LEGAL AND PROTECTION POLICY RESEARCH SERIES Female Asylum-Seekers and Refugees in France Jane Freedman External Consultant DIVISION OF INTERNATIONAL PROTECTION SERVICES PPLAS/2009/01 June 2009 PROTECTION POLICY AND LEGAL ADVICE SECTION (PPLAS) DIVISION OF INTERNATIONAL PROTECTION SERVICES UNITED NATIONS HIGH COMMISSIONER FOR REFUGEES CP 2500, 1211 Geneva 2 Switzerland E-mail: [email protected] Website: http://www.unhcr.org This report was prepared on behalf of UNHCR Paris by Jane Freedman, external consultant. This research was made during 2007 and 2008. Some names may have been modified afterwards. The views expressed in this report are those of the author and do not necessarily reflect those of UNHCR. This report may be freely quoted, cited and copied for academic, educational or other non-commercial purposes without prior permission from UNHCR, provided that the source is acknowledged. The report is available online at http://www.unhcr.org/protect. © United Nations High Commissioner for Refugees 2009 ii LEGAL AND PROTECTION POLICY RESEARCH SERIES Female Asylum-Seekers and Refugees in France Jane Freedman External Consultant, Report prepared for UNHCR Paris DIVISION OF INTERNATIONAL PROTECTION SERVICES PPLAS/2009/01 June 2009 iii iv Table of Contents ABBREVIATIONS .............................................................................................................. VII INTRODUCTION....................................................................................................................1 1. AIM OF THE STUDY ..................................................................................................................................1 2. RESEARCH METHODOLOGY .....................................................................................................................1 3. THE SITUATION IN FRANCE......................................................................................................................4 4. INSTITUTIONAL AND ASSOCIATIONAL SUPPORT FOR WOMEN ASYLUM-SEEKERS AND REFUGEES ..............................................................................................................................................12 PART I – THE REFUGEE STATUS DETERMINATION PROCESS............................ 16 1. INTERVIEWS AND HEARINGS..................................................................................................................18 2. CHILDCARE AT OFPRA AND THE CNDA...............................................................................................27 3. BORDER PROCEDURES AND INTERVIEWS ...............................................................................................27 4. JURISPRUDENCE .....................................................................................................................................29 5. TRAFFICKING AND SEXUAL EXPLOITATION ...........................................................................................32 PART II – ACCOMMODATION OF ASYLUM-SEEKERS............................................ 36 1. CENTRE D’ACCUEIL POUR DEMANDEURS D’ASILE (CADA)..................................................................36 2. DIFFICULTIES ENCOUNTERED WITH CADA ...........................................................................................40 3. RECEPTION OF ASYLUM-SEEKING FAMILIES – THE CAFDA .................................................................43 4. EMERGENCY ACCOMMODATION ............................................................................................................44 5. ACCESS TO MEDICAL AND PSYCHOLOGICAL TREATMENT .....................................................................47 PART III – WOMEN REFUGEES ...................................................................................... 49 1. HOUSING................................................................................................................................................49 2. LABOUR MARKET ACCESS.....................................................................................................................50 3. LANGUAGE BARRIERS............................................................................................................................52 4. FAMILY REUNIFICATION ........................................................................................................................53 PART IV – REJECTED ASYLUM-SEEKERS .................................................................. 54 PART V – DETENTION ....................................................................................................... 55 PART VI – COMPARISONS WITH OTHER EU COUNTRIES .................................... 57 PART VII – CONCLUSIONS AND RECOMMENDATIONS ......................................... 59 1. CONCLUSIONS........................................................................................................................................59 2. RECOMMENDATIONS..............................................................................................................................61 APPENDIX 1 – BIBLIOGRAPHY AND REFERENCES ................................................. 63 APPENDIX 2 – LIST OF KEY INFORMANTS INTERVIEWED .................................. 67 APPENDIX 3 – INTERVIEWS WITH WOMEN ASYLUM SEEKERS AND REFUGEES ............................................................................................................................ 69 UNHCR LEGAL AND PROTECTION POLICY RESEARCH SERIES........................ 71 v vi Abbreviations ACAT Action of Christians for the Abolition of Torture ADOMA “Ad domus”, formerly called the Sonacotra (Organisation which manages housing in hostels for immigrant workers and now asylum seekers and refugees) AFTAM Association pour la formation des travailleurs africains et malgaches (Association which organises housing, medical care, insertion for migrant workers and asylum seekers) AGDM Age, gender and diversity mainstreaming ALC Accompagnement lieux d’accueil ANAEM Agence Nationale de l’Accueil des Etrangers et des Migrations Anafé Association nationale d’assistance aux frontières pour les étrangers API Asylum Policy Instruction (United Kingdom) APIAF Association promotion initiatives autonomes des femmes CADA Centre d’accueil pour demandeurs d’asile CAFDA Centre d’accueil pour les familles demandeurs d’asile CASAS Collectif pour l’accueil des solliciteurs d’asile à Strasbourg CASP Centre d’action sociale protestant CEDRE Centre d’entraide pour les demandeurs d’asile et les réfugiés CEDREF Centre d’études, de documentation et des recherches pour les études féministes CESEDA Code de l’entrée et du séjour des étrangers et du droit d’asile CFDA Coordination Française pour le Droit d’Asile CGRA Commissariat Général aux Réfugiés et aux Apatrides CHRS Centre d’Hébergement et de Réadaptation Sociale CIMADE Centre Oecuménique d’Entraide vii CNDA Cour Nationale du Droit d’Asile CPH Centre Provisoire d’Hébergement CUDA Centre d’hébergement d’urgence pour demandeurs d’asile EU European Union FASTI Fédération des associations de solidarité avec les travailleurs immigrés FGM Female genital mutilation FTDA France Terre d’Asile GAMS Groupe femmes pour l’abolition des mutilations sexuelles GAS Groupe Accueil Solidarité GRAF Groupe Asile Femmes IGAS Inspection générale des affaires sociales LRA Local retention sites MIPES Mission d’information sur la pauvreté et l’exclusion sociale NGO Non-governmental organisation OFPRA L'Office Français de Protection des Réfugiés et Apatrides OP Officier de protection RAJFIRE Réseau pour l’autonomie des femmes immigrées et réfugiées RWRP Refugee Women’s Resource Project UNHCR United Nations High Commissioner for Refugees ZAPI Zone d’Attente (Airport Roissy-Charles de Gaulle) viii Introduction 1. Aim of the Study The aim of this study is to provide a comprehensive review of the situation of female asylum-seekers and refugees in France, in order to furnish a base of information which might guide future UNHCR policies and actions in this area, and which may serve to make recommendations to French government and institutions. The study provides both statistical data (where available1) – on the numbers, national origin, age, personal and familial situation of women coming to France to seek asylum, of those granted protection and of those finally rejected – and qualitative data concerning the implications and impacts of gender at all stages of the asylum determination process, and in the integration of women recognised as refugees. The research carried out and the collection of both quantitative and qualitative data has permitted an analysis of gendered inequalities and discriminations which may arise during the refugee status determination process and for women recognized as refugees. The report will also highlight areas of ‘best practice’ in France’s reception of female asylum-seekers and refugees. In carrying out this analysis the report will make reference to UNHCR guidelines and recommendations on gender in the asylum process and on assuring international protection for women refugees, examining whether practices and processes in France comply with these guidelines and recommendations or not. Asylum and refugee policies and practices in France will also be examined in the light of European Union Directives on asylum to analyse to what extent French policy and practice is in line with these Directives. These analyses will allow the elaboration of recommendations for improvements in policies and procedures in order to reduce or eliminate