENTION OF STATELESSNESS ..............132 IN BRITISH NATIONALITY LAW 6.1 Introduction .......................................................................................................132 6.2 International obligations ....................................................................................132 6.3 The definition of statelessness in British nationality law ...................................134 6.4 The prevention and reduction of statelessness .................................................135 6.4.1 Children born on the UK territory .............................................................135 6.4.2 Children born outside of the UK ..............................................................138 6.4.3 Foundlings ................................................................................................140 6.5 Proof of statelessness in nationality law............................................................141 6.6 Naturalisation .....................................................................................................143 6.7 Deprivation and loss of nationality ....................................................................144