Refugee Resettlement in The EU

KNOW RESET BUILDING KNOWLEDGE FOR A CONCERTED AND
SUSTAINABLE APPROACH TO REFUGEE RESETTLEMENT

IN THE EU AND ITS MEMBER STATES
Co-financed by the European Union
Refugee Resettlement in the EU 2011-2013 Report
Edited by Delphine Perrin
KNOW RESET Research Report 2013/05

Final Report
2013. All rights reserved.

No part of this paper may be distributed, quoted
or reproduced in any form without permission from
the KNOW RESET Project.
KNOW RESET
Building Knowledge for a Concerted and Sustainable Approach to RefugeeResettlement
in the EU and its Member States
KNOW RESET RR 2013/05
Refugee Resettlement in the EU

2011-2013 Report
KNOW RESET Final Report
edited by
Delphine Perrin
Robert Schuman Centre for Advanced Studies, European University Institute, Florence, Italy
2013, European University Institute

Robert Schuman Centre for Advanced Studies
This text may be downloaded only for personal research purposes. Any additional reproduction for
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Requests should be addressed to know-reset@eui.eu
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Edited by Delphine Perrin, Refugee Resettlement in the EU - 2011-2013 Report, KNOW RESET RR
2013/05, Robert Schuman Centre for Advanced Studies, San Domenico di Fiesole (FI): European
University Institute, 2013.
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KNOW RESET - Building Knowledge for a Concerted and Sustainable Approach to Refugee
Resettlement in the EU and its Member States
The KNOW RESET Project, which is co-financed by the European Union, is carried out by the EUI in
partnership with ECRE (the European Council on Refugees and Exiles). The general objective of the
project is to construct the knowledge-base necessary for good policy-making in the refugee
resettlement domain in the EU and its 27 Member States. It aims to explore the potential to develop
the resettlement capacity, to extend good practices and to enhance cooperation in the EU.
KNOW RESET maps and analyses frameworks and practices in the area of refugee resettlement in
the 27 E U Member States. The team involved in the project, gathering members of the EUIs and
ECREs large networks, has proceeded with a systematic and comparative inventory of legal and policy
frameworks and practices related to resettlement in the EU and its 27 Member States, providing the most
updated set of information. The publication of comparative data and the dissemination of research results
contribute to raising awareness for refugee resettlement and refugee protection in the EU and provide a
knowledge-tool for policy-makers, governmental and non-governmental stakeholders interested or
involved in resettlement activities and policies in the EU and countries of first asylum. The project
involves too field research in Kenya, Pakistan and Tunisia, which will add to the knowledge and the
assessment of resettlement practices of refugees from countries of first asylum to the EU.
KNOW RESET has resulted in the first website mapping EU involvement in refugee resettlement.
It focuses on resettlement in the EU and covers the 27 Member States, involved in resettlement in one
form or another, and to various degrees. It contains a unique database providing legal, administrative
and policy documents as well as statistics collected from national authorities by the project team. It
also includes a series of comparative tables and graphs, the country profiles of the Member States,
country of first asylum reports, as w ell as t hematic reports and policy briefs. This user-friendly
website is a valuable instrument for: comparing the varied frameworks, policies and practices within
the EU; for evaluating the resettlement capacity in the EU; for following the evolution of Member
States commitment in resettlement; and for assessing the impact of the Joint EU Resettlement
Programme.
Results of the above activities are available for public consultation through the website of the project:
For more information:
KNOW RESET project Migration Policy Centre
Robert Schuman Centre for Advanced Studies (EUI)
Via delle Fontanelle 19
50014 San Domenico di Fiesole
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
Email: know-reset@eui.eu
http://www.eui.eu/RSCAS/
List of Contents
Executive Summary ...............................................................................................................................1
Background information: Resettlement and the Joint EU Resettlement Programme.....................5
PART I C OUNTRY COMPARISON RESETTLEMENT IN THE E U AND ITS MEMBER
STATES.................................................................................................................................................10
1. From Protection Need to Resettlement, 2009.....................................................................................11
2. Share of Resettlement in Selected Resettlement Destinations in the World 1995-2010 ...................11
3. Resettlement Schemes in the EU .......................................................................................................12
4. Number of Resettled Refugees in the EU, 2000-2012 ......................................................................13
5.Number of Resettled Refugees in the EU on a Programme Basis, 2000-2012 ..................................13
6. Number of Resettled Refugees in the EU on an ad hoc Basis, 2000-2011 .......................................14
7. Programme-Based and Ad Hoc Refugee Resettlement in the EU, 2000-2011 .................................14
8. Resettlement Quotas in the EU, 2000-2011 ......................................................................................15
9. Total of Resettlement Quotas from across the EU and Actual Resettlement in the EU, 2000-2011 15
10. Top Ten Countries of Origin of Resettled Refugees in the EU, 2000-2011 ....................................16
11. Top Ten Countries of First Asylum of Resettled Refugees in the EU, 2000-2011 .........................16
12. Total Refugee Admissions in the EU Countries, 2000-2011 ..........................................................16
13. Resettlement in the EU Traditional Resettlement Countries, 2000-2011 ........................................17
14. The Share of Resettlement in the EU, 2000-2011 ...........................................................................17
15. Use of Resettlement Quotas in Traditional and Non-Traditional Resettlement Countries, 2000-2011 .. 18
16. Use of Resettlement Quotas in Traditional Resettlement Countries, 2000-2011 ............................18
17. Use of Resettlement Quotas in Non-Traditional Resettlement Countries, 2000-2011 ....................19
18. Resettlement of Iraqi Refugees in the EU, 2000-2011 ....................................................................19
19. Resettlement in the EU in 2011 .......................................................................................................20
20. Proportion of Women among Resettled Refugees in selected EU Member States, 2000-2011 ......20
21. Religion of Resettled Refugees in selected EU Member States, 2000-2011 ...................................21
22. Top Three Countries of Origin for Resettled Refugees on a Programme Basis in Selected EU
Member States, 2000-2011.....................................................................................................................21
23. Formal Basis for Resettlement and Effective Resettlement in the EU Member States ...................22
24. Pre-Arrival and Post-Arrival Phases of Refugee Resettlement in the EU Member States ..............29
PART II - "RESETTLEMENT COUNTRY PROFILES" ..............................................................40
Austria .......................................................................................................................................41
Belgium .....................................................................................................................................47
Bulgaria .....................................................................................................................................58
Cyprus .......................................................................................................................................66
Czech Republic..........................................................................................................................71
Denmark ....................................................................................................................................84
Estonia .......................................................................................................................................95
Finland .......................................................................................................................................99
France ......................................................................................................................................115
Germany ..................................................................................................................................129
Greece......................................................................................................................................142
Hungary ...................................................................................................................................147
Ireland......................................................................................................................................158
Italy..........................................................................................................................................170
Latvia .......................................................................................................................................180
Lithuania..................................................................................................................................184
Luxembourg ............................................................................................................................190
Malta........................................................................................................................................197
Poland ......................................................................................................................................203
Portugal ...................................................................................................................................210
Romania ..................................................................................................................................221
Slovakia ...................................................................................................................................232
Slovenia ...................................................................................................................................238
Spain ........................................................................................................................................247
Sweden ....................................................................................................................................260
The Netherlands ......................................................................................................................274
United Kingdom ......................................................................................................................287
PART III EU COMPARATIVE REPORTS ................................................................................301
Refugee Resettlement in the EU: Between Shared Standards and Diversity in Legal and Policy
Frames, Delphine Perrin (EUI), with the collaboration of Frank McNamara. .....................................302
Refugee Resettlement in the EU: Capacity to do it better and to do it more, Elona Bokshi (ECRE). ...370
PART IV COUNTRY OF FIRST ASYLUM REPORTS ............................................................427
Kenya Report, Hannah Elliott ............................................................................................................428
Pakistan Report, Elias Chattha. ..........................................................................................................479
Tunisia Report, Wafa Baba ................................................................................................................500
Executive Summary
1. Nature and Purpose of the Project
The Know-Reset project has been carried out by the Migration Policy Centre (MPC), which conducts
advanced research on global migration to serve migration governance needs at the European level,
from developing, implementing and monitoring migration-related policies to assessing their impact on
economy and society more generally. The Know Reset project is part, too, of the advocacy policy of
the European Council on Refugees and Exiles (ECRE) and its member agencies. These monitor and
denounce human rights violations while proposing and promoting fair, effective and durable solutions,
such as refugee resettlement.
The Project was co-funded by the European Union DG Home Affairs in the framework of the
European Refugee Fund Community Actions 2010. It was carried out by the EUI (European
University Institute), in partnership with ECRE (European Council on Refugees and Exiles, Brussels),
from September 2011 to July 2013.
The general objective of the project was to construct the knowledge-basis for better policy-making
in the domain of resettlement, both at EU level and in the 27 Member States. Know Reset aimed at
conducting a systematic inventory of resettlement frameworks and practices in the EU, providing a
comparative analysis and assessment of resettlement in the Member States, evaluating their
resettlement capacity while addressing policy recommendations to the EU and its Member States in
order to enhance cooperation and improve resettlement activities. To better understand Member
Statesdecision-making and better explore the potential for developing resettlement capacity in the
EU, the Project has covered the 27 EU Member States whatever the nature and degree of their
involvement in refugee resettlement (programme-based, ad hoc, ETC1, none). Its target audiences
were policy-makers, institutions and non-governmental stakeholders as well as the public and the
media who can all benefit from its main outputs: An online database and a dedicated website
(http://www.know-reset.eu/).
The partnership between the EUI and ECRE has enabled to confront and combine two different and
complementary project approaches and has enriched the analysis of refugee resettlement in the EU and
its Member States. This partnership has also brought two European-wide networks together, providing
an exhaustive and various set of data and analytical tools.The two partners rely on large networks of
academic and civil-society expertise. For this particular project, 16 NGOs from the ECRE alliance and
20 researchers from the EUI have collected resettlement-related data directly from the national
governmental and non-governmental stakeholders in the 27 Member States. Besides, 132 various
stakeholders have been interviewed all over the EU. The project team has proceeded to a systematic
and comparative inventory of legal and policy frameworks and actual practices related to resettlement
in the EU and its Member States providing an updated set of information, mapping and comparing
those frameworks and practices.
Know Reset is the first project focussing on the EU and its 27 EU Member States, in order to better
compare the various approaches, assess the resettlement capacity potential in the EU and the impact of
the Joint EU Resettlement Programme (JEURP) on Member States commitment in resettlement.
Analysing all EU-27 States is a key contribution to the understanding of resettlement: such a
comprehensive country analysis had never been accomplished before.Mapping resettlement
frameworks and practices indeed implied covering all states that are involved in resettlement in one
form or another, and to various degrees. Some EU Member States do not have resettlement
programmes, but have resettled on an ad hoc basis, in response to a specific refugee crisis and/or to
UNHCR's calls. Besides, some EU Member States do not currently resettle, but have taken (legal,
Emergency Transit Facilities.
KNOW RESET RR 2013/05 2013 EUI, RSCAS
Executive Summary
political and practical) steps to do so in the future. There is a great diversity in terms of commitment
towards resettlement in the EU and a series of recent evolutions. This is a snapshot of the situation:
The majority of EU Member States have been involved in resettlement to one extent or
another,
Very few of them have a long tradition of resettlement,
Some countries that seemed tied to an ad hoc approach have recently opted for a programme,
Other countries, which had pledged to resettle, could not meet their commitment,
Most of the 'new' Eastern Member States have decided to participate in resettlement. Some
of them have actually implemented it,
Only six Member States have had no involvement in resettlement.
Evaluating the potential to develop and improve refugee resettlement in the EU implies addressing
the whole range of national attitudes towards resettlement, as well as their variations in time and in
space. It relies on a broad understanding of resettlement capacity, which is based on financial and
material means, but which is also matter of political will, legal framework, social context, civil
society, and a series of country-specific determinants, that have been examined by Know Reset.
Besides, unique field research has been conducted in three major countries of first asylum (Kenya,
Pakistan, Tunisia) by external experts hired for the Project, who dedicated their observation and
analysis on EU Member States resettlement practices in the pre-departure phase.
The Project has produced a website (http://www.know-reset.eu/) only and fully dedicated to
resettlement in the EU. It is the first website mapping EUs involvement in refugee resettlement, and
comprising the 27 EU Member States. Conceived to be as user-friendly as possible, the Know Reset
website is a useful instrument which enables to learn about and to compare the diverse frameworks,
policies and practices within the EU, to evaluate the resettlement capacity in the EU, to follow the
evolution of Member States commitment in resettlement and to assess the impact of the JEURP. The
Project has also developed a unique database comprising a systematic and comparative compilation of
administrative and legal frameworks, statistics and policy documents for each of the Member States
and for the EU as a whole. The Project has provided an edition of 27 country profiles dedicated to
refugee resettlement and its comparison in the EU. Besides, it has produced first-hand graphs and
tables for quantitative and qualitative country comparison within the EU, which have been developed
on the basis of the data collected by the research team.
2. Outputs and Findings

The Project has been implemented at a crucial moment, when the JEURP was being adopted at the EU
level and the projects various deliverables have been able to measure the impact of the EUs
initiatives on the development of Member States commitments toward resettlement. During the
implementation of the Project, from September 2011 to July 2013, four Member states became
resettlement countries.
The Development of Resettlement-Related Frameworks and Policies in the EU and its Member
States
While only one new resettlement country emerged in the EU during the 1990s (Ireland), nine were
created during the 2000s: seven alone between 2008 and 2013. The number of resettlement countries
in the EU is now fourteen: in addition to the four traditional resettlement countries (namely Sweden,
Denmark, the Netherlands, Finland) and Ireland,the United Kingdom launched a programme in 2004,
Portugalin 2007, the Czech Republic, Romania and France in 2008,and Hungary, Belgium, Germany
and Spain in 2012/2013. Bulgaria is, meanwhile, to start a programme in 2014. Two additional

2
Refugee Resettlement in the EU - 2011-2013 Report
Member States refer to resettlement in law (Poland and Slovenia), even though they have not resettled
yet, and two other Member States have already joined resettlement operations on an ad hoc basis (Italy
and Luxembourg). Slovakia hosts an Emergency Transit Centre (ETC) for the humanitarian transfer of
refugees before their resettlement to EU Member States or third countries, as does Romania. Among
the six EU Member States which have not taken any steps toward getting involved in resettlement,
Lithuania began discussions in February 2012 on resettlement participation.
As elaborated in the EU Comparative Reports produced for Know Reset, the development of
resettlement-related frameworks and policies in the EU and its Member States is undeniable and has
accelerated over the past five years. This is mainly due to the combined effect of joint operations to
respond to major refugee crises and to the EUs increased support of UNHCR efforts to encourage States
to resettle refugees. EU led initiatives for multilateral operations have been the main incentive for
Member States in getting involved in refugee resettlement when said states have no resettlement history.
A small majority of Member States are now resettlement countries, insofar as they have committed
to resettling refugees on a programme basis. Moreover, while refugee resettlement depends on
voluntary governmental decisions, exclusive from any legal duty, it is no longer exclusively based on
an administrative framework. Refugee resettlement is increasingly based on asylum and refugee law.
Thirteen Member States have included a reference to refugee resettlement in their asylum legislation;
eleven of them did so during the past decade. This does not make resettlement a legal duty for those
States, nor, indeed, is it a right for refugees. Yet, the adaptation of legal frameworks may facilitate
refugee resettlement. This might allow the granting of refugee status outside the territory for instance,
or determining the procedure and competent institutions.
The absence of legal reference to refugee resettlement has not impeded certain Member States from
resettling in a sustainable and regular manner in the past (in Scandinavia) and even today (the
Netherlands). Equally, the existence of a legal reference to refugee resettlement is not a guarantee that
the State does or will resettle. It does not constitute evidence of resettlement: but it can help and
support sustainable commitment.
The Joint EU Resettlement Programme adopted in March 2012 has been a great support in the
development of commitments in resettlement and plays an important role in the search for a concerted
approach to resettlement. Nevertheless, its impact has been limited. It is based on on a financial
incentive, which does not convince all Member States, and on the positive impact of joint initiatives.
Diversity in the Content of Resettlement Frameworks and Practices
The selection process is extremely diverseamong Member States. Criteria and procedures vary across
countries. They may also varyfrom one year/period to another. The quality of refugee resettlement relies,
amongst other things, on the capacity of Member States to address the needs and concerns of the various
stakeholders involved in the process: UNHCR, IOM, NGOs, local authorities, government ministries,
and, finally, refugees themselves. Collaboration between stakeholders at the different stages (pre-arrival
and post arrival) of the resettlement process differs greatly from country to country as well.
In the last decade, most of the resettlement operations carried out in EU Member States have relied
on UNHCR pre-selection. When referring some cases to resettlement states, UNHCR takes into
account the preferences and criteria previously discussed with and indicated by Member States. Then,
resettlement States generally add their own selection process, either on a dossier-basis or through
selection missions, and may demand certain criteria which the refugees must satisfy.
UNHCR has developed standards to identify and select those refugees who are most in need of
protection. EU funding instruments have partly supported those standards. The transfer of refugees
from a third country to an EU country would not be considered resettlement and would not be funded
as such, if carried out independently of UNHCR. The EU also supports the resettlement of specific
categories of vulnerable persons on the basis of UNHCRs selection criteria and prioritizes the

Executive Summary
resettlement of some refugee groups identified by UNHCR as being in urgent need of group
resettlement.
Most Member States incorporate UNHCR resettlement criteria and case submission as the basis of
the selection process. However, some governments shy away from receiving refugees that they think
might have less integration potential or that may require more financial and public services support.
Selection criteria also include country specific asylum policy and foreign policy, the capacity of
reception and integration services.
While being part of the club is a key motivation for Member States getting engaged in
refugeeresettlement, Member States are extremely unreceptive to any proposal to harmonise the
selection of refugees to be resettled. The ERF is one way in which the selection of refugees may be
influenced. Indeed, through its funding conditions, the ERF influences the selection targets of Member
States, as well as the procedure and ther ights granted. Nevertheless, the EU is unlikely to develop a
common selection procedure.Nor is it likely to reach an agreement as to how to divide the refugees tobe-resettled amongst Member States.
Even more problematic is the diversity in the status and rights granted to resettled persons and the
integration capacity of Member States. A growing problem concerns the possible development of
lower reception quality in some countries, as a result of a greater number of places being available for
resettlement.
More Resettlement Countries, More Places?
The JEURP was a positive step towards increasing the number of resettlement places made available
by EU Member States. However, EU resettlement capacity has not significantly increased in parallel
with the expansion in number of EU resettlement countries.
The EUs overall contribution to global resettlement has remained approximately the same: 7.9 %
of the total number of refugees resettled in 2007 and 8.3 % in 2012. The traditional resettlement
Member States still have the greatest impact on EUs contribution to resettlement. In most EU
resettlement countries, resettlement quotas are not reached,which can be attributed to a number of
factors such as reception capacities, the socio-economic context and financial means. Failure to reach
resettlement quotas can also be linked to selection methods and process. Some resettlement countries
are able to offer only a very limited number of places, especially the new resettlement countries, as
they require time and resources to build their capacity to develop and implement their resettlement
programmes. The way the number of resettled refugees is calculated is also crucial: this affects what
we know concerning the total number of refugees resettled.
Resettlement efforts by EU member states are still limited particularly compared to the global
resettlement needs, as well as in terms of potential capacity. For resettlement to fulfil its function as a
meaningful demonstration of solidarity with countries of first asylum and as a useful component of a
comprehensive durable solutions strategy, resettlement numbers need to be more significant in
comparison with the number of refugees waiting for resettlement in countries of first asylum.

4
Background information: Resettlement and the Joint EU Resettlement Programme

Refugee Resettlement
Resettlement is a durable solution that may be offered to refugees who have sought protection in a
country where local integration is not an option, and who cannot return to their home country.
Unlike asylum, resettlement is not a right: States offer resettlement on a voluntary basis. In
practical terms, refugees with specific needs are selected by UNHCR or the resettlement country. They
are then transferred from their current country of asylum to the country that has accepted to receive
them. These refugees should be granted a residence status.
Why resettling?
Resettlement is a way to alleviate countries of first asylum of the burden of refugees who can neither
return nor be locally integrated. It is an essential tool in sharing responsibility for refugee protection with
those developing countries that receive the largest number of refugees, such as Pakistan and Kenya.
How many people are resettled?
Only a small minority of refugees worldwide are resettled. Out of all refugees, only 1 per cent is
considered by UNHCR as needing resettlement. Ultimately, about 10 per cent of these are actually
resettled each year.
Compared with protection needs and involvement in resettlement of countries like the US and
Canada, the contribution of EU Member States is modest. Moreover, it varies from year to year and
from place to place. Over the last years, the European Commission has tried to foster cooperation in
the field of resettlement. A Joint EU-resettlement programme was finally adopted by the European
Parliament on 29 March 2012. It introduces some important incentives to persuade Member States to
start resettlement programmes or to increase the number of resettlement places.
EU Member States involvement in resettlement
The Joint EU Resettlement Programme (Jeurp)

Historical background
Already in 2000, the European Commission suggested that Processing the request for protection in
the region of origin and facilitating the arrival of refugees on the territory of the Member States by a
resettlement scheme are ways of offering rapid access to protection (COM/2000/0755 final). The
Commission believed that only a joint EU approach could create necessary political and operational
terms for accessing European territory and for allowing resettlement to be used for strategic purposes both to assist the EU Member States and attain the objectives of UNCHRs Agenda for Protection.
In the course of the years, resettlement was recognised as the key tool for offering a durable solution.
However, only limited progress was made to implement it.
During these years, the Commission argued that the coordination of resettlement activities between
individual Member States was inadequate. Moreover, the European Refugees Fund (ERF) which cofinances resettlement in the Member States - was too rigid to respond to changing needs, particularly
with respect to geographical priorities. The ERF used to fund only resettlement of refugees from
outside the EU to Member States, and not the relocation between Member States.
Finally, a full-fledged proposal to establish a Joint EU resettlement Programme was tabled in
September 2009. The aim was to:

6
increase EUs humanitarian impact
to integrate resettlement into external relations policy,
to streamline actions of Member States to make them more cost effective.
The proposal remained stuck between institutions mainly because of the annual priority setting and
because of an argument about which decision procedure to use in connection to the implementation of
the Lisbon Treaty.
Today we have a Joint EU resettlement programme
On 29 March 2012, the European Parliament voted on the Joint EU Resettlement

Programme, already approved by the Council (6444/12). This vote paves the way for a 'Joint
EU Resettlement Programme' presented by the European Commission back in 2009. This
decision determines common EU resettlement priorities for 2013 and announces an increase
of the compensation that Member States receive from the European Refugee Fund for
resettlement of refugees. The EU Commissioner Malmstrm welcomed the decision, stating
that it is a much-needed measure that will improve cooperation and allow the EU to pool
resources for resettlement.
Priority groups
The decision targets the following priorities for resettlement:
Persons from a country or a region designated for the implementation of Regional Protection
Programmes (COM(2005) 388 final): -Newly Independent States (NIS): Ukraine, Moldova
and Belarus,
Great Lakes Region: Tanzania,
Horn of Africa: Kenya, Djibouti and Yemen,
North Africa: Egypt, Tunisia and Libya;
Persons from one or more of the following vulnerable group categories: -women and
children at risk, -unaccompanied minors, -survivors of violence and torture, -persons having
serious medical needs, -persons in need of emergency or urgent resettlement for legal and/or
physical protection needs;
Persons from a geographical location on the list of common EU priorities for 2013: Congolese refugees in the Great Lakes Region (Burundi, Malawi, Rwanda, Zambia); -Iraqi
refugees 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.
More EU funding
There will be a clear increase of funding for resettled refugees. Member States will receive a
compensation for each resettled refugee falling into one or more categories mentioned above:
First time applicants will receive EUR 6,000 for the first year, and EUR 5,000 for the second
year,
For the rest the compensation will remain at EUR 4,000.
Pilot scheme in 2013

Member States were asked to provide the Commission by 1 May 2012 with an estimate of the number
of persons per category that they plan to resettle in 2013 (European Parliament News, 29 March
2012). The May deadline and the joint resettlement priorities are a novelty proposed by the European
Commission; the aim is to make them a regular feature of policy-making on asylum. The scheme will
be applied as a trial this year, which means that the Member States' estimates of the number of persons
they plan to resettle are not binding (European Voice, 1 March 2012).
For background information on the long legislative process of the Joint EU Resettlement
Programme and ERF funding:
http://www.europarl.europa.eu/oeil/popups/ficheprocedure.do?reference=2009/0127%28C
OD%29&l=en
Proposed Asylum and Migration Fund (AMF) 2014- 2020
While the amendment to the ERF only covers funding in 2013, it paves the way for new rules
concerning the financial support that EU Member States may receive for the resettlement of refugees
from third countries through future funding during the period 2014-2020.
The Commission has proposed the Regulation establishing the Asylum and Migration Fund (AMF)
at the end of 2011: http://ec.europa.eu/home-affairs/news/intro/docs/751.pdf
The proposed funding should allow for more strategic use of resettlement during the 2014-2020
funding period, with a more focused approach to resettlement priorities that are to be set bi-annually. The
AMF will support the establishment of a Union Resettlement Programme for which an amount of 560
million has been earmarked, five times the amount previously set aside for resettlement under the ERF.
The aim of the proposed funding is twofold:
to provide durable solutions to an increased number of refugees by supporting their transfer

from outside EU territory and their establishment in an EU Member State; and
to maximise the strategic impact of resettlement through a better targeting of those persons
who are in greatest need of resettlement on the basis of common EU resettlement priorities.
These priorities will be established for two year periods with the involvement of the
European Parliament and the Council and in cooperation with UNHCR and the European
Asylum Support Office.
If adopted in the presently-proposed form, the AMF will support the resettlement of every refugee
supported with 6,000 EUR per person, while the EU would fund 10,000 EUR for refugees that are
covered by priority categories as stipulated in the AMF. The additional funding would relate to
resettlement of refugees that are regarded as particularly vulnerable as well as refugees from certain
regional priorities. The vulnerable groups would remain unchanged during the AMF period, while the
regional priorities would be set on a bi-annual basis.
The proposed vulnerable refugee groups are:
women and children at risk,
unaccompanied minors,
persons having medical needs that can be addressed only through resettlement,
persons in need of emergency resettlement or urgent resettlement for legal orphysical

protection needs.

8
In Annex III to the proposed AMF Regulation, the following common Union priorities for the
first two years 2014-2015 are listed as:

1. Regional Protection Programme in Eastern Europe (Belarus, Ukraine, Moldova)
2. Regional Protection Programme in the Horn of Africa (Djibouti, Yemen, Kenya)
3. Regional Protection Programme in North Africa (Libya, Tunisia, Egypt)
4. Refugees in the region of Eastern Africa/ Great Lakes
5. Iraqi refugees in Syria, Lebanon, Jordan
6. Iraqi refugees in Turkey.

PART I
COUNTRY COMPARISON
RESETTLEMENT IN THE EU
AND ITS MEMBER STATES
Elona Bokshi
Metin Nebiler
Delphine Perrin
10
11
Country Comparison Resettlement In The Eu And Its Member States
12
13
14
15
16
17
18
19
20
21
FORMAL BASIS FOR RESETTLEMENT AND EFFECTIVE RESETTLEMENT IN THE EU MEMBER STATES

Formal Basis for Resettlement
EU Member
Date of resettlement
Specific provision in Law
Governmental Act
Ad Hoc
Resettlement
Programme based
Resettlement
Austria
None
None
2011
None
Belgium
None
*Decision of the Council of Ministers on a specific

resettlement Iraqi and Palestinians from refugee
2009
camps in Syria and Jordan (2009)
State
*Decision of the Cabinet on a specific

resettlement from Libya (2011)
2011
None
*Council of Ministers draft decision (2012) - Pilot

programme
None
None
Cyprus
None
None
Czech
Republic
Asylum Act (1999),

Section 90
22

Since 2013
Bulgaria
Planned for 2014

None
2005
2007
Since 2008
*Government Resolution on a specific

resettlement Burmese (2008)
Denmark

2010
None
None
Since 1978
Aliens Act (2011), as

amended in 2005,
Section 8
Estonia
None
None
None
None
Finland
None
Since 1985
Aliens Act (2004), Section

90, 91, 92.
*Decision on the geographical allocation of the
refugee quota, 17 February 2012
France
None
Since 1948
Other relevant dates:
23
Germany
Residence Act (2004),

Section 22.
1956
1974-1984
1999
*Framework Agreement between France and the

UNHCR (2008)
2008
Since 2008

*Ruling of the Federal Ministry of the Interior
about Iraqi refugees (2008)
2009
*Decision on the launch of a permanent

resettlement programme and on admission of
refugees from North Africa (2011)
Since 2012
Greece
None
None
None
None
Hungary
Asylum Act (2007),

Section 7
None
Italy
None
*Governmental Decree (2011) Refugee Solidarity

Programme related to the North-African crisis
None
2012
2007
None
2008-2009
2009
24
2010
Latvia
None
None
None
None
Lithuania
None
None
None
None
Luxembourg
None
None
2009
None
Malta
None
None
None
None
Netherlands
None
None
Since 1984

*Decree (2000) transfers responsibility for the

quota policy for resettled refugees to the Minister
of Justice
*Decree of the Minister of Justice (2010) outlines
Dutch resettlement policy
*Government Decision (2012) Policy Framework
for Resettlement (2012-2015)
Poland
Portugal
Act on granting
protection to foreigners
(2003), as amended in
2011
None
None
2011
2006
25
Since 2007
*Resolution of the Council of Ministers (2007)
Asylum Law (2008),

Chapter III Section V
Republic of
Ireland
Refugee Act (1996),

Section 24.
None
Since 1998
*Cabinet Decision (1998) Quota decision

*Cabinet Decision (2005) Quota decision
Romania
Law on Asylum (2006),

Article 3(5)
None
Agreement with UNHCR and IOM (2008):

Emergency Transit Centre in Timisoara
Decision on the Resettlement of Refugees (2008)
Sets out regulation of resettlement and states
how many refugees will be resettled during the
period 2008-2010
In 2008
2012 Decision to amend the 2008 Decision on the

Resettlement of Refugees in Romania
Slovakia
None
*Agreement with UNHCR and IOM (2009):

Emergency Transit Centre in Humenn
Planned for 2012-2013
None
None
*Agreement with UNHCR and IOM (2010):

Emergency Transit Centre in Humenn
26
Slovenia
Spain
None
International Protection
Act (2007), Chapter VIII
Section 70
Since 1979
*Royal Decree (1995) makes reference to
UNHCR requests to resettle
*Decision of the Council of Ministers (2010)

Approves the 2010 programme: 75 refugees
Law regulating the right

to asylum and subsidiary
protection (2009)
None
*Government Decree on implementation of

resettlement based on yearly quota (2011)
*Decision of the Council of Ministers (2011)

Approves the 2011 programme: 100 refugees
*Communication of the Council of Ministries

(2012) - Approved a new Resettlement
Programme
2012
Sweden
Aliens Act (2005),

Chapter 5 Section 2
None
Since 1950
*Spending authorization for the Migration Board

(2011) by the Ministry of Justice, defines the
27
resettlement quota for 2012
*Migration Board Decision on Resettlement

(2012) - Distribution of places, strategic and
operational assessments
United
Kingdom
Nationality, Immigration
and Asylum Act (2002),
Section 59
None
13 EU countries refer to
resettlement in Law.
15 EU countries have adopted government acts

related to resettlement.
None

Since 2004
18 EU countries have had a formal basis for resettlement.
28
10 EU countries have
resettled on an ad hoc
basis.
resettled on a
programme basis.
16 EU countries have already resettled.
PRE-ARRIVAL AND POST-ARRIVAL PHASES OF REFUGEE RESETTLEMENT IN THE EU MEMBER STATES

I. PRE- ARRIVAL PHASE
Pre - arrival Selection
c riteria

phase

UNHCR
National Target

criteria*
Preferences

EU countries
1
Austria
No
Belgium
No
(2009, 2011)
Bulgaria
Cyprus
Czech
Republic
Selection process
Dossiers
Pre-departure activities
Missions
Actors involved Before arrival Upon arrival
Cultural orientation
-The Church
Yes
-IOM
-Ministry of the
Interior
n/a
Yes
(2011)

Selected by
representati
ves in Iraq
of the
archdiocese
in Vienna
Yes
(2009)

Pre-Selection
Yes
(simplified
procedure)
2011: CO not provided.

Information pamphlets
covering information
about Belgium were
printed but not given to
refugees.
-UNHCR
-CGRA
-State
Secretary for
Asylum and
Migration
-FEDASIL
-UNHCR
-State Agency
for Refugees
/
Possible
/
Yes
/
- UNHCR
-The
/
/
Pre-Selection Yes
(simplified
2011: Christian Iraqis
2011: Family with

children and single
women.

2009: women at
risk and Palestinians

Yes (possible) Bulgaria is interested
in resettling Afghani
and Iraqi refugees
from Turkey.

/
/
No
Possibly vulnerable

persons: seriously ill
Application Process
/
Done by the Resettlement
Group when interviewing
Yes: The State accepts obligations towards refugees recognised by UNHCR according to a broader definition Mandate Refugee Status No: Geneva Convention criteria and generally Subsidiary Protection criteria.
29
Denmark
No
7
8
Estonia
Finland
/
Yes
(possible)

30
persons, children,
women at risk and
other cases, based on
specific humanitarian
factors.
Some integration
aspects are also
taken into
consideration.

Sub-quotas: 75
urgent cases;
Twenty-Or-More
for specially sick or
handicapped
refugees.

Integration criteria
included in 2005.
Supplementary
criteria of influence:
language
qualifications,
education and work
experience, social
network, age,
motivation.

/
Annual geographical
allocation of the
quota, based on the
need of continuity in
the chosen
refugee groups.

Capacity to integrate
is a factor.
Resettlement
Group
-Minister of
Interior

procedure if
previous
UNHCR
refugee
status)
Yes
(Urgent
cases)
Yes
-UNHCR
Yes
-Danish
Immigration
Service (DIS)
-Danish
Refugee
Council (DRC)
-Municipalities
/
Emergen
cy and
Urgent
cases

/
Yes

/
-UNHCR
-Finnish
Immigration
Services
(MIGRI)
/
Yes
the people in need of

resettlement
in
the
country of first asylum
initial information about
what they can expect
from resettlement in the
Czech Republic and to
what extent they will
receive assistance on
arrival.
Yes done by DIS and
Danish language teachers.
Offered to all
refugees accepted on
selection missions but not
to refugees on dossier
basis. Over one week.

/
Cultural orientation is the
remit of IOM. The
arrangement
was established in 2001
and ran until the
termination of the
contract in 2010.
The co was not arranged
in 2011 and
France
Yes

10
Germany
Yes

10% of the quota are
reserved
for emergency cases
and urgent cases.

2008 (Iraq 500):
Belonging to a
religious minority
(especially Christian)
and link with France
(either through
family ties or
knowledge of French
by at least one family
member). Residence
either in Iraq or in a
neighbouring
country: Jordan,
Syria, Lebanon or
Turkey.

Programme-Based:
Integration potential
together with
protection need;
consideration of the
reception and
housing capacity in
the country.

2008: Focus on
members of
persecuted
(religious)
minorities, victims of
violence and with
special medical
the contract is currently

being negotiated.
Currently no cultural
orientation is organized.

Yes
No
-UNHCR
- Ministry of
Home Affairs
-OFPRA
Pre-Selection
Yes
Sessions of cultural
introduction can be
organised by IOM. This
has been done only for
Iraqis and EU relocation.
When such activities
cannot be organised, the
IOM may distribute an
information package, of
which the Information
Leaflet for People
Resettled in France.

Pre-
Selection
Yes
-UNHCR
-BAMF
Yes
No
31
11
12
Greece
Hungary
/
No
13
Ireland
Yes
32
needs, single women

with children.
Other criteria such as
capacity of
integration, ties with
Germany and family
unity.

2011: Priority to
refugees with Sub-
Saharan origin who
fled from Libya.

/
/
No specific
/
admissibility criteria.
A family (5-8
persons) from the
North-African region.
Aspects to consider
when doing
resettlement: need
for international
protection, security
reasons, integration
possibilities.

Preference
Yes
-Group resettlement
-balanced caseload
(mix of women at
risk, disable persons,
etc)
-community or
spiritual leaders
/
Yes
/
-UNHCR
-OIN

/
Yes
/
No
Between
2005 and
2008
-UNHCR
-Minister for
Justice and
Equality
-Minister for
Foreign Affairs
- Office for the
Promotion of
Migrant
Integration
(OPMI)
Yes
Yes
Through the Irish
authorities
14
Italy
Yes
15
Latvia
/
Lithuania
/
17 Luxembourg No
16
18
19
Malta
/
Netherlands No
No additional
criteria.
Possibly national
security
considerations.
Yes
/
/
2009: Families with
children (young if
possible), including
single-parent
families.

/
Subquota: 30 Medical
cases.
Refugees with
medical needs and
women at risk are
resettled through the
Twenty-Or-More
programme.

More emphasis will
be placed on the
which has been
applied since 2005.
Dutch Minister for
Immigration and
Asylum recently
proposed
resettlement be used
as strategically as
possible with regard
to the other purposes
of the countrys
/
/
Yes
/
Yes: 100
refugees/
year
No, except
in Iraq in
2009 to
assess the
local
situation.
/
/

/
Suspended
from 1999
to 2005.
Yes: 400
refugees/ye
ar
-UNHCR
-Ministry of
Home Affairs
-Territorial
Commissions
Pre-Selection
Yes
(Simplified
Procedure)
No
/
/
-UNHCR
-Ministry in
charge of
immigration
-OLAI
-CARITAS
/
-UNHCR
-Minister for
Immigration,
Integration and
Asylum (quota
definition)
-Ministry of
Justice
-Municipalities
-Ministry of the
Interior and
Kingdom
Relations, -
Ministry of
Foreign Affairs
-Resettlement
Unit of the
Immigration
and
Naturalisation
Service (IND)
- Central
Agency for the
/
/
Yes
/
/

/
/
OLAI did prepare some
leaflets concerning rights
upon arrival, including
healthcare and education
/
Yes
/
No
/
Organised by COA,
consisting of three
trainings. Content:
elementary Dutch
language skill;
Information about the
Dutch society;
Information about the
receiving municipality;
and the future
accommodation.
For dossier-based
refugees, CO trainings are
developed and offered by
IOM in cooperation with
COA.

33
20
Poland
n/a
21
Portugal
Yes
34
migration policy and

UNHCR to select
more higher profile
refugees such as
human rights
activists and
academics.

Humanitarian
aspects, necessity to
satisfy the essential
needs of resettled
refugees, actual costs
of individual
programmes of
integration.

Reception of
Asylum
Seekers (COA)

n/a
Programme:
Yes
Continuity in
resettlement;
Privilege to citizens
coming from the
African continent and
from Eastern Europe,
but not excluding
other situations of
citizens coming
from other places, if
these justify their
priority selection,
mainly for
serious humanitarian
reasons.

2011: People from
countries covered by
In the
future:
Interview by
the Officer
of the
Border
Guard
delegated to
the selection
task.

None so far
-Council of
Ministers
-Head of the
Office for
Foreigners via
the officer of
the Border
Guard outside
Poland
Yes
-UNHCR
Yes
- Immigration
Service /
Refugee and
Asylum Cabinet
- Ministry of
Internal Affairs,
-Portuguese
Aliens and
Borders
Service
-Portuguese
Refugee
Council.
Yes
n/a
Non systematic
distribution of a Cultural
Orientation Leaflet for
Resettled Refugees in
Portugal.
22
Romania
No

23
Slovakia
Slovenia
/
n/a
24
a Regional Protection
Programme,
unaccompanied
minors, children and
women at risk.

Potential for
integration applied in
2008, dropped in
2012.

2012 Criteria:
Express consent of
the refugee to be
resettled in Romania;
Romanias foreign
policy; Relocation
requirements at EU
level.
Minimum medical
requirements to be
defined.

/
Global migration
trends, crisis areas
around the world,
integration
capacities.
Pre-
Selection
Yes
-UNHCR
Pre-Selection
-Minister of
Administration
and Interior
Minister of
Foreign Affairs
-Romanian
Office for
Immigration
(ROI)

Yes
Yes
Romanian NGOs involved
in integration
programmes will
participate to the
selection missions to
inform refugees on
integration activities in
Romania and prepare
integration programmes.

In addition, possible
cultural orientation and
counselling services
provided by ROI.

/
Yes
/
Possibly
/
-UNHCR
-Ministry in
charge on
internal affairs
/
Yes
Informative lecture -
general information on
Slovenia, cultural
characteristics and habits,
on the prohibition of
polygamy and gender
equality, rights and
obligations of persons
enjoying international
protection in Slovenia.

/
Yes
35
25
Spain
26
Sweden
27
United
Kingdom
Yes (possible) The criteria will be

defined on yearly
basis.
Will follow EU
policies.

Yes
No additional
criteria.
Number of places by
country of first
asylum decided
annually.
350 places for urgent
and emergency cases.
Yes
Yes
(in the
future)
2011 (Syria) -UNHCR

2012
-OAR (Office of
(Tunisia)
Asylum and
Refugees)
Yes
Yes (2011)
By IOM Information
sessions about Spain
Yes, for
more
than half
of the
quota.
Yes, for less

than half of
the quota.
-UNHCR
-Migration
Board
Yes
Possible
Yes
-UNHCR
Yes
-UK Border
Agency (UKBA)
- Refugee Team
in the Asylum
Casework
Directorate

Yes (Migration Board

Officers)
For more than half of the
refugees selected for
resettlement, mainly
those selected via in
country selection
missions. Generally,
cultural orientation is
carried out in 7-10 days.
By UK mission staff to
refugees explaining the
travel, reception and
initial integration
arrangements. Previously
by IOM.
Since 2011, a 1 day
programme has been
delivered by staff from
the Refugee Resettlement
Unit at the UKBA. It
includes video interviews
with refugees previously
resettled through the
programme in which they
talk about their
experiences of resettling
and advice for new
arrivals.
Regional allocation
Possible
targets, including
RPP.
Small percentage for
medical cases and a
higher percentage for
women-at-risk.
For Mandate
refugees: integration
potential and links
with the UK.
No
36
II-POST- ARRIVAL PHASE
Post arrival
phase
Refugee
EU countries
1
Status granted
Subsidiary
protection
Programme refugee The same as national

status or other
citizens
Specific status
The same as
refugees
The same as persons

under the subsidiary
protection status
Other specific rights

under national law
X
X
(5 year-stay
permit)

X

Right of permanent
residence.
/
X
(10 year-stay
permit)
X
(access to
permanent
residence
after 7 years)

/
X

4 year- residence permit
/
4 year-residence permit
Direct access to
immigrants benefits
upon arrival
Austria
Belgium
X
X
Bulgaria
4
5
Cyprus
The Czech
Republic
/
X

Denmark
Estonia
Finland
/
X (Quota Refugees)
Rights granted

X for health care and social
welfare, access to
education and
employment.
Potential to become
naturalized at a later phase
/
welfare,
access
to
education
and
employment.
Citizenship may be granted
on request after 5 years of
permanent residence.

welfare, access to
education and
employment.
Access to citizenship after 8
years.
/
welfare, access to
education and
employment, after the
integration period.
years.
37
France
10
Germany
Greece
Hungary
13 Ireland
/
X

/
/

/
/
X (Programme
Refugees)
14
Latvia
Lithuania
17 Luxembourg
/
/
X
/
/

/
/

18

X (Invited Refugees)
11
12
Italy
15
16
19
Malta
Netherlands
38
X for health care, social

welfare and housing,
access to education and
employment.
welfare, access to
education and
employment.
X
(10 year-stay
permit)
X
(1 year-stay permit)
/
/
welfare, access to
education and
employment.
years to be extended to 5
years by future reform.
welfare, access to
education and
employment.
/
/
X Social welfare and
healthcare

welfare, access to
education and
employment.
years of permanent
residence.
/
X
X

/
/

3 year-stay permit.
After 7 years a
settlement permit can
be granted.
Strict conditions for
family reunification.

/
/
Facilities for family
reunification
X
(5-year stay
permit)
X
(3-year stay permit)
/
/
X

X
(Access to
permanent
residence
after 5 years)

/
/

/
/

5 year residence permit.
20
21
Poland
Portugal
X
X
X
X
22
Romania
23
24
Slovakia
Slovenia
/
X
25
Spain
26
Sweden
27
United
Kingdom

welfare, access to
education and
employment.
years.
X for health care, access to
education and
employment.
/
X for health and social
care, access to education
and employment.
welfare, access to
education and
employment.
welfare, access to
education and
employment.
years for refugees, after 5
years for beneficiaries of
subsidiary protection.
X for medical care and
social welfare, access to
education and
employment.
years
X
X
(5 year-stay
permit)
X
X
/
X
/
Right to
residence
X
(5 year-stay
permit)
X
Permanent Residence
Permit
Indefinite Leave to
Remain
permanent
39
PART II
RESETTLEMENT COUNTRY PROFILES
40
Know Reset Building Knowledge for a Concerted and

Sustainable Approach to Refugee Resettlement

Know Reset Country Profile

Austria
Report written by
Manuela Scharf (EUI)

and reviewed by the Know Reset team
July, 2013

41
KNOW RESET Country Profile: Austria
Country Profile: AUSTRIA

In the period after the Second World War Austrian migration and refugee policy was strongly influenced by
the political events in the neighbouring countries to the east. Between the years 1945 and 1950 it hosted
more than one million displaced persons from Germany and other parts of Central and Eastern Europe.
Some of these people were then resettled to third countries to alleviate Austrias burden 1. Due to its
geographical position as a neighbouring country to communist states, Austria became an important
destination for political refugees from its eastern neighbours. In the wake of the Hungarian Revolution in
1956, approximately 180,000 Hungarians arrived in Austria, a major part of which considered it as a transit
country and only 20,000 of them settled down permanently in Austria. Also, the violent suppression of the
Prague Spring in Czechoslovakia led 162,000 Czechs and Slovaks to leave their country. An estimated
12,000 of them remained in Austria, while others either returned to Czechoslovakia or emigrated to other
states. Moreover, Austria served as a transit country in 1981 and 1982 for members of the Solidarno
movement fleeing from Poland.
In this context it is also important to mention that in the 1970s Austria resettled nationals from Uganda,
Chile, Indochina and Iraq. These activities took place in cooperation with international organisations such as
UNHCR or the International Rescue Committee. Furthermore, between 1968 and 1986 Austria hosted around
300,000 Jews from the former Soviet Union and Eastern Europe, who then emigrated to Israel and the USA.
At the end of the 1980s, Austria was no longer a country of transit but a host country. As was the case in
Germany, Austria also hired a workforce in the post war period from southern and eastern European
countries, the so called Gastarbeiter, who were supposed to cover the need for workforce and to return to
their countries when no longer needed. But many of these mostly male Gastarbeiter settled down and
brought their families to Austria. In the period between 1961 and 1974 approximately 265,000 people had
immigrated to Austria in the framework of this policy.
The oil crisis in the 1970s and the economic recession led to a stronger competition on the Austrian labour
market, especially because many Austrians who had worked abroad returned to Austria in search of work. As
a result of language and integration problems, foreign nationals were disadvantaged and faced higher
unemployment rates. In addition to that the continuing flow of refugees from the former communist states
created social tensions and caused political debates about a more restrictive immigration and asylum policy.
Since 1990 the laws on immigration and asylum have become more and more restrictive. A quota on the
foreign work force in the Austrian labour market was introduced and measures for faster deportation were
adopted. The introduction of the clause of the safe third countries in the new law on asylum in 1991 restricted
the possibilities to file an asylum application. Asylum claims from foreign nationals who have travelled to
Austria through a so called safe third country are considered as unfounded and will be rejected.
Public opinion with regard to refugees and immigrants in Austria has progressively become more
negative over the past 20 years. The topic of resettlement is not of an important political concern. According
to surveys, more than half of the Austrian population consider the integration of foreign nationals as rather
bad and favour stronger integration measures.
UNHCR representative in Austria, Christoph Pinter.

42
Asylum Profile
Number of protection
status granted 2
Number of asylum seekers 3
3,572 (2011)
2,977 (2010)
14,416 (2011)
11,012 (2010)
Resettlement Scheme
Ad hoc
Resettlement Quota
I. Legal and Administrative Framework

Asylum law / Aliens Act
Federal Act Concerning the
Granting of Asylum, 2005
No specific provision relating to resettlement.

Defines the asylum status and subsidiary protection status of
foreigners and the general procedures for the granting of them. It
contains provisions on its preconditions and on the granting ex officio
from which follows the recognition of the refugee status:
3. (4) An alien shall be granted asylum status ex officio without any
further procedure if the Republic of Austria has undertaken to do so
under international law.
(5) The ruling whereby an alien is granted asylum status ex officio or
on the basis of an application for international protection shall be issued
in conjunction with a declaration that refugee status is accordingly
conferred upon the alien by operation of the act.
Federal Act concerning

Settlement and Residence
in Austria, 2005
Contains the preconditions for the issuance of residence and settlement

permits, including for humanitarian reasons and the right of residence
for displaced persons. It also provides rules on the integration course
offer for persons entitled to settle.
Other basis of resettlement
On-going or foreseeable
project/reform
Austria is not interested in becoming a resettlement country.
II. Resettlement Policy and Related Involvements

a) On an ad hoc basis 4
1972
101 Indian and Pakistani refugees from Uganda. They had been brought
to Africa by the British colonial rulers as cheap workforce around the turn
of the century and were expelled by Ugandas president Idi Amin.
This act was supposed to underline Austrias humanitarian attitude,
but the Ministry of the Economy and the Austrian Federal Economic
Chamber committed strongly in the resettlement of highly qualified
http://www.bmi.gv.at/cms/BMI_Asylwesen/statistik/start.aspx
Ibid.
http://www.asyl.at/projekte/et_legal_entry_austria.pdf.
43

refugees. Between 1972 and 1974 approx. 1,500 refugees were
accommodated in Austria. However 1,400 of them left Austria again and
were resettled to the Netherlands, Sweden, Canada and Great Britain.
1973 and 1977
1974
Between 1979 and

1983
1991
2011
b) On a programme basis
c) Temporary
Resettlement:
Humanitarian Evacuation 5
After the Coup d'tat in Chile the Austrian Government decided to

accept UNHCRs request to host between 200 and 250 refugees from
Chile and Argentina. The refugees from Argentina arrived only in
1976/77 in Austria. Between November 1973 and July 1974 only 160
refugees from Chile arrived in Austria, but many Chileans came on their
own account, because no visa was needed for entering Austria. An
estimated 1000 Chileans were resettled to Austria and many of those
who had come from Argentina were already in possession of a
convention passport. However, this passport caused problems with the
work permit because the Austrian employment centre only accepted the
Austrian convention passport. Against reimbursement the UN refugee
funds from Vienna financed and first organised private accommodation,
then housing granted by the Ministry of the Interior.
In 1974 Austria granted asylum to 100 Iraqi Kurds who had fled to
Iran. They had to register for the resettlement in the Iranian refugees
camps. Among the refugees were university graduates with their
families and students.
On request of UNHCR the Austrian Minister of the Interior decided in
1979 to resettle 196 refugees from Vietnam. After the UN conference in
1979 another quota of 100 and shortly after that a further quota of 500
persons was granted. By 1983, approximately 2,000 refugees from
Vietnam were hosted in Austria. NGOs played an important role:
Caritas Obersterreich sponsored the resettlement of 700 Vietnamese
refugees, parishes offered housing and work for 500 refugees.
In the wake of the First Gulf War Austria resettled 201 Iraqi Kurds from
Turkey in 1991 and 100 Iraqi refugees from Iran. Criteria for the selection
were the intensity of the persecution in Iraq, relations to Austria (e.g.
relatives living in Austria) as well as the need for protection.
31 Iraqi Christians were accommodated in Austria following the
initiative of the Cardinal Christoph Schnborn.
/
The Austrian authorities emphasize that the resettlement activities of the
31 Christians from Iraq in 2011 were a humanitarian evacuation and no
resettlement. Austria defines resettlement as being limited to those
evacuations where refugees are evacuated from a third country and not
from their country of origin. 6 The activities that have been carried out by
Austria are an expression of solidarity and no commitment towards
further resettlement.
d) Through other Projects

Governmental Level
Non-Governmental Level
n/a
n/a
e) Resettlement-like
experience
From Guantanamo
Intra-EU Relocation
None 7
None 8
http://www.asyl.at/projekte/et_legal_entry_austria.pdf.
Interview with the Ministry of the Interior, 6 February 2012.
http://www.news.at/articles/0911/15/236347/guantanamo-haeftlinge-eu-auskuenfte (February 2012).
Interview with Anni Knapp from the NGO Asylkoordination sterreich, 8 February 2012.
44
III. Resettlement Implementation

Refugees resettled
31 Iraqi Christians (from Bagdad, Mosul, Kirkuk und Ninive), mostly family
unions and some single persons, were accommodated in Austria. They
were directly evacuated from Iraq and arrived in Austria on 17 February
2011. They were supposed to spend their first months in the House of
Education and Professional Integration (Haus der Bildung und beruflichen
Integration) of the Austrian Integration Funds. 9 The Ministry of the Interior
organised intensive preparation measures before their entry to Austria.
Among these were the implementation of the necessary security checks,
the organisation of the entry formalities, the creation of a detailed
integration concept as well as permanent contacts with the IOM and the
Federal Ministry of Foreign and International Affairs.
2011
They were entitled to asylum and following on from that they were
granted refugee status. 10
a) Selection Criteria and
Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Additional National
Criteria
Selection Process
The selection was mainly the competence of the Church. Through

representatives in Iraq, the archdiocese of Vienna suggested 31
persons from Bagdad, Mosul, Kirkuk und Ninive who had all been
afflicted by violent acts from Islamic extremists and who were nearly all
forced to flee from their homes. Some have lost family members or
close relatives. 11
Selection done by the Catholic Church. 12
2011
Pre-Departure Activities
2011 Operation:
Cultural orientation (CO)
Assistance with travel

documents
The organisation and the implementation of the transfer of these 31

persons to Austria were carried out by the International Organisation for
Migration (IOM).
Medical screening
Among their tasks were medical check-ups, the granting of visas

through the Austrian Embassy in Amman and the providing of an exit
permission from Iraqi authorities.
Procedure Timing
Comments
n/a
The initiative to resettle Christians from Iraq is taken mostly following
the commitment of the Catholic Church. The Church was also strongly
involved in the implementation of this resettlement action.
http://www.bmeia.gv.at/aussenministerium/pressenews/presseaussendungen/2011/ankunft-von-30-irakischen-christenin-oesterreich.html (February 2012).
10
Interview with the Ministry of the Interior.
11
Ibid.
12
Interview with Anni Knapp from the NGO Asylkoordination sterreich.

45

b) Status and Rights
Post-Arrival phase
Status granted
2 (4) of the Federal Act
Concerning the Granting of
Asylum
The selected persons were granted ex officio the status of a person

entitled to asylum. For that a declaration of formal obligation was
elaborated (with the IOM), in order to grant quickly and without too
many administrative formalities the protection status which is connected
with the refugee qualification. 13 The status of a person entitled to
asylum grants them contemporaneously also the refugee status.
Rights granted
Agreement
between
the
Federal State and the Lnder
according to Art. 15a B-VGon
the Common Measures for the
Temporary Basic Care for
Aliens in Need of Protection
(Asylum applicants, persons
entitled to asylum, displaced
persons and other people who
cannot be deported for legal
or
factual
reasons)
in
Austria) 14
The Grundversorgungsvereinbarung defines the responsibilities

between the Federal State and the Lnder concerning the Costs for the
basic care for aliens in need of protection, to which also the resettled
Christians from Iraq belong. It lists the basic needs that will be covered
in Art. 6. Among these are:
Comments
Even though Austrian authorities do not consider resettlement as an

important measure in the framework of its migration policy, there are
still some activities e.g. the resettlement of Iraqi Christians. However,
this topic is not of public interest and not much can be found out about it
in the media.
Accommodation in an adequate housing, adequate subsistence; the

granting of a monthly pocket money for those living in organized
accommodations; the payment of the medical insurance; necessary
measures for persons in need of special protection; information and
social support through adequate staff and if necessary interpreters; the
payment of transport costs in the case of citation to court or to an
authority; the payment of the transport costs, the satchel and the
stationery for pupils; measures for the structuring of the daily life if
needed; payment of funerals and transfer to the home country in the
case of decease; support and information for those willing to return to
their home countries and a one-time payment for the return. 15
c) Costs and Funding

Funding
National Level
ERF
In 2008 and 2009, 53 asylum projects were co-financed by the ERF

with the amount of 4,308,800.84 and the Ministry of the Interior added
further 3,092,716.45. 16
Costs
n/a
Comments
Austria shows no interest in becoming a resettlement country. As the

numbers of asylum applications have again risen there is no
foreseeable possibility of participating in resettlement in the future.
Authorities argue that there is a huge workload of pending asylum
applications that have to be resolved before any further commitment in
resettlement is possible.
13
Interview with the Ministry of the Interior.
14
German version: https://www.ris.bka.gv.at/GeltendeFassung.wxe?Abfrage=Bundesnormen&Gesetzesnummer=20003460

(February 2012).
15
See also: http://www.bmi.gv.at/cms/BMI/aus_dem_inneren/files/Fremdenwesen.pdf (February 2012).
16
http://www.bmi.gv.at/cms/BMI/aus_dem_inneren/files/Fremdenwesen.pdf (February 2012).

46

KNOW RESET Country Profile

Belgium
Report written by
Fenya Fischler (EUI) and

Salom Phillmann (ECRE)
December, 2012

47
KNOW RESET Country Profile: Belgium
Country Profile: Belgium

The beginning of 1990s saw a large increase of asylum claims, which led to enactment of a stricter and
faster asylum procedure that envisaged the importance of the eligibility procedure increase.
During the following years, immediately after the implementation of this stricter asylum regime, the
numbers of asylum applications predictably decreased until it increased again till 2000.
After that, immigration in Belgium had seen a steady increase since 2000, including a rise in intra EU
migration 1. Figures show that in 2010 the immigration population constituted approximately 1/10th of the
total population 2. While asylum applications saw a sharp decrease from 2000 onwards, the number of
asylum applications subsequently picked up and has seen a steady increase since 2007, rising from 11,115
in that year to 25,479. An increase of 27.77% could be observed in 2011 in comparison to 2010 3.
On several occasions, Belgium has been criticised and pen alized by the European Court of Human
Rights for its implementation of immigration and asylum policy and v iolations of refugee rights. The
revolutionary ruling by the European Court of Human Rights recent judgment M.S.S. vs Belgium and
Greece 4 had an impact on EU Asylum Law, in particular on the application of the Dublin II Regulation and
on the Reception Conditions Directive.
Moreover, Belgian immigration policies have been m arked by a heav y emphasis on s ecurity, and its
detention practices have been the subject of much debate at both the national and i nternational levels.
Bolstered by recent rulings issued by the European Court of Human Rights on Belgian detention practices,
civil society groups and international bodies have criticized the country for a number of controversial practices.
In view of the above facts, the Belgium Government, in its 2011 Governmental Agreement 5, stated that
immigration should be framed better and in accordance with international obligations. Among others the
Governmental Agreement also sets out the responsibility for Belgium to offer asylum to those who have fled
persecution but simultaneously points out the need for strict measures to limit the pressures for the
reception of asylum seekers. Whereas the government mandate is to offer asylum it is also to organize
together with countries of origin, discouragement campaigns in order to avoid the arrival of asylum seekers
who have no chance to be of fered any protection or to be r ecognised as refugees. Other legislative
measures and, somehow more severe for some of them, were foreseen in this agreement with regard to
family reunification 6, detention of irregular migrants with minors children, access to the labour market for
workers from Bulgaria and Romania etc.
As mention above, in recent years Belgium has faced a crisis in reception of asylum-seekers 7. This
crisis was moreover exacerbated during the political crisis which was only recently resolved. Asylum
applications rose and Commissioner General for refugees and Stateless Persons (here hereafter referred
to as CGRS) accumulated a l arge backlog in dealing with these applications. As the reception capacity
crisis is still ongoing, the current Secretary of State for Migration, Asylum and Social Integration, Maggie De
Block has been asked to propose solutions through a policy action plan.
Algemene Directie Werkgelegenheid en A rbeidsmarkt, De Immigratie in Belgi: Aantallen, Stromen en Arbeidsmarkt,

Rapport 2009 http://www.belgium.be/nl/publicaties/publ_rapport_2009_immigratie.jsp
FOD Economie, K.M.O., Middenstand en Energie, Bevolking per nationaliteit en geslacht; oppervlakte en bevolking op
1.1.2010,
http://statbel.fgov.be/nl/modules/publications/statistiques/bevolking/Bevolking_nat_geslacht_opp_bevolkingsdichtheid.jsp
Numbers refer to number of files. http://www.cgra.be/en/binaries/AsylumStatDecember_tcm266-159820.pdf:

CGRA/CGVS Asylum Statistics, Overview 2011.
http://hudoc.echr.coe.int/sites/eng/pages/search.aspx#{%22dmdocnumber%22:[%22880339%22]}
Case 30696/09 Case of MSS v Belgium and Greece (Grand Chamber)

http://www.premier.be/sites/all/themes/custom/tcustom/Files/Regeerakkoord_1_december_2011.pdf
http://www.dekamer.be/FLWB/PDF/53/1964/53K1964009.pdf
http://www.presseurop.eu/en/content/news-brief/410181-un-condemns-conditions-asylum-seekers
48
CARIM Country Profile: Belgium

Since the Second World War Belgium has carried out several ad hoc resettlement schemes, however no
official resettlement has taken place since 1999. 8 The first steps towards renewed efforts began in 2007
and 2008 when representatives from Commissariat gnral aux rfugis et aux apatrides (CGRA) and the
Agence fdrale pour laccueil de d emandeurs dasile (Fedasil- Federal Agency for the Reception of
Asylum Seekers) participated as observers on selection missions organised by British and Dutch
resettlement programmes to Thailand and Tanzania.
The first adhoc scheme was undertaken in 2009. Belgium agreed to resettle 50 refugees (of Iraqi and
Palestinian origin) in response to the European Council Conclusions in 2008 that encouraged EU Member
States to resettle 10 000 refugees from Iraq 9. A Geneva Convention criterion with a f ocus on v ulnerable
groups (women-at-risk and Palestinians) was applied by the CGRA to refugees referred by the UNHCR for
resettlement in 2009.
During the second ad-hoc scheme in 2011, 25 refugees were accepted for resettlement in response to
the UNHCRs and the EUs initiative calling EU Member States to resettle refugees of Sub-Saharan origin
(mainly Somalis, Eritreans, Soudanese and Ethiopians) -identified as particularly vulnerable by both the
UNHCR and the EU- who had fled from Libya to the Choucha refugee camp in Tunisia which could only
offer temporary protection 10. The security and c onditions within the camp were insufficient and refugees
needed an immediate protection solution.
The two ad-hoc programmes carried out in Belgium in 2009 and 2011 were largely seen as successful
endeavours. Improvements were observed in the latter programme as the trail was cleared by partners
active in 2009. Coordination between actors is well established, especially considering the urgent nature of
the resettlement programmes in 2009 and 2011. Nevertheless several practical issues highlighted below
need to be addressed to improve resettlement experience for refugees and NGOs.
Though Belgium has potential for creating an annual resettlement programme, there are factors, which
make the launching of such a programme difficult at this time. The factors mentioned by actors interviewed
were the relatively high numbers of asylum seekers, the reception crisis, political instability and bud get
problems. Among these factors, the asylum situation in Belgium has the two-fold problem that not only
encompasses capacity but also public opinion. At present, public opinion is that Belgium is too generous in
granting asylum and therefore not able to accept more refugees through resettlement.
In addition, the general public has little or no knowledge about resettlement. Short press releases were
printed when refugees arrived in Belgium but no awareness-raising campaigns were carried out. The fear
was expressed however, that while clarifying the difference between refugees who come to Belgium as
asylum seekers and those who come through resettlement is important, it could lead to a preference for
resettlement.
Before an annual programme could be implemented, Belgium will have to address its asylum situation,
work on public opinion and clarify budget issues.
Available in French only: http://www.reinstallation.be/apps-local/resettlement.nsf/LFR00Historique.html
Available in French only: http://resettlement.be/apps-local/resettlement.nsf/FR3.0Wie.htm
10
Available in French only: http://resettlement.be/apps-local/resettlement.nsf/LFR3.0qui.htm

49
Asylum Profile
status granted
3,568 (2011) 11
2,857 Refugee Status Granted
711 Other Protection
3,201 (2010) 12
1,094 Other Protection
Number of asylum seekers
25.479 (2011) 13
19,941 (2010) 14
Resettlement Scheme
Ad -hoc scheme
A programme for 100 refugees to be resettled in 2013.

Aliens Act: Act of 15
December 1980 concerning
the entry, stay, settlement and
removal of foreign nationals,
amended by law of 15 July
2006. 15 Implemented by Royal
Decree of 8 O ctober 1981, as
modified by Royal Decree of
27 April 2007. 16
11.
12
Covers entry, stay, settlement and removal, asylum procedure and

competencies of asylum authorities.

CGRA/CGVS Asylum Statistics, Overview 2011
. Numbers refer to number of files. http://www.cgra.be/en/binaries/ASYLUMSTATdecember10_tcm266-114515.pdf:

13.
14
No provision for resettlement is provided in the 1980 Aliens Act.

. Numbers refer to number of files. http://www.cgra.be/en/binaries/ASYLUMSTATdecember10_tcm266-114515.pdf:

15
Original title: Loi sur l'accs au territoire, le sjour, l'tablissement et l'loignement des trangers.
16
http://www.ejustice.just.fgov.be/cgi_loi/change_lg.pl?language=fr&la=F&cn=1980121530&table_name=loi,
50

Other basis of
resettlement:
Decision of 24 March
2011 17, part of UNHCR Global
Resettlement Initiative.
Decision to resettle 25 refugees from Libya.
Decision of the Council of

Ministers, 13 February 2009 18
Decision to resettle 50 refugees from Jordan and Syria.
Circular of 18 September
1992
Temporary protection granted to a gr oup of ex-prisoners transferred from

the former Yugoslav Republic 20to Belgium by UNHCR/Red Cross.
Circular of 19 A pril 1999

concerning the special status
of temporary protection and
the reception of Kosovar
refugees 19
Temporary protection granted to certain categories of Kosovar refugees.
project/reform
Belgium signed up to the Joint EU Resettlement Programme and has

pledged to resettle 100 refugees in 2013.

1956-1957
1972
1973
1975
2009
2011
17
6,000 Hungarians who have fled after the Revolution are resettled in
Belgium.
400 Indo-Pakistani refugees who have fled from Idi Amins Uganda are
resettled.
1,100 Chileans fleeing from Pinochet regime are resettled.
2,500 boat refugees from Vietnam and Cambodia
47 refugees of Palestinian and Iraqi origin
25 22 refugees of Sub-Saharan origin
http://www.vluchtelingenwerk.be/bestanden/parlement/11.05.03,-Kamer,-ComBZ,-Bull212,-De-opvang-van-25Eritreers.pdf
18
http://www.dekamer.be/doc/CCRI/pdf/52/ic464.pdf
19
http://www.etaamb.be/nl/document-van-19-april-1999_n1999000319.html
20
Source: EMN Report, Maes, Foblets and Van Heule, EU and Non-EU Harmonised Protection Statuses in Belgium,
December 2009. (Unable to find primary source.)
21
Available in French only: http://www.reinstallation.be/apps-local/resettlement.nsf/LFR00Historique.html
22
Available in French only: http://resettlement.be/apps-local/resettlement.nsf/LFR3.0qui.htm.

51

n/a
From 2013
c) Temporary
Resettlement:
Humanitarian Evacuation
1992
1999
Temporary protection granted to a group of ex-prisoners of Bosnian origin

transferred to Belgium by UNHCR/Red Cross. The resettled refugee group
was 200 families who were later followed by their children, wounded
persons and family members.
1.220 Kosovars selected by UNHCR for evacuation are transferred to
Belgium under the Humanitarian Evacuation Programme (HEP). 23

Governmental Level
1. 2008: Durable Solutions
in Practice, with the
Netherlands (together with
the
Czech
Republic,
Poland and Romania)
Representatives from the Centraal Orgaan Asielzoekers (Central Body for

Asylum Seekers CGRS) and Fedasil joined the Dutch Minister for
Integration during a resettlement mission to Thailand in 2008.
2. 2008: with Ireland and the

United Kingdom.
Transnational programme concerning reception and resettlement. UK and

Ireland carried out a j oint selection mission to Tanzania to select DRC
refugees with Belgium (CGRS), Bulgaria and Slovenia as observers.
n/a
experience
From Guantanamo
Oct. 2009
Al Yanko, a S yrian who was detained in Guantamo for seven years was
resettled to Belgium at the request of the United States. He received a new
visa and residence permit.
Intra-EU Relocation
n/a
Comments
23
While no resettlement had taken place between 1999 and 2009, Belgium
responded twice to international Calls for resettlement in the last two years.
It has announced the beginning of a stuctural engagement.
http://www.unhcr.org/3e2d4d5f7.pdf
52

Refugees resettled 24
2011 (Arrived in Belgium in
July)
25
Ad hoc programme in
response to the UNHCRs 25
and the EU initiative calling EU
member states to resettle
refugees
of
Sub-Saharan
origin who fled to the Coucha
refugee camp.
Country of Origin: Eritrea and DR of Congo.
Ad hoc scheme 2009 in

response to the European
Council Conclusions in 2008
that encouraged EU MS to
resettle 10, 000 refugees from
Iraq 26.
Country of First Asylum: Tunisia 27.

Composition: 5 f amilies and 2 single women from Eritrea, 1 f amily and 1
single woman from DR of Congo 28.
47
Country of Origin: 36 Iraq, 11 Palestine.
Country of First Asylum: 10 Jordan, 26 Syria, 11 Iraq-Syria border 29.
Composition: 19 women, 17 children (Iraqi refugees), 2 couples, each with
2 children and 1 woman with 2 children (Palestinian refugees).
24
http://www.resettlement.be/apps-local/resettlement.nsf/LFR3.0qui.htm.
25
http://www.resettlement.be/apps-local/resettlement.nsf/L00Voorgeschiedenis.html
26
Available only in French: http://www.resettlement.be/apps-local/resettlement.nsf/FR3.0Wie.htm.
27
All fled from Libya to the Choucha refugee camp in Tunisia, which could offer temporary protection only. The security
and conditions within the camp were insufficient and refugees needed an immediate protection solution.
http://www.resettlement.be/apps-local/resettlement.nsf/LFR2.2selectionbelge.htm and
http://www.resettlement.be/apps-local/resettlement.nsf/LFR3.0qui.htm
28
Belgium specifically requested families with children and single women.
29
The refugees are coming from Al-Tanf camp in Iraq-Syria border.

53

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Selection of refugees is made following the criteria of the Geneva

convention.
During the two ad-hoc schemes the Geneva Convention criteria were
applied with a special focus on vulnerable groups (women-at-risk and
Palestinians in 2009).
National Additional Criteria
Until now the number of selected refugees for resettlement was a political
choice and was dependant on a number of factors, including reception
conditions. The decisions regarding the target groups to be resettled were also
based on Belgium Foreign Policy as well as to the availability of EU funds.
Ad-hoc scheme 2011: The Geneva Convention criteria were again
applied. A group of Sub-Sarahan refugees had been identified as
particularly vulnerable by both the UNHCR and the EU. Belgian regional
experts examined the refugees dossiers for credibility. State Secretary for
Migration and Asylum Policy Melchior Wathelet and the Inner Cabinets
Council of Ministers made the final decision (11 March 2011). Refugees
arrived in Belgium in July 2011.
Ad-hoc scheme 2009: Geneva Convention criteria with a focus on
vulnerable groups (women-at-risk and Palestinians) was applied by the
Commissioner General for Refugees and Stateless Persons (CGRA) to
refugees referred by the UNHCR for resettlement in 2009. State Secretary
for Asylum and Migration, Melchior Wathelet, made the final selection.
Selection Process
Actors involved in
refugee status
determination
UNHCR initially followed by and CGRA verifications in resettlement

decision-making process
Dossiers
In 2011, UNHCR prepared refugees dossiers, which were sent to CGRA

for examination and consideration.
Missions
In 2009, selection missions to Syria and Jordan were conducted by CGRA

and Fedasil to interview preselected refugees.
In 2011: CO was not provided. Information pamphlets covering

important information about Belgium were printed but not given to
refugees.

documents
IOM prepares refugees travel and i nsures that the Belgian embassy has
provided necessary documentation, travel is planned and refugees are
escorted by IOM.
Medical screening
54
Carried out by IOM.

Procedure Timing
2011
Comments
24/03/2011: Decision to resettle
17/05/2011: Received Resettlement Registration Forms
26/05/2011: Request to cancel mission
22/06/2011: Result of selection UNHCR
18/07/2011: Arrival of refugees
20/07/2011: Decision on status
01/08/2011: Delivery first refugee certificate 30
Dossiers would need to be shared in advance with NGOs in order to plan for
specific needs. Municipalities and s ocial welfare aid offices CPAS - Centre
publique daction social (social welfare agency) - should be informed of the
arrival of refugees and the ad-hoc resettlement scheme. Raising awareness
of resettlement among the general public would also be helpful.

Post-Arrival phase
Status granted
Refugee status in Belgium is
granted on the basis of the 1951
Refugee Convention 31, Article
48(3) of the Aliens Act 1980
There is no legal framework in Belgium for resettlement and therefore the

decision to grant refugee status should be made only upon arrival in
Belgium. It also implies that even though accepted for resettlement each
refugee was required to go apply to Immigration Department (OE/DVZ) 32
for asylum upon arrival. After applying for asylum, refugee status has been
granted to all within one month of application.
Rights granted
Opvangwet van 12 Januari
2007 (Reception Law of 12
January 2007 33)
Residence
Right of permanent residence based on refugee status
Airport arrival
Govt entities: Fedasil and CGRA meet refugees at the airport. In 2011, NGOs
were also present (Caritas and Convivial). They are then accompanied to the
reception centres in Pondrme (Wallonia) and in Sint Truiden (Flanders) for
period of 3 weeks minimum depending on the situation.
Info upon arrival
Information is given in reception centre
Preparing local community
No
This seems to have been done bit by bit as the programmes are ad-hoc.
However the NGOs involved are experienced in the field of integration.
Developing integration
program (housing, health care,
education)
Housing is organized by partnering organizations (Caritas and Convivial for

refugees resettled from Libya) and is overseen by Fedasil. Together they
make arrangements with the local authorities, locate available and suitable
30
CGRS and Fedasil, Hervestiging van Vluchtelingen, Meeting van 6 Oktober 2011, Verslag (Resettlement of Refugees,
Meeting of 6 October 2011, Report) http://hervestiging.be/appslocal/resettlement.nsf/teksten/attachments/rechterkolom%20L/Verslag_Stakeholders_meeting_okt2011.pdf, at page 3
31
http://www.cgvs.be/fr/Cadre_legal/
32
http://diplomatie.belgium.be/en/policy/policy_areas/striving_for_global_solidarity/asylum_and_migration/asylum/
33
http://www.ejustice.just.fgov.be/cgi/article_body.pl?language=fr&pub_date=2007-0507&numac=2007002066&caller=list
55

housing, schooling and contacts with the CPAS, access to public
assistance and health care, managing household budgets, etc.
Counselling
Language/skills training
Employment assistance
Family reunification
Advice on accessing services
Mentoring
A social orientation class is offered in the reception centre. The contents

include information on schooling, expenses, food, housing, transportation,
environment, etc. Refugees already established in Belgium are invited for
knowledge sharing, in addition to representatives from external
organizations/institutions. Convivial also offers a cultural/civic course.
Psychological counseling is also made available if needed.
French or Dutch classes are offered upon arrival in the reception centre.
Once refugees are in private housing, NGOs help locate language centres.
NGOs assist refugees in finding employment, signing up at employment agency,
reviewing qualifications or assisting with diploma equivalency requests
In Belgium, people with a refugee protection status (for 5 years), can apply
for family reunification, even when they still receive a s ocial income from
the Public Social Welfare Centre, so for the resettled refugees it is possible
to apply for family reunion. This however is likely to take a considerable
amount of time, so refugees should be advised of this.
Given by reference counsellor in reception centre and then by NGO social
workers.
A social worker is assigned to each refugee in the reception centre, this
person will assist with adaption and a dministrative processes throughout
the refugees 3-week stay. Once the refugee is transferred to individual
housing, a Fedasil social worker will follow-up on the refugees integration
for a period of +/-18 months in collaboration with civil society organizations
involved (2011orgs: Caritas and Convivial ).
Training of local service

providers
No formal or specific training for resettlement is offered
Comments
As a whole, it appears that the stakeholders in Belgium (with the exception

of municipalities) work well together. It also seems that the conventions
signed between CGRA, Fedasil and NGOs make roles clear as there were
no ambiguities reported. Regular stakeholder meetings are held roughly 3
times a year where government and civil society come together to discuss,
evaluate and plan for resettlement. During an ad -hoc programme Fedasil
and NGOs meet once a month to evaluate and discuss practical field issues.
Nevertheless several practical issues need to be addressed to improve the
resettlement experience in Belgium. It is also needed to ensure linking predeparture and integration phases.
Recommendations:
It is suggested that the CGRA, Fedasil and N GOs must work together to
manage expectations for the newly resettled refugees. In terms of family
reunification especially, refugees expectations will be managed by keeping
them fully informed of how the system works and any delay is explained
fully to them. Resettled refugees must be informed of all procedures at as
early a stage as possible. Beyond procedural expectations, living
standards and lifestyle expectations in general must be managed.
While the cooperation between CGRA, Fedasil and NGOs must be
applauded and encouraged, all parties must strive to keep improving how
they work together. An example is the time spent in reception centres by
resettled refugees. If dossiers are sent in a t imely manner, pre-arrival
then housing post arrival can be more organised. The same could be said
of the organisation of paperwork that is needed in order to access social
welfare and other vital services.
56

b) Costs and Funding
Funding
National Level
ERF
Funding for refugees in general comes from the Official Development

Assistance (ODA)
The ad-hoc decisions to resettle in both 2009 and 2011 were
conditional upon securing European funding. The administrations twice
managed to secure this funding, not through the classic pledging
provided through the ERF, but through the so-called Community
Actions of the Refugee Fund.
Resettlement of refugees from Libya in 2011 (nearly 90% of costs

covered by Europe). The decision to carry out the resettlement initiative
was linked to securing European funding for urgent resettlement. 34
The decision of the inner cabinet was again conditional upon securing
European funding. The European Commission has included urgent
resettlement in its annual priorities for the ERF programme community
actions for 2011, through which up to 90% of the operation could once
again be financed by Europe.35
2009: selection mission and journey integrally funded by Temporary

Desk on Iraq. Concretely, the selection mission and the transfer of the
resettled refugees took place within the framework of the ERF
community actions project Temporary Desk on Iraq, which meant that
up to 90% of the costs of the selection and transfer of refugees could
be recuperated through the European Commission. Furthermore, 50%
of the reception and i ntegration of the resettled refugees was cofinanced by the national section of the ERF.
Costs
Comments
2009: Total costs for project support and reception of resettled refugees
(Vluchtelingenwerk Vlaanderen): 308.405,32 euros of which 154.193,43
from ERF 36.
Belgium has the political will to enhance its resettlement capacity and
Belgian NGOs and governmental actors are all eager to continue
resettlement activities. The recent Belgiums decision to resettle a hundred
refugees in 2013 is hopefully the beginning of a structural engagement of
Belgium towards resettlement.
Nevertheless an annual programme might not be still feasible until Belgium
finds solutions to the asylum situation and e specially in regards to
reception centre capacity. Furthermore, no national budget is foreseen for
resettlement, which means that Belgium will rely completely on what is
available on EU funds. In addition to that, there is always the political
element playing a key role in this regard. As there will be election in 2014 it
is quite sensitive for the current government to engage the next
government in a structural resettlement plan.
So a s pecial attention should be gi ven to media by some intense media
campaigns accompanied also by awareness- raising campaigns in order to
change the general public opinion. Public opinion needs to be a focal point in
preparing an annual programme. However it needs to be c larified to them
that the programmes are different in terms of funding in order to do not
replace Belgiums responsibility towards other refugees protection needs.
34
http://www.dekamer.be/doc/flwb/pdf/53/1944/53k1944020.pdf#search="hervestiging"
35
Information provided by CGRS and FEDASIL in interview obtained on 04-05-2012
36
Fedasil, Jaarverslag 2009 (Annual Report 2009), http://www.fedasil.be/home/attachment/i/19890, at pg.29

57


Bulgaria
Report written by
Iva Kodjabacheva (EUI)

Antoaneta Dedikova (ECRE)
March, 2013

58
KNOW RESET Country Profile: Bulgaria
Country Profile: Bulgaria

Strategically situated in the Balkan Peninsula, Bulgaria shares an important 240-kilometre border with
Turkey, and controls key land routes connecting Europe with Asia and the Middle East. While traditionally
considered a refugee transit country by migrants on the route to Western Europe 1, Bulgarias initiatives in
the area of refugee reception and integration, have shown that Bulgaria is increasingly becoming a
destination for refugees. Bulgaria is signatory to the 1951 United Nations Refugee Convention, and the
1967 Protocol Relating to the Status of Refugees since 1993. The national law governing refugees and
asylum seekers in Bulgaria is the Law on A sylum and Refugees 2, whose purpose is to harmonize the
Bulgarian asylum legislation with international and European instruments, standards and practices. 3 With
the creation of the Law on Asylum and Refugees in 2002, the State Agency for Refugees with the Council
of Ministers became UNHCRs main government counterpart in Bulgaria, and is the single refugee authority
responsible for examining applications for asylum made on the territory of Bulgaria.
Governed by the centre-right political party Citizens for the European Development of Bulgaria, Bulgaria
has been historically considered a racially tolerant society. The worsening economic situation across
Central and Eastern Europe has affected Bulgaria and t he countrys recent initiatives in the area of
resettlement. In addition, Bulgarias ambitions to join the Schengen zone have translated in the growing
militarization of Bulgarias border with Turkey, and on-going efforts aimed at reducing irregular
migration.The prioritization of mounting political and economic issues have come at the expense of
pressing asylum and refugee questions, such as this of resettlement. In addition, the strict border control of
the external EU border has resulted in the marginalization of asylum seekers and refugees, increasingly
seen as a threat to Bulgarias Schengen bid.
The number of refugees and asylum seekers in Bulgaria significantly increased following the wars in
Former Yugoslavia, Afghanistan and Iraq (1999 2004), and Bulgarias accession to the European Union
in 2007 has been marked by a slight yet steady increase of applications. The country has never been faced
with mass influx of refugees and t herefore temporary protection has never been granted. After an
amendment in the national asylum law, the individuals who were granted protection acquired the right to
family reunification as the recognized refugees, which was not accessible to them prior this amendment.
By joining the EU, Bulgaria began to consider resettlement opportunities as a part of the harmonization
processes. First official step in this respect was the establishment of an Intergovernmental Task Force on
resettlement with an Order P-57/03.03.2010, under the leadership of the State Agency for Refugees with
the Council of Ministers. Finally, the resettlement was included in the Objectives of the national asylum
administration 4 (2011), featuring as a plan the adoption of a s trategy and pol icy on r esettlement until the
end of the year. Also, the recent National Strategy on M igration, Asylum and Integration (2011 - 2020)
merely stated that a nat ional resettlement strategy must be developed over the next few years within the
UNHCR resettlement programme and in adherence to international resettlement standards.
Several consultations and colloquia were held since then, however until recently nothing was furthered
on, either in legislation, or in policy or practice except a pr eliminary assessment report on resettlement
prepared by the interagency working group at the end of the year 2010.
During the course of the year 2012, Bulgaria is doing everything possible to enhance its efforts in the
area of asylum including resettlement. Considered as a big step in the field of international protections and
national security, Bulgaria opened recently the first Transit Centre for Refugees in the village of Pastrogor,
Svillengrad Municipality.
State Agency for Refugees with the Council of Ministers, Multi-Annual Programme. European Refugee Fund
Department 2008. http://www.aref.government.bg/ebf/?cat=49 [accessed 16 November 2011], p. 6.
Law on Asylum and Refugees Prom. State Gazette No. 54/31 May 2002, amend. State Gazette No. 39/20 May 2011.
UN High Commissioner for Refugees, UNHCR's Comments on the 2002 Law on Asylum and Refugees of Bulgaria, 19
November 2002, http://www.unhcr.org/refworld/docid/3f8fee4c4.html[accessed 4 November 2011].
For more information: http://www.aref.government.bg/docs/celi_dab_2011.doc

59

On 13 June 2012 the government voted a formal decision to adopt and implement a Pilot Resettlement
Program for refugees who were recognised by UNHCR in third countries. The responsible institution is the
State Agency for Refugees. According to the Law on Asylum and Refugees the UNHCR mandate status
holders automatically shall receive recognition in Bulgaria as well as a r efugee status. In addition, the
Working Group (WG) on Resettlement is convoked on 18 October 2012 to work out a final Pilot Project on
Resettlement where the exact parameters of the process and the profile of refugees to be resettled will be
specified. The final draft Pilot project should be ready by the end of October 2012.
Furthermore, the first resettlement activities will begin in 2013 and will include the development of the
administrative capacity. They will be fully funded by the annual program 2012 of the ERF. Finally the
Bulgarian government announced in June 2012 that it will resettle a g roup of 20 refugees in 2014.
Nevertheless, it fears that public opinion will be negative about resettlement and i ntegration given the
current financial crisis. According to all interviewed actors promotion of resettlement and practice should be
done - in due course - within the society in order to receive as strong as possible support from the
Bulgarian society.
Asylum Profile
status granted 5
192 (2011)
182 Humanitarian Protection
10 Refugee Status Granted
138 (2010)
890 (2011)
1,025 (2010)
Resettlement Scheme
Bulgaria is a non-resettlement country but it will participate in the joint

EU Resettlement Programme by developing and implementing a smallscale (20 refugees) pilot resettlement programme in 2014. 7

Law on Asylum and Refugees,
2002 last amended in 2011.
Law for the Foreigners in the
Republic of Bulgaria, 1998 last
amended in 2011.
No specific provision on resettlement in the national law and no such

provision is envisaged until the assessment of the Pilot Resettlement
programme in 2014.
- guides all procedures and mechanisms for granting asylum, refugee
and humanitarian status. Article 10
- It also stipulates UNHCRs role in monitoring the application of the
Geneva Convention and 1967 Protocol in Bulgaria.
Article 53 (8)
- regulates the entry, stay and exit of foreigners in Bulgaria.
Source: State Agency for Refugees.
Ibid.
Declaration of the State Agency for Refugees with the Council of Ministers, 24 March 2011. Bulgaria equal partner in
the building of the Common European Programme on Resettlement of Refugees, confirmed the 23 and 2 4 March,
2011 in Sofia. http://www.aref.government.bg/?cat=13&newsid=399 [accessed 14 November 2011]. Available only in
Bulgarian.
60

Other basis of
resettlement:
Law on Bulgarian Citizenship;
Law on P rotection against
Discrimination;
Health
Insurance Act; Employment
Promotion
Act;
Family
Benefits for Children Act; and
Law on Social Assistance Act.
These national laws contain provisions regarding the rights of refugees

in Bulgaria. Those provisions would apply to any resettled refugee.
Agreement
between
the
United
Nations
High
Commissioner for Refugees
and the Government of the
Republic of Bulgaria, 1993
Covers mainly the co-operation between the Government and UNHCR

in the field of international protection of and humanitarian assistance to
refugees and other persons of concern to UNHCR. Article 2(1) 1
Order N P-57/03.03.2010 of
the Prime Minister.
Establishment of an Intergovernmental Task Force on R esettlement

(RWG) with the objective to create a d raft pilot resettlement
programme.
Council of Minister Protocol

No.
18340/13.06.2012
regarding draft decision on the
adoption of the report of the
intergovernmental
working
group appointed by the above
order, regarding the position
of Bulgaria in the EU
Resettlement.
A formal decision to adopt and implement a Pilot Resettlement

Program for refugees who were recognised under the UNHCR
mandate in third countries. The responsible institution is the State
Agency for Refugees. According to the Law on Asylum and Refugees
the UNHCR mandate status holders automatically shall receive
recognition in Bulgaria as well as a refugee status.
project/reform
First resettlement activities will begin in 2013 and will include the
development of the administrative capacity. The pilot Resettlement
Programme will be implemented in 2014
The Agreement does not contain any reference to resettlement.

a) On an ad hoc basis
End of 1950s and 1960s
Refugees from Greece during the military regime 8.
Pilot Resettlement Programme

resettlement of 20 refugees.
From 2014
c) Temporary
Resettlement:
of
2014
foresees
small-scale
n/a
Interview with Mrs. Anna Andreeva, State Agency for Refugees with the Council of Ministers, January 2012.
61

Governmental Level
n/a
n/a
experience
From Guantanamo
2010
Intra-EU Relocation
2011
In 2010, the Interior Minister Tsvetan Tsvetanov confirmed that Bulgaria

would receive one Guantanamo inmate under the Joint Statement of
the European Union and its Member States and t he United States of
America on the Closure of the Guantanamo Bay Detention Facility and
Future Counterterrorism Cooperation. 9 The inmate was a Syrian
national and it was confirmed that he would be granted refugee status.
In May 2011, the Interior Minister Tsvetan Tsvetanov announced the
preparedness of Bulgaria to accept 2-4 North African refugees from
Italy, as a sign of solidarity with Italy, which was experiencing an influx
of illegal migrants, following uprisings in the Arab world. 10 There are no
confirmed reports whether any North African refugees from Italy were
resettled in Bulgaria.

Refugees resettled
n/a

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
National Additional
Criteria
Bulgaria will comply with UNHCR criteria and recommendations for

resettlement as well as Decision 573/2007/EC of the European
Parliament and of the Council of 23 May 2007.
Bulgaria is interested in resettling Afghani and Iraqi refugees from Turkey,
given the already existing Afghani and Iraqi communities in Bulgaria. 11
Selection Process
n/a
n/a
Procedure Timing
n/a

Post-Arrival phase
Status granted
Article 10 of Law on Asylum
and Refugees. 12
9
The pilot resettlement programme foresees that the resettled refugee

will be granted refugee status and will be entitled to and benefit from the
rights and obligations outlined in the Law on Asylum and Refugees, and
will have the potential to become naturalized citizen of Bulgaria.
Sofia News Agency, Guantanamo Prisoner lands on Bulgarian Soil,

http://www.novinite.com/view_news.php?id=115919 [accessed February 27, 2012].
10
The Bulgarian Helsinki Committee, Iliana Savova, Do We Have a Quota on Humaneness,

http://www.bghelsinki.org/en/publications/obektiv/iliana-savova/2011-08/do-we-have-quota-humaneness [accessed
February 25, 2012].
11
Interview with Mrs. Anna Andreeva, op.cit.
12
"Refugee status shall also be granted to any alien who is on the territory of the Republic of Bulgaria and has been
recognised as a refugee under the mandate of the United Nations High Commissioner for Refugees."
62

Rights and services granted
Rights granted for resettlement would be the same as outlined in the

Law on Asylum and Refugees.
Chapter II of the Law on

Asylum and Refugees
Outlines the rights and obligations of foreigners seeking or having

received protection in Bulgaria.
Social rights and o bligations,

Section III.
Rights and Obligations of the foreigners having received protection

would be equal to those of Bulgarian citizens with exceptions outlined in
Article 32(1).
Article 32 (2) stipulates the right to financial support for accommodation
in a flat for a period of 6 months.
Article 34 (1) right to family reunification.
The State Agency for Refugees is the responsible institution for
providing Bulgarian language courses, which however are not
accessible to refugees arriving at different times of the regular school
year. In addition, integration services such as language courses are
only available in the capital Sofia, a s erious impediment to refugees
wishing to live outside the capital. 13
According to the preliminary report on resettlement the following
services are foreseen to be pr ovided under priority 3 of ERF Resettlement for purposes of education and capacity building of the
asylum national administration, local authorities and non-governmental
organizations which would be leading with the resettled refugees:-rent
and utilities; language and professional education; scholarship (equal to
minimum monthly salary); childs tuition; initial accommodation
assistance; health insurance; medical examination; transport;
interpretation services; social assistance; adaptation course fees;
seasonal clothing; etc..
The services provided will be al so in accordance with the National
Program For Integration of Refugees 14. Nevertheless, this programme
does not quote any integration services for resettlement as such. It only
states that for the period of 2011-2020 a National Resettlement
Program for Refugees should be developed within UNHCR
Resettlement Programme and in adherence to international
resettlement standards. 15
Comments
Before an annual programme could be implemented, Bulgaria needs to

address its asylum situation. Improvements are needed in the area of
refugee reception and integration. Bulgaria has been criticized for the
lack of adequate reception and accommodation facilities. Both UNHCR
and NGOs criticized receptions conditions which due to its practical
arrangements excludes some of the most vulnerable categories such as
extended families, single parents, elderly and disabled persons.
The adoption of the National Programme for the Integration of Refugees
already foresees improvements in these areas. Despite these
improvements a better implementation of the programme should be
pursued further.
13
United Nations High Commission for Refugees Policy Development and Evaluation Service, Larry Bottinick and Areti
Sianni, No place to stay: A review of the implementation of UNHCRs urban refugee policy in Bulgaria. May 2011,
http://www.unhcr.org/4dc3b9909.pdf [accessed 17 March 2012], p. 5.
14
http://www.mvr.bg/NR/rdonlyres/EBCD864F-8E57-4ED9-9DE6B31A0F0CE692/0/NationalStrategyinthefieldofMigrationAsylumandIntgrationENG.pdf
15
ibid. p.38
63

Funding 16
The State Agency for Refugees with the Council of Ministers foresees
the financing of resettlement initiatives by the European Refugee Fund
under Decision 573/2007/EC. Starting from 2010 the budget for
Resettlement capacity building and introducing the possibility of
resettlement in Bulgaria is financed by both ERF and Bulgarian
Government.
National Level
25% of the financing for the establishment of administrative organs

responsible for resettlement will be secured by the state budget.
ERF
ERF contributes 75% of the financing for the establishment of

administrative organs responsible for resettlement.
Overall Resettlement
Budget 17
Total: 27,628
2012
20,721 (EU contribution)

6,907 (National Budget)
2011
Total: 24,000
2010
Total: 24,060
Costs
Comments
First resettlement activities will begin in 2013 an d will include the

development of the administrative capacity. They will be fully funded by
the annual programme 2012 of the ERF and by the state budget. No
concrete figures are yet available for the funds that would be secured
by the state budget.
Bulgaria has decided to take part in the EU resettlement programme
with a pi lot quota of 20 r efugees per calendar year, affirming with this
the importance of establishing a mechanism for responsibility sharing
with EU Member States and third countries unable to provide adequate
protection for and i ntegration of refugees. Thus there is a political will
for resettlement behind this pledge.
Bulgaria is interested in sharing expertise with first-time resettlement
countries in Europe, an example of which is its decision to postpone the
pilot resettlement programme given the unsuccessful resettlement of
Bhutanese and Burmese refugees in first time resettlement countries in
Central Europe. The failure to successfully resettle the refugees was
arguably due to the culture and l anguage barriers, and i nability to
effectively integrate the newly resettled refugees in these countries. 18
Competent officials from the State Agency for Refugees with the Council
of Ministers are seeking to accumulate knowledge and ac quire the
necessary expertise for resettlement in the Bulgaria. Also, the financial
stimulus provided by the European Refugee Fund by contributing 6000
euro for every resettled refugee is considered an i mportant aspect of
Bulgarias ambition for small-scale resettlement in 2014.
16
European Refugee Fund Annual Programme 2011 Republic of Bulgaria, State Agency for Refugees with the Council
of Ministers, http://www.aref.government.bg/ebf/index.php?cat=49 [accessed February 27, 2012].
17
European Refugee Fund Annual Programme 2012, Annual Programme 2011, Annual Programme 2010. Republic of
Bulgaria, State Agency for Refugees with the Council of Ministers,
http://www.aref.government.bg/ebf/index.php?cat=49 [accessed February 27, 2012].
18
64

The established Iraqi, Afghani, Kurdish and Arab communities in
Bulgaria make the country a favourable environment to resettle
refugees coming from these ethnic groups.
Overall, Bulgaria has demonstrated moderate political will to resettle,
which has been impeded by the lack of financial resources to commit to
this initiative, as well as the countrys fear of unpreparedness. In order
to become a successful resettlement the Bulgarian Government should
take into account the recommendations of different stakeholdersinvolved in this field- vis a vis the implementation of the resettlement
programme itself.
65



Cyprus
Report written by
Konstantinos Eleftheriadis (EUI)

July, 2013

66
KNOW RESET Country Profile: Cyprus
Country Profile: CYPRUS

Cyprus is located upon a strategic geopolitical point linking Europe with Turkey and the Middle East. The
southern part of the island of Cyprus (or Greek-Cypriot part) has been a Member State of the EU since
2004. Cyprus does not belong to the Schengen area, because of the territorial dispute with the northern
(Turkish part) of the island.
The Cypriot asylum system has only been established relatively recently. The Cypriot authorities have
responsibility for handling asylum cases since January 1, 2002, when the Refugee Act (2000) replaced the
UNHCR with the Cypriot Asylum Service for the processing of asylum applications.
Since February 6th 2004, the responsibility for asylum was transferred to the newly founded Cypriot
Asylum Service. The Asylum Service manages the European Refugee Fund which finances projects for the
refugee integration and the improvement of their living conditions in Cyprus. A Dublin Regulation unit is
included inside the structure of the Asylum Office, the main competence of which is to check whether an
asylum application must be ex amined by Cyprus or another member-state. The Refugee Act of 2000 is
completed by Regulations on asylum seekers introduced five years later (598/2005).
The rate of foreigners in Cyprus is 127.3/1000, or 15.9% of the population (127,692 foreign nationals-EU
citizens included), making Cyprus one of the EU countries with a very high rate of foreign nationals 1. EU
citizens compose 10.4% of the population, while the amount of non-EU citizens is estimated at round 5.5%.
Cyprus is one of the few EU member-states where there are more EU citizens residing than third nationals.
With regard to asylum applications, there has been a continuous decrease in the number of
submissions: 3,922 in 2008; 3,199 in 2009; 2,882 in 2010; 1,766 in 2011 2. Cyprus accepts large flows of
asylum seekers every year, due t o its geographical location 3. The authorities are trying to deal with the
increasing amount of asylum applications. Besides that, the on-going financial crisis reduces the potential
for resettlement initiatives in the future.
Cyprus is a country of first asylum for an increasing number of third nationals. Not only does Cyprus not
have plans for resettlement but it also engages actively, with Malta, in negotiations with the EU with regard
to relocation 4.
6.5% of the EU population are foreigners and 9.4% are born abroad, EUROSTAT, 34/2011, p. 1
Idem and Statistics of the Asylum service of Cyprus (2011)
Interview with the Cypriot Asylum Authority, Natasa Andreou, for Head of the Asylum Service, Ministry of the Interior,
January 2012.
Idem. The legal provision can be found in the Article 20-K of the Law on Refugees, Solidarity with other member
states.
67
Asylum Profile
status granted 5
69 (2011)
15 Humanitarian Status
1 Subsidiary Protection
426 (2010)
1,766 (2011)
2,882 (2010)
Resettlement Scheme
Resettlement Quota

Law on Refugees, No
6(1)/2000, 28 January 2000
(With several modifications,
last one in 2009)
Regulations on the reception
of Asylum seekers (No
598/2005),
30 D ecember
2005
Law
on
aliens
and
immigration, 19 June 1952
(with
modifications,
last
amended in 2001)
The Cypriot law does not explicitly make reference to resettlement as

such. Hence, we should look for legal dispositions open to interpretation
for the possibility to resettle. Article 11 of the Law on Refugees (2000)
states that The application is submitted at all entry points of the
Republic upon arrival of the applicant or within the Republic at any
Police Station, and in case of the applicants detention or imprisonment,
at the detention centers or the prisons where he is held 7. Therefore, the
recognition of refugee status outside of the countrys territory does not
seem to be possible.
However, Article 18(3) identifies the conditions of assessment of the
refugee status by the administration. This assessment is being
conducted on an individual basis and according to certain criteria. The
presence of the applicant in the Cypriot territory is not considered as an
indispensable condition of attribution of the refugee status.
Finally, the interview with the Asylum service did not focus on the
legislative obstacles when it comes to resettlement but rather on the
political unwillingness to develop this practice. They do not exclude the
possibility of future resettlement initiatives although at the moment this
is unlikely 8.
Statistics Service of the Republic of Cyprus (2011).
Source: Asylum Service, Ministry of Interior.

http://www.moi.gov.cy/moi/asylum/Asylum.nsf/DMLstatistics_en/DMLstatistics_en?OpenDocument
Source: Asylum Service, Ministry of Interior.

http://www.moi.gov.cy/moi/asylum/Asylum.nsf/DMLstatistics_en/DMLstatistics_en?OpenDocument
Interview with the Cypriot Asylum Authority, Natasa Andreou, op.cit.

68

project/reform
None

c) Temporary
Resettlement:
2011
From Libya and Egypt: No data. The minister of foreign affairs declared
in December 2011 that Cyprus reacted effectively to the recent events
in Libya and Egypt. 9
2006
Lebanon:
Cyprus became a de facto humanitarian evacuation station after the
crisis in Lebanon in the summer of 2006, with the support of the EU 10.
40,000 evacuees were evacuated from Lebanon. Four days after the
evacuation there were 5,197 EU citizens and 2,630 non-EU citizens in
Cyprus. EU citizens were rapidly repatriated to their home countries.
In a Communication of the Ministry of Defense, it is reported that the
Ministry and the General Staff of National Guard assisted and
supported facility for military ships and aircraft involved in the
evacuation of civilians from Lebanon to the Cypriot evacuation station 11.
The Minister of foreign affairs announced in December 2011:
[]We must not ignore that in cases of instability plaguing North
Africa and the Middle East, from the 1970's until today, Cyprus
continues to be a humane shelter, tending a helping hand and
cooperation, by addressing the immediate consequences of the crisis
erupts or as a result of civil wars and military conflicts, or more recently
the overthrow of authoritarian regimes. It is worth remembering the
case where more than 60,000 Community and ot her foreign nationals
were evacuated through Cyprus successfully, or found temporary
asylum in our country, the events of 2006 and 2008 respectively took
place in Lebanon, as we did also in the period 1975-1989, while also
effectively responded to the most recent events in Egypt and Libya.
Cyprus has established today that the mechanism can be managed
successfully and efficiently as a result of such a nature panic
evacuation, but also provides prospects for peaceful development with
neighboring countries through the implementation of the proposed
agreements 12
Conference: Cyprus between Europe and middle East, University of Cyprus, Erato KOZAKOU-MARKOULI, Minister of
Foreign Affairs, 16/12/2011,
http://www.mfa.gov.cy/mfa/mfa2006.nsf/0/208BDAA7C48204D6C225796B002ED33E?OpenDocument&print
10
European Union, Joint press release, 25 July 2006
11
The Defense Department supports the humanitarian evacuation of civilians from Lebanon, Announcement of the
Ministry of defense,
http://www.cyprus.gov.cy/moi/PIO/PIO.nsf/All/F6115405EC2ED089C22571AF005A26B7?OpenDocument
12
Conference: Cyprus between Europe and middle East, University of Cyprus, Erato KOZAKOU-MARKOULI, Minister
of Foreign Affairs, 16/12/2011,
http://www.mfa.gov.cy/mfa/mfa2006.nsf/0/208BDAA7C48204D6C225796B002ED33E?OpenDocument&print
69

Governmental Level
experience
From Guantanamo
Intra-EU Relocation
Cyprus is one of the EU Member States which views relocation as a

solution to the challenges from massive immigration fluxes as well as a
tool for the expression of solidarity and responsibility by other European
members 13.
Comments
The Asylum Service of Cyprus declared:

It is expected that in 2012, the Commission will propose a
voluntary, permanent relocation scheme for beneficiaries of
international protection. Based on the experience from the two phases
of the pilot project with Malta and taking into account EASOs future
engagement in relocation activities, the crucial questions could be
whether the EU should develop a voluntary and permanent scheme for
relocation of beneficiaries of international protection, following similar
criteria and financial support as in the resettlement programmes. In
particular, Member States could voluntary relocate in their territories
beneficiaries of international protection from Member States which face
particular pressures, based on s pecific indicators (e.g. population,
surface, GDP) 14.

Refugees resettled
None
Comments
Cyprus is not viewing resettlement as an immediate option, especially

because of the large amount of asylum applications it receives. As well
as this, the current financial crisis that it is experiencing is a huge
obstacle to any resettlement. However, a joint plan organized by the EU
with financial support, may lead to further consideration of the possibility
of resettlement.
13
Joint communiqu, Cyprus, Malta, Greece, Italy, Spain, 19 April 2011,

http://www.doi.gov.mt/EN/press_releases/2011/04/DOI%20-%20pr0785A.asp
14
Interview with the Asylum Service, op.cit.,

70


Czech Republic
Report written by
Veronika Misovska (EUI)

Pavla Merhautova (ECRE)
January, 2013

71
KNOW RESET Country Profile: Czech Republic
Country Profile: Czech Republic

The Czech Republic has the specific status within the European Union of a s tate without external
borders - with the exception of its international airports. Due to this characteristic, the country has a
significant advantage compared to others lying on the EUs external border as regards migration flows. In
addition it has an advantage also with regards to the Dublin regulation. These factors contribute to the fact
that the number of persons granted any form of international protection in the Czech Republic is very low.
In terms of migration trends in the Czech Republic, asylum applications reached their peak in 2001
when 18,094 persons applied for international protection. Since its accession to the European Union in
2004, the country has experienced a decrease in the number of asylum applications and, as mentioned
above, these remain very low in relative terms.
Given the existing asylum infrastructure and available human and financial resources, there is potential
for the Czech Republic to contribute further to the tackling of global refugee problems and to assisting
refugees within the context of responsibility sharing initiatives alongside other developed countries. Since
1999 the legislative framework on asylum has gone through different amendments and changes in order to
comply with EU legislation on asylum and immigration. As a result of one of those amendments, the former
two year mandatory period for re-submitting an application was no longer applicable due to the
transposition of the Directive on minimum standards on procedures in Member States for granting and
withdrawing refugee status. This fact led to an even higher number of repeated applications - for example in
2009- than in the previous year.
In 2008 the Government of the Czech Republic adopted a resolution No. 745 which approved the official
Concept of a National Resettlement Program. The Concept established the basis for the implementation of
resettlement activities. It defined the resettlement procedures at all stages and stipulated the role of all
stakeholders in the process. 1 In addition, the legal framework for resettlement is based on the Geneva
Convention and its 1967 Protocol, the Asylum Act and Act on the Residence of Foreign Nationals in the
territory of the Czech Republic.
The adoption of the resettlement strategy was preceded by several humanitarian assistance
programmes which were implemented by the Ministry of Interior. In 2005, the Czech Republic implemented
-in close cooperation with UNHCR a humanitarian operation by offering immediate protection to a group
of Uzbek refugees who were forced to escape due to the forceful suppression of the social unrest in south
eastern Uzbekistan. 2. In 2007, another humanitarian operation was implemented in close collaboration with
IOM and US administration and granted asylum to 3 Cuban families who were persecuted due t o their
political convictions. In addition to that, in 2010 the Czech Republic granted asylum to a Cuban political
prisoner and his family. The Czech Republic perceived the resettlement of Cuban refugees not only as aid
specifically targeted at persons whose basic human and civil rights were severely violated, but also as an
expression of solidarity with the citizens of a c ountry with an authoritarian regime and a v ery low level of
human rights.
Between the years 2008 2010, on the basis of the National Resettlement Strategy, 81 B urmese
refugees from Malaysia and Thailand were resettled; in 2008 9 families and in 2010 8 families. The
Burmese refugees were resettled due to their desperate situation in the countries of first asylum (Thailand
and Malaysia), which are not signatories of the Geneva Convention. Therefore the chances of refugees to
reach at least a basic level of protection are limited with no further chance to integrate into local societies
due to their illegal status.
The resettlement quota is established each year according to the current situation. The number of
refugees resettled each year counts in tens of persons - a requirement stipulated in The National
Resettlement Strategy. The main organ to decide on the size of the future resettled group, the region of
origin and an approximate timeframe for implementation is the Ministry of Interior.
http://www.mvcr.cz
http://www.mvcr.cz/mvcren/article/asylum-migration-integration-asylum.aspx?q=Y2hudW09NQ%3D%3D
72
CARIM Country Profile: Czech Republic

The system based on annual quotas was chosen due to its flexibility as it could be changed each year
according to the current situation. And at the moment, there are no plans to change the current practice. 3
Whereas in 2011 no resettlement activities were implemented, in the same year the Ministry of Interior
committed to resettle- under Czech ERF annual programme 2012- 40 persons for 2012.
In terms of the success of the past resettlement experiences, the opinions of the stakeholders
interviewed differ. While some of them acknowledged the past resettlement experiences as a success, a
number believed that the timing was too short between the two resettlement actions. It was felt that the first
group was not fully integrated and after the second group arrived, little attention was given to the integration
needs of the first group.
Each resettlement activity is thoroughly evaluated in order to identify its positive as well as problematic
aspects. Though the Czech Government is doing its best to tackle problems encountered during the
resettlement activity, some problems - mainly during long term integration of resettled refugees -occur
repeatedly. Those problems are often similar to those encountered by spontaneously arriving refugees.
They are mainly rooted in exaggerated expectations and difficulties in adapting to a new environment.
When it comes to the public opinion, it is necessary to separate the general one with the local one. The
local community is open towards resettlement and resettled families. No xenophobic behaviour seems to be
noticed, although there is a difference in reactions towards refugees from well-educated communities and
less-educated ones. The less-educated communities seem to be m ore sceptical. Nevertheless, the
relations seem to improve once the persons get to know each other. The regional media has been quite
involved in promoting stories of the resettled families. Furthermore the cooperation with the regional and
local media was considered as excellent.
As opposed to the local community, the general public does not seem to know about the resettlement
and is not even interested in it. The media marginalise the foreigners by picturing them negatively. Though
the resettlement activities carried out in Czech Republic were mostly covered by the media; the government
does not possess yet any detailed strategy how to use media in the resettlement process.
The Czech Republic could resettle more but before doing so it would be necessary to increase the
capacity to assist the resettled refugees during the integration process from a longer term perspective. In
addition, the Czech Government should address many aspects of effective resettlement processes starting
with a pr oper and s trategic planning of activities, deep c oordination of all stakeholders involved and a
stronger involvement of NGOs, churches and local authorities. Moreover, the current development at the
EU level offers some instruments including financial incentives which would help to use resettlement in a
more strategic way.
Interview with Ms Kateina imov from Ministry of Interior of the Czech Republic conducted on 15 February 2012.
73
Asylum Profile
status granted 4
369 (2011)
229 (2010)
756 (2011)
833 (2010)
Resettlement Scheme
Annual resettlement programme since 2008.
Resettlement Quota
2012: 40 refuges annually 6

2008-2010: 30 refugees annually 7

Act No. 325/1999 on Asylum
and Amendments to Act No.
283/1991 on the Police of the
Czech
Republic
of
11
November 1999, as amended
(Asylum
Act)
last
amendment 375/2010 entered
into force 1.4.2012.
Act No. 326/1999 8 on the

Residence of Foreign Nationals
in the Territory of the Czech
Republic of 30 November 1999,
as amended (Foreign National
Residence
Act)
last
amendment 375/2010 entered
into force 1.4.2012
Specific provision on resettlement: Section 90.

Regulates refugees status eligibility and status criteria-asylum seekers
and resettled refugees:
Article 12 defines the criteria for granting refugee status.
An alien who applies for international protection will be gr anted
asylum or subsidiary protection if s/he meets the criteria laid down
in section 12, 13, 14, 14a or 14b.
Refugees accepted for resettlement following submission of
UNHCR are all granted asylum under the criteria defined in the
Section 12.
Section 90 facilitates the granting of asylum to foreign nationals
without previous proceedings to an alien recognized as a refugee
the mandate of UNHCR.
In other cases resettled persons will be granted asylum under the
same criteria as asylum seekers as defined in Section 12, 13 or 14.
Establishes the conditions for entry of foreign nationals to and their
departure from the Czech Republic, lays down conditions for the residence
of foreign nationals in the Czech Republic and defines the scope of
competences of the Police of the Czech Republic.
Ministry of the Interiror of the Czech Republic available at the website http://www.mvcr.cz/mvcren/article/statisticalreports-on-international-protection-seekers-and-refugees-86918.aspx?q=Y2hudW09Mw%3d%3d
Ibid.
Source: UNHCR
Commission Communication to the EP and the Council on the establishment of a j oint EU resettlement programme,
COM(2009) 447 final available at:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0447:FIN:EN:PDF
http://www.mvcr.cz/.../act-on-the-residence-of-foreign-nationals-pdf.aspx
74

Other basis of resettlement:
Communication of the Ministry
of Foreign Affairs of the Czech
Republic No. 20/2003 of 8
February 2000
On the conclusion of an Agreement between the Government of the Czech

Republic and the UNHCR on t he legal status of the UNHCR and i ts
personnel in the Czech Republic.
Resolution N 745 of 26 June

2008
Accepts the Concept of National Resettlement Programme.
Agreement
between
the
Government of the Czech
Republic and the UNHCR on
the co-operation in the refugee
resettlement signed on 5
March 2009 and entered into
force on 10 April 2009
Agrees on details of the resettlement co-operation.
Resolution N 1147 of 7
September 2009
Approves the continuation of the resettlement programme of the Burmese

refugees from Malaysia under the above concept.
Resolution N 213 of 15
march 2010
Approves the implementation of the national resettlement programme of

resettlement of the Burmese refugees from Malaysia and Thailand.
project/reform
No on-going projects or reform are foreseen for the time being.

The establishment of a resettlement strategy was preceded by

humanitarian assistance programmes, which were implemented by the
Ministry of the Interior of the Czech Republic in 2005 and 2007 through the
resettlement of Uzbek and Cuban refugee groups.
2005
15
Country of Origin : 15 Uzbekistan
Country of First Asylum : 15 Romania 9
In 2007 two Uzbek resettled refugees were reunited with their families 10.
2007
10 (3 families) 11
Country of Origin : 10 Cuba
2010
5 (A political prisoner with his family) 12

Country of Origin : 5 Cuba
Romania joined the EU only in 2007.
10
http://www.mvcr.cz/mvcren/article/asylum-migration-integration-asylum.aspx?q=Y2hudW09NQ%3D%3D
11
ibid.
12
ibid.
75

2009
2008 2010 - National
resettlement
programme
(approved by Resolution N
745 of 26 June 2008)
Annual quota is based on the current situation and on a needs analysis 13.
Each resettlement action, in the context of an annual plan, is implemented
after the adoption of decision of the Minister of Interior (MoI).
The main objective of the programme is the humanitarian consideration,
efforts to provide assistance to needy and v ulnerable groups of refugees
who have no other prospects of refuge other than resettlement.
2008 Pilot project on The objective is to resettle a gr oup of several families (20-30 people) of
Burmese refugees from Malaysia.
resettlement
c) Temporary
Resettlement: Through
the Humanitarian
Evacuation
1993-2010 - Humanitarian
evacuation of disabled
people MEDEVAC
(medical evacuation) 14
126 patients from localities affected by war or natural disasters

Country of origin:
Bosnia and Herzegovina - predominately children 17;
Kosovo-40
Chechnya 1
Iraq disabled refugees 42
Pakistan 10
Afghanistan -14
Cambodia 2

Governmental Level
- 2007 - ARGO twinning
Project
Durable
Solutions in Practicebetween the Czech
Republic
and
the
Netherlands 15
-Non-Governmental Level
ERF projects
2011
2010
2009
2007
13
Aims to broaden cooperation related to the implementation of Community

law and exchanges of experience with resettlement between partner
organisations of MS.
Aims to enable countries which do not have their own resettlement
programmes to acquire sufficient theoretical and pr actical experience on
the basis of which these countries will be able to reconsider their options in
this area or to establish their own resettlement programmes.
Organization for Aid to Refugees (OPU) Beginning in a New Country.
Association of Citizens Assisting Emigrants (SOZE) Together in New Home
OPU New Beginning.
Refugee facility administration (RAF) Establishing and operating IAC for
resettled persons and their following integration.
SOZE Resettlement New Beginning I, II. (2009)
RAF Methodological and personal preparation for accepting resettled
persons.
ICMC -"European Resettlement Network for Practical Cooperation in
16
Resettlement" (implemented in close collaboration with UNHCR and
ECRE) to foster practical cooperation in resettlement, and to promote the
establishment of the new network, in partnership with seven European
NGO's engaged in the resettlement and/ or integration of refugees.
The UNHCR Resettlement Handbook Country Chapter on the Czech Republic, July 2011 available at:
http://www.unhcr.org/refworld/country,,,,CZE,,4ecb9c0027,0.html
14
2010 Status Report on Migration in the Czech Republic, Ministry of Interior of the Czech Republic, 2011
15
More details in 2007 Status Report on Migration in the Czech Republic, Ministry of Interior of the Czech Republic,
2008, p. 172-173
16
More information available at: http://www.icmc.net/icmc-launches-new-network-support-refugee-resettlement-europe

76

experience
From Guantanamo
Intra-EU Relocation
The Czech Republic refused to accept detainees from Guantanamo Bay

repeatedly in 2005 and 2009 as it was not equipped for that.
The Czech Republic is not involved in any project of Intra EU relocation and
does not consider participating in a future as it does not favour the idea of the
distribution of migrants within the EU. It is of an opinion that the
implementation of a pilot resettlement project concerning Malta brought a
number of problematic aspects, such as high administrative and logistical
burden as well as potential risk of becoming a "pull factor" of illegal
migration.17

2011
n/a
2010
39
Country of Origin: 39 Burma
Country of First Asylum: 16 Malaysia, 23 Thailand
Religion: 39 Christian
Ethnicity: 39 Chin 19
2009
16
Country of First Asylum: 16 Malaysia
Ethnicity: 16 Chin
2008
23
Country of First Asylum: 23 Malaysia
Ethnicity: 23 Chin
17
The Czech Republics position on migration prepared by working group for a Parliament, to be announced to the EU
Institutions, 5. 6. 2011 (document available only in Czech).
18
Source: Ministry of the Interior of the Czech Republic.
19
The Chin people are one of the large ethnic minority groups in Burma.
77

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
1951 Geneva
Convention and 1967
Protocol
Additional National
Criteria
National resettlement
Programme
Asylum Act
Only persons complying with the criteria contained in the 1951 Geneva
Convention and 1967 Protocol and the criteria laid down in Czech law
(especially the Asylum Act) will be considered for resettlement in the
Czech Republic under the national resettlement programme. Eligibility
criteria relate to persons with a well founded fear of being persecuted for
reasons of race, religion, nationality, membership of a par ticular social
group or political opinion. In case of a family (that is married couple with
minors, in special cases also other family relative) it is enough if only one
of the persons could comply with the above criteria.
Eligibility criteria for resettlement of a particular person or family could also
be based on other specific humanitarian factors according to the Czech
Asylum Act, such as: seriously ill persons, children, women at risk and
other cases, in which humanitarian asylum status is granted. 20
In addition to the above criteria, some integration aspects are also taken
into consideration such as: the willingness of the refugee in question to be
resettled to the Czech Republic and the willingness to integrate into the
Czech Republic.
Nevertheless exclusion factors are applied for persons subject to article 1F
of the Geneva Refugee Convention and section 15 of the Asylum Act.
Additionally, resettlement of an individual to the Czech Republic must not
present a threat to public health or public order and must not harm the
Czech Republics national and international interest.
Selection Process
Deploying Staff
One or more members of the Resettlement group.
Actors involved in refugee

status determination
The Resettlement Group interviews the people in need of resettlement in

the country of first asylum and nominates them. Then, it is Minister of
Interior who decides on the refugee status of the resettled persons.
Dossiers
The selection of persons to be resettled is based on combined methods:

facts known from the UNHCR Resettlement Registration Form and a
private interview with each person. During the selection mission, the
relevant asylum-related information referred to in the UNHCR file are being
verified, supplemented and amplified. Found information are processed as
a resettlement and i ntegration folder, which offers crucial guidance in the
selection process and becomes part of the asylum file of each recognized
refugee resettled person.
In the case of a dossier based decision, there are no possibilities to make
an appeal or other recourse against the decision not to accept a r efugee
for resettlement into the Czech Republic.
Missions
The above - mentioned selection missions (a trip of several days) are

conducted by the Resettlement Group in the country where refugees are
placed and mostly in the country of first asylum.
In certain cases, resettlement may be organized in cooperation with another
organization or another state or possibly without third-party participation, i.e.
it may be ar ranged purely within the scope of Czech administration. The
rules set for the resettlement process are then applied mutatis mutandis.
20
The UNHCR Resettlement Handbook Country Chapter on the Czech Republic, July 2011.
78

Assistance
documents
with
travel
Medical screening
Procedure Timing
Comments
This is done by the Resettlement Group when interviewing the people in

need of resettlement in the country of first asylum the personal contact is
an opportunity to provide individuals with initial information about what they
can expect from resettlement in the Czech Republic and t o what extent
they will receive assistance on arrival.
Persons who are to be resettled in the Czech Republic are issued with a
90-day residence visa. This visa is issued in a t ravel document at the
individuals disposal, which is recognized by the Czech Republic, possibly
using also the visa attachment form. If individuals do not hold a travel
document from their country of origin, or if circumstances prevent them
from using this document, then the admission related issues is solved in
the cooperation between the Ministry of Interior, Directorate of the Aliens
and Border Police Services and the Ministry of Foreign Affairs.
The medical screening in the country of first asylum is done by UNHCR.
There is another medical screening after arrival in the Czech Republic and
transfer in the Integration Asylum Centre.
The required processing time from file reception to departure of refugees
may vary from several weeks up to several months (emergency cases
within few days). 21. Transport from the current asylum country to the Czech
Republic is organized usually within few weeks.
According to the Resettlement Concept, the Resettlement Group (RG)
plays a s ignificant role in pre-departure activities. However because this
Committee is only composed of representatives from ministries and does
not include other stakeholders who also have expertise in resettlement, the
quality of the decisionmaking process could be impacted upon. Emphasis
is given to the selection of the members of the RG as the first ones
conducting interviews with the people in need of resettlement.
There is room for improvement in the pre-departure activities as well in the
country of first asylum, in particular the selection of people in need of
resettlement and the quality of information for the host country provided to
those people. Consequently, there is only a little knowledge about the predeparture activities among the stakeholders interviewed. Furthermore,
integration system tools for vulnerable groups is missing.

Post-Arrival phase
Status granted
Legal source
Asylum Act No. 325/1999 of 11
November 1999 as amended
by 375/2010.
Resettled refugees who were already granted refugee status by the

UNHCR are provided with international protection in the form of asylum in
accordance with the Section 12 an d Section 90 of the Asylum Act
(facilitates the granting of asylum to foreign nationals without previous
procedure if they have been granted refugee status by a decision of the
UNHCR asylum procedure in the Czech Republic only formality)
In other cases (without the UNHCR refugee status), resettled persons will
be granted international protection in the form of asylum in accordance
with Section 12, Section 13 or Section 14 in keeping with the results of the
asylum procedure they passed through on a rrival in the Czech Republic
(undergoing the regular asylum procedure in the Czech Republic
decision on international protection taken by the Ministry of Interior)
Until the asylum is granted they are legally considered as asylum seekers.
21 See details in the UNHCR Country Chapter on the Czech Republic
79

Act No. 40/1993 on the
Acquisition and Loss of
Citizenship of the Czech
Republic as amended by
124/2008 (entered into force
1.7.2008)
Rights granted
Legal source:
Asylum Act No. 325/1999 of
11 November 1999 as
amended by 375/2010 Coll.
Resettled persons who comply with the relevant provisions of this Act may
be granted citizenship on request (5 years of permanent residence, certain
level of Czech), if citizenship is granted, their refugee status is
automatically ceased.
They have the same rights and obl igations as citizens of the Czech
Republic; except the right to vote, to serve in the Army of the Czech
Republic and to hold some public offices.
List of rights:
Access to the fundamental human, civil, political, economic, social and
cultural rights, including the prospect of the acquiring citizenship.
Concept of National
Resettlement Programme
State Integration
Programme 22
Residence
Airport arrival
The right to reside permanently in the Czech Republic (the validity period
(10) years of the decision granting them international protection in the form
of asylum), for this purpose they will be i ssued a r ecognized refugees
Residence Permit (as identification).
Once entering the Czech Republic the resettled refugees are assisted by
the responsible staff to go t hrough customs and p assport control. Right
after their arrival the resettled refugees are taken to one of the Integration
Asylum Centres (IAC), where they will reside the following six months.
The staffs in charge are from the IOM, the service responsible for
coordinating resettlement OAMP 23 and from RFA 24 responsible for
integration.
Info upon arrival/granting of

legal status
Preparing Local community

Developing
integration
programme
(housing,
employment
assistance,
education
for
children,
finance assistance and
social integration)
No later than two days after their arrival, all resettled refugees need to
formally apply for international protection. Members of staff from the OAMP
carry out the necessary formal procedures in order to be gr anted asylum
status to the resettled persons. This procedure includes the registration of
an application for international protection, prepared in advance by
reference to observations made from the UNHCR file and s upplementary
interview, and its entry in the electronic registration system. The necessary
procedures of the aliens policing service will also be arranged accordingly.
Resettled persons will subsequently receive a decision granting them
international protection in the form of asylum.
Seminars for public organised by NGOs in years 2008 and 2009, funded
from the European Refugee Fund (ERF).
A six months multilateral assistance is provided in the Integration
Asylum Centre (IAC) in order to enable the resettled refugees to adapt
to their new setting.
For the first six months the resettled persons are accommodated in IAC;
the family ties of resettled persons and their nationality and r eligion is
respected.
22
See http://www.mvcr.cz/mvcren/article/integration-of-recognized-refugees-913320.aspx
23
Department of the Policy on Asylum and Migration (OAMP).
24
Refugee Facility Administration (RFA).

80

Cultural Orientation
Courses on integration and socio-cultural issues like for example: health

care, education, finance, employment, cultural and social habits and so on,
are organized in IAC by focusing on issues related to day to day life in the
Czech Republic. During this period cooperation between the IAC and
NGOs is set up to support the integration process of the resettled refugees.
Housing
From the perspective of long-term successful integration, a m ajor step is

the provision of integration flats in the context of access to the labour
market. Resettled refugees fall under the National State Integration
Programme which has been developed to support the integration process
for refugees.
Municipalities, on v oluntary bases, offer rental contracts to refugees and
are also eligible for donations from the Czech government for infrastructure
development and financial support to furnish these apartments. Refugees
sign standard municipal lease agreements, usually for one y ear with an
automatic extension up to 5 years.
It is possible to provide social, legal and psychological counselling in IAC,
where necessary. A project with target group resettled people focusing on
complex care, incl. social-legal counselling, was provided to the resettled
people in 2010 and 2011 by NGOs.
Counselling
Health
Refugees have mandatory health insurance similar in coverage and

conditions as those provided to Czech citizens.
Language/Skills
During the staying period in IAC, resettled refugees attend intensive

courses of Czech language (400hrs) and social cultural adaptation course.
After moving in integration flats the Czech lessons are organised by NGOs,
funded from ERF.
Shortly after arrival in the Czech Republic all children (under 18) start
attending primary or secondary schools. The integration of these children
has so far proved to be very effective and efficient.
Education
Based on the National Resettlement Program Concept the resettled

refugees are assisted to enter the labour market and the education system
of the Czech Republic. They will also be provided with assistance to find
employment and as well as employmentrelated training on the individuals
needs and their capacity to speak the Czech language.
Family Reunification
In the year 2009, 3 children were resettled to be reunified with the

Burmese resettled families.
Advice
Services
This is done according to the National Resettlement Programme in the IAC

and within the ERF project from an NGO.
of
Accessing
Volunteer support
No project is implemented by involving voluntary work of the other

refugees communities in Czech Republic.
Governments contribution
to municipalities
As mentioned above the Government gives financial contribution to

municipalities for the integration flats. This contribution must be used on
development of infrastructure within the municipality only.
Financial assistance
Resettled refugees have the same rights and o bligations as citizens

also when it comes to social welfare and financial assistance, including the
case of unemployment. However in cooperation with municipalities,
resettled refugees are eligible for special social assistance aiming to help
better and faster integration on local level for a period of one year.
81

Comments
The integration of the second resettled group of Burmese refugees has

been considered a better experience than the first resettlement. This is
largely due to a change of integration practice after moving the refugees
into special integration accomodation.
The role of the Resettlement Facility Administration has become
somewhat unclear after the resettled persons leave the Integration
Asylum Centre (IAC).
In general the cooperation between municipalities and NGOs is
viewed as being successful. It is suggested that training on c ultural
background of the specific ethnic group resettled should be pr ovided to
officials and to actors involved in the resettlement.
When it comes to the integration programme it is considered that there
is a lack of capacity in time and lecturers for Czech lessons. Furthermore,
the location of integration accommodation is viewed as an important
factor which impacts upon the integration process of the refugees being
resettled. They are usually located in small towns in which the job
opportunities are very low.
Most of municipalities managed to provide temporary jobs for at least
one of the families.
Some sustainable model of financing and ensuring essential services
and support for the resettled group should be created. This model should
ensure the resettled persons have access to supporting assistance, after
moving into the integration accommodation, for a period longer than one
year. The existing model, whereby the assistance is funded from the
European Refugee Fund is viewed as being unsatisfactory and inflexible.
A better cooperation should be amongst the central government, local
authorities and NGOs involved in resettlement.

Funding
-National Level 25
The cost of operating the Centre and other integration-related expenditure

are covered after a negot iating/barging process with the service
responsible for coordinating resettlement and with the organization
managing the Centre.
The Refugee Facility Administration (RFA) provides assistance out of his
own resources or via non-governmental organizations for a m aximum
period of one year after resettled persons leave the Centre. In cases
meriting special consideration, this assistance may be pr ovided for a
longer period.
25
-European Refugee Fund
ERF III supports resettlement programmes and actions related to the

integration of persons whose stay is of a lasting and stable nature.
ERF 2008
EU contribution:
National budget:
Total : 166, 666,66

135,000
45, 000
Source: Ministry of the Interior of the Czech Republic.

82
ERF 2009
EU contribution:
National budget:
In addition:
ERF 2010
EU contribution :
National budget :
In addition:
ERF 2011
EU contribution :
National budget :
In addition:
Costs
Comments
Total : 166, 666,66

125,000
41, 666,66
64, 000 (EU contribution) 26

Total : 132, 000
99, 000
33, 000
Total: 53, 333,33
40, 000
13, 333,33
n/a
The Czech Republic has an existing and well developed asylum
infrastructure. It has substantial experience with asylum seekers, refugees
and is gaining experience in resettlement. The financial assistance given
through the ERF has been extremely important.
The main reasons that lead the Czech Republic to commit to resettlement
were based on its previous long lasting resettlement experience (Czech
compatriots from USSR or Kazakhstan) and on its well established
infrastructure of refugee facilities (also number of NGOs providing refugees
with broad assistance in integration process) and professional staff working
with refugees. Moreover, due to a gradually declining number of asylum
seekers, the Czech Republic was able to identify enough human and
financial resources in its asylum infrastructure for further involvement in
global refugee problems and burden sharing together with other EU
countries. The resettlement activities are planned according to capacities
in terms of both reception and integration. 29
The main incentive as for today remains, still, the financial assistance
provided by European funds which can be used to co-finance various
activities related to resettlement and integration of resettled refugees. The
approved joint EU resettlement program is an i ncentive to countries like
the Czech Republic which are newly committed to resettlement. However,
in the future the Czech Republic would also welcome organisational and
logistical support, mainly with respect to selection and cultural-orientation
missions (preferably through the EASO). The EUs financial help is
viewed as sufficient but the opinion is now commonly held that the EU
should play a bigger role in countries of first asylum.
26
This amount relates to a fixed amount of 4000 for resettled persons in accordance with Article 13 (3) of the Decision
of the European Parliament and Council No. 573/2007/EC. The 2009 ERF annual programme foresaw resettlement
of approximately 16 people (3 unaccompanied minors, 10 children and women at risk of psychological, physical or
sexual violence or exploitation and 3 persons with serious medical condition. These persons are eligible for special
financial assistance amounting to 4 000, - EUR (64 000).
27
The 2010 ERF annual programme foresaw resettlement of approximately 22 persons who are entitled to
special financial support amounting to 4 000, - EUR (88 000) in accordance with Article 13 (3) of the Decision
573/2007/EC.
28
The Czech Republic foresaw to resettle 11 pe ople (unaccompanied minors, children and women at risk of
psychological, physical or sexual violence or exploitation) who are entitled to special financial assistance of a fixed
amount of 4000 for resettled person in accordance with Article 13 (3) of the Decision 573/2007/EC.
29
Interview with Ms Kateina imov from Ministry of Interior of the Czech Republic conducted on 15 February 2012.
83


Denmark
Report written by
Anders Herlitz (EUI)

Eva Singer (ECRE)
April, 2013

84
KNOW RESET Country Profile: Denmark
Country Profile: Denmark

Denmark has had limited experience of immigration and so it remains one of the few countries in Western
Europe with a relatively small migrant population.
The 1980s was the first time that the Danish state experienced a r elatively large influx of migrants.
Denmark had a booming economy at the time but its birth rate started to decline. As a result, immigrants
have formed an increasing proportion of the Danish population. In 1980 immigrants constituted 1% of the
total population. That figure has now increased to 6%.
This growth has sparked a very polarized debate concerning migration issues and the effects that they
have on a country that until quite recently remained homogenous and distinctly mono cultural.
Throughout the 1990s, Denmark was governed by the Social-Democrats, while the Conservatives ruled
the country between 2001 and 2011, supported by the Danish Peoples Party (Dansk Folkeparti) who have
long advocated for tougher measures for migrants. The Danish Peoples Party has contributed to keeping
immigration on the political agenda since its foundation in 1995. Immigration has in fact become of
widespread concern in Danish society. This political climate has lead to a series of laws which have
impacted upon immigration control.
Stricter rules are now implemented for Non-EU immigrants that access the country. They are required to
learn Danish and be come familiar with Denmarks history and culture, while access to the social welfare
system remains tightly controlled. Denmark has also targeted people who intend on using marriage as a
means of gaining access to Denmark. 1
Over the past few years there has been a f all in numbers of asylum seekers. In 2011 about 3.800
persons applied for asylum in Denmark. The Immigration Service ruled in 3.400 asylum applications cases
in 2011, and approximately 33 % were granted asylum. 2
In the fall of 2011, the social democrats regained power, and the country is now run by a l eft-wing
coalition. The current Government took the office with a pledge to ease up on the strict regulations. New
immigration laws are already implemented for family reunification cases and for cases involving permanent
residence. Furthermore, other significant changes in law are scheduled to come into effect.
Immigration laws and the Danish state are moving toward a more liberal immigration regime but the
Danish immigration policy will still be stringent. Even with the ratification of the new laws in 2011, Denmark
will continue to have some of the most harsh immigration laws in Europe.
Despite Denmark being reputed to be particularly strict as to its immigration law and policy, in terms of
refugees, Denmark has for many years contributed to finding durable solutions through resettlement.
Since 1979, the Danish Immigration Service (DIS) in cooperation with UNHCR and the Danish Refugee
Council (DRC) has implemented the resettlement programme. The involvement of the Danish Refugee
Council is partly based on historic circumstances in Denmark and partly because of the close links between
UNHCR and the DRC leading to the DRC being the implementing partner of UNHCR in Denmark. Until
June 2005, the Danish Refugee Council was a m ember of the Resettlement Quota Committee, which
decided on the overall distribution of the quota places. After a change of the law in 2005, the Committee
was abolished and the responsibility for allocating the quota was made political and given to the Minister of
Refugee, Immigration and Integration Affairs (now the Minister of Justice) based on recommendations from
the Danish Immigration Service (DIS).
For many years the funding has covered an annual allocation of 500 resettlement places for refugees.
As of July 2005, Denmark started operating a flexible quota programme lasting three years and consisting
of 1500 places. The first three-year flexible quota period ended in December 2007 with only 17 unf illed
quota places that were converted to funds managed by the Danish Ministry of Foreign Affairs. The present
period started 1 January and will run until 31 December 2013.
1
The law now stipulates that for marriages involving a Dane and non EU or non-Nordic citizen, both parties have to be
aged over 24 and the Dane must be independent of government aid.
Data from https://www.nyidanmark.dk/en-us/coming_to_dk/asylum/asylum.htm

85

The Danish Peoples Party has had a n impact on resettlement. In 2005, that party introduced new
integration criteria. In its efforts to loosen some of the stifling immigration laws the Government has
announced that the integration criteria will soon be abolished. The stakeholders view this abolition as
crucial and that this abolition should be implemented as soon as possible.
Up until this point in time, the implementation of resettlement in Denmark has been considered as being
successful through all phases. Danish stakeholders view it as a model from which other EU countries could
benefit. In Denmark, existing refugee communities play an important role in resettlement by being involved
in the resettlement programme. This participation is mainly in terms of the reception of the new comers.
The Burmese are very good at creating their own associations and networks, as are the Bhutanese. The
Congolese are not involved to the same extent.
Although the public is generally not aware of the difference between resettled refugees and other
refugees, this is not seen as a problem. When explained there is a generally a positive attitude, because it
is easier to understand why refugees living in camps in some countries need to come to Denmark for better
protection. The national media do n ot write very much about resettlement as such but sometimes local
media may write about the activities of the local volunteer groups.
Danish stakeholders generally agree that the EU should play a role in promoting resettlement in the
member states. However, since the Danish programme has run independently for many years, the NGOs
do not focus on the EU but on national plans.
86
Asylum Profile
Number of refugee
protection status granted 3
2,250 (2011)
2,124 (2010)
797 (Refugee Status)
1,327
(Other
Protection
Humanitarian protection)
i.e.
Subsidiary
protection,
3,811 (2011)
5,115 (2010)
Resettlement Scheme
Resettlement Quota 5
Programme-Based (1978)
1500 refugees/3 years 6

Udlndingeloven (Danish
Aliens Act) (24/08/2011).
Specific provision on Resettlement, as amended in 2005.

Section 8 provides the legal basis for the Danish resettlement
programme. It is a precondition that resettlement to Denmark takes place
based on an arrangement with UNHCR or a similar international
organisation. To qualify for resettlement to Denmark, the person must
meet either the criteria of section 8 (1), (2) or (3).
Other basis of
resettlement:
n/a
project/reform
The new government elected in 2011 is critical to the selection criteria

and might remove them in favour of humanitarian criteria (see, the
governments statement of purpose in 2011 7). Further, Enhedslisten
(support party of the ruling coalition) is pushing to double the quota but
whether this will happen remains unclear.

In the years prior to 1967
In 1974, Denmark accepted
refugees from the group of
some 50 000 persons with
Asian origin who were
expelled from Uganda after
Idi Amins coup..8
150 handicapped persons that had resided in UNHCR camps since

World War 2.
158 refugees from families with at least one handicapped member.

Most of these moved on to English speaking countries shortly after.
Source: Danmarks Statistik.
Ibid.
Source: The Danish Immigration Service.
Although the Danish quota is flexible in terms of numbers (1500 places over 3 years) the allocation process takes place
every year starting with the presentation of the UNHCR Projected Global Resettlement Needs report in July.
http://um.dk/da/~/media/Tyrkiet/Documents/Regeringsgrundlaget2.ashx
Ibid. p. 57
87

1976-1979 9
Udlndingeloven
(the Aliens Act).
1976-1979-Ten-Or-More agreement with UNHCR in which Denmark

accepted at least 10 handicapped refugees. This led to Denmark getting a
reputation for being a resettlement country that accepted weak,
handicapped, and elderly refugees a tradition that ended in the 2000s.
1989-2005
Quota of 500 refugees per year 10
2005 and ongoing
Quota of 1,500/3 years with a target of roughly 500/year 11

I. Sub-quota: circa 75 urgent cases
II. Sub-quota: 20 or more for specially sick or handicapped (the
previous ten-or-more program now extended)
c) Temporary
Resettlement:
n/a

Governmental Level
n/a
n/a
experience
From Guantanamo
n/a
Intra-EU Relocation
n/a

Refugees resettled
2011 12
516
Country of Origin: 4 Bhutan, 140 Burma, 2 Burundi, 2 Colombia, 12
Congo Brazzaville, 154 DR of Congo, 29 Eritrea, 7 Ethiopia, 1 Iran, 1
Ivory Coast, 1 Jordan, 3 Stateless Palestine, 1 Rwanda, 11 Somalia,
143 Stateless, 4 Sudan, 1 Uganda.
Country of Asylum: 140 Malaysia (Burmese), 4 Nepal (Bhutanese), 154
Zimbabwe (Congolese), 218 Other
2010
Status Granted: 382 Convention status, 98 Subsidiary protection, 31

humanitarian residence, 5 Resettled as unaccompanied minors.
494
Country of Origin: 12 Afghanistan, 170 Bhutan, 160 Burma, 100 DR of
Congo, 1 Eritrea, 7 Ethiopia, 6 Iraq, 2 Iran, 4 Russia (Chechenya), 5
Rwanda, 7 Somalia, 20 Other.
Country of Asylum: 132 Africa, 350 Asia, 4 Europe, 5 MENA.
2009
452
Country of Origin: 21 Afghanistan, 157 Bhutan, 6 Burma, 23 Burundi, 145
DR of Congo, 1 Eritrea, 17 Iraq, 17 Iran, 15 Liberia, 4 Russia (2 from
Chechenya), 13 Somalia, 8 Stateless Palestinians, 8 Sudan, 19 Other.
Ibid.
10
http://www.nyidanmark.dk/en-us/coming_to_dk/asylum/quota_refugees.htm
11
ibid.
12
Danish Immigration Service.

88
2008
564
Country of Origin: 18 Afghanistan, 157 Bhutan, 155 Burma, 122 DR of
Congo, 41 Iraq, 9 Russia, 17 Rwanda, 1 Somalia, 1 Stateless, 8
Stateless Palestinians, 12 Uzbekistan, 2 Other.

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Additional National
Criteria
The criteria were
introduced on June 1,
2005.
Udlndingeloven
(24/08/2011): 8 (3)
The legal basis for recognition of refugees in Denmark accords with the
1951 Convention of Refugees. Resettlement criteria consider the
protection needs according to the UNHCR mandate first.
Article 8(3) of the Danish Aliens Act, stipulates the eligibility criteria, for
resettlement as follows: (1) be i n humanitarian need in which case it is
appropriate to grant a r esidence permit, (2) not to have been able to
return to the home country for an ex tended period of time, (3) be an
unaccompanied minor, (4) have the essential qualifications to be granted
residence permit, (5) have family ties to Denmark, (6) other exceptional
circumstances. This article has extended resettlement to cases based on
humanitarian grounds. This means that refugees referred to Denmark by
the UNHCR may be accepted if they could have obtained a residence
permit in Denmark on other grounds had they entered the country as an
asylum-seeker. Humanitarian grounds refers to medical cases and
certain groups of women-at-risk, unaccompanied minors (who do not
otherwise qualify for refugee status), persons who cannot for other
reasons return to their home country and exceptionally, persons who
qualify as professionals or specialists needed in Denmark. Another
important change to the Act was the addition of integration potential
[Section 8(4)], as the second criterion (after protection) for resettlement.
The integration criterion (which takes into account educational and
language background, family size, work experience and age) aims to
measure the ability of a refugee to take advantage of the possibilities and
opportunities available in Denmark. The integration criterion is not applied
to emergency, urgent or Ten-Or-More cases.
The Danish Government announced that the integration criteria stipulated
in section 8 (4) will be removed but it has not yet been implemented in
the law.
When assessing submissions for resettlement, Denmark, focuses on the
refugees prospects for settling and benefiting from living in Denmark, cf.
section 8 (4) of the Danish Aliens Act. The following supplementary
criteria are, therefore, of importance when considering a pe rson for
resettlement:
Language Qualifications; Education and Work Experience; Families with
Children; Social Network outside the Family; Age; Motivation. 13
Exclusion factors are also applied in the Danish resettlement system. All
refugees who are under consideration for resettlement in Denmark
undergo a security investigation by the Danish Security Intelligence
Service and the Danish Defense Intelligence Service.
Pursuant to section 10 ( 1) (2) of the above act, an al ien cannot be
granted a residence permit under section 8 based on t he conditions
stipulated in this article.
Furthermore, persons with mental illnesses will also not be accepted for
resettlement in Denmark.
13
http://www.refugeelegalaidinformation.org/node/1166
89

Selection Process
Deploying Staff o UNHCR
Through JPO scheme

Processing of resettlement cases shall be carried out by
Dossiers
The Danish Immigration Service (DIS) and to a certain extent, the Danish
Refugees Council (DRC) on selection missions. The DRC has been part
of the refugee interviewing process since the start of the resettlement
programme. Furthermore, the DIS invites municipalities to participate in
the selection missions. They are also invited to indicate whether they
would like to receive any of resettled refugees as part of their annual
quota for settlement (including refugees arriving to Denmark as asylum
seekers and granted asylum or humanitarian status). In recent years
there has been an increased interest in the part played by municipalities
in selection missions.
Once the destination and dates have been decided upon, the UNHCR
can start forwarding the dossiers by mail to the DIS. The dossiers should
be sent as early as possible in order to screen the cases and to have
them cleared by the security services (police) before the selection
mission takes place. The DRC and participants from the municipalities do
not normally receive the dossiers beforehand.
During the selection mission, DIS and DRC conduct the interview jointly
and the general cultural information, which is given to the refugees before
the interview, is also presented jointly. The delegation normally agrees on
the individual cases, but the final decision is made by DIS upon return to
Denmark. At the end of the mission, the delegation gives general feedback to UNHCR regarding the presentation of the cases, the quality of
the submissions and the practical arrangements surrounding the mission.
In addition to the above dossiers, Denmark has 75 places for dossier
submissions which can be either urgent or emergency priority cases.
These cases are submitted by post from UNHCR and do n ot need t o
belong to any specific region or nationality. The cases are examined by
DIS; DRC has no involvement in this procedure since the changes in the
law in 2005. The integration criteria do not apply to these cases but they
have to fulfill the Danish criteria on refugee status, subsidiary protection
or humanitarian status.
Missions
Selection missions are carried out by the DIS and DRC. The delegations
normally consist of two persons from DIS and two persons from DRC.
The two persons from DRC will normally be one person with expertise in
asylum law and one person with expertise in integration and reception of
resettled refugees.
For the last few years Denmark has conducted in-country selection
missions to Malaysia (refugees from Burma), Nepal (refugees from
Bhutan) and various African countries (refugees from DRC). In 2012 are
(to be) conducted in-country selection missions to Malaysia, Nepal and
Ecuador (refugees from Colombia).
Cultural Orientation (CO)
Done by DIS and D anish language teachers. 20 lessons evenly divided

between cultural orientation and language classes. Offered to all
refugees accepted on selection missions but not to refugees on dossier
basis. The CO takes place over one week and as soon as possible after
the CO has finished the refugees can travel to Denmark.
Assistance with Travel

Documents
Travel and assistance with exit permits and travel documents are
organized by IOM together with DIS and the nearest Danish Embassy
90
Medical screening
Procedure Timing 14
Comments
Based on the assessment of the delegation during the selection mission,

the cases, which may qualify for resettlement to Denmark, are referred to
IOM for health assessments. IOM has about one month to conduct the
health assessments. Upon forwarding the files to DIS, that organisation
makes the final decision.
Normally, a decision will be made 3 months after the delegation has returned
from the interview trip. It should be less for the emergency cases.
Denmark has a well functioning and well-established resettlement
programme both at the pre departure and post- arrival phase. Civil
society is involved in the implementation of the selection process to a
certain extent (on selection missions but not on dossier cases, which
form about 20 percent of all accepted cases). Furthermore, civil society
has no influence on the selection of overall groups to be resettled in
Denmark, which is decided politically by the responsible minister after
consultations with the DIS. In this process the DIS consult to a limited
degree the local authorities regarding the integration potential of
previously resettled groups.
It is recommended that NGOs and local authorities should be more
involved on the selection process as they could bring their experiencebased expertise by better identifying the integration needs of the groups
to be resettled in the post arrival phase. The selection interviews focus
too much on the family composition and asylum motive and not enough
on the psychological state of refugees, which could enable refugees to
better prepare the integration programme.
b) Status and Rights PostArrival phase

Status granted
Legal source: Aliens Act
(24/08/2011): 8 (1), (2) (3)
Irrespective of which status the refugees are granted (convention,

subsidiary, humanitarian), they receive- at arrival- a temporary residence
permit valid for 4 years. The length of the temporary residence permit has
changed many times over the years. The refugee can apply for a
permanent residence permit after 4 years in Denmark, but the
requirements are very high and in practice it would be very unusual for a
refugee to obtain the permanent residence permit after 4 years.
At the moment, the conditions for residence are being amended again.
Rights granted
Legal source:
Sundhedslove (13/07/2010):
7
Integrationsloven
(20/08/2010): 24c, 24a, 23
14
Airport arrival
DIS, receiving municipalities and sometimes local volunteers including

previously resettled refugees
Info upon arrival
Municipality is responsible for the reception of the refugees. DIS informs

municipalities and civil society of the arrival of new groups.
Source: UNHCR Handbook on Resettlement: Denmark.

91
( housing, public
assistance, legal issues,
employment and education,
child welfare, mental health
and medical assistance,
finance assistance and
social integration)
Refugees accepted for resettlement are also granted the work permit. They
have the right to take up employment in Denmark immediately upon their
arrival in the country. The municipalities offer a 3-year mandatory
integration programme on behal f of the government, financed by
government funds. The integration programme consists of Danish
language classes as well as lessons in Danish culture and hi story. The
social workers from the municipality also provide assistance with housing
as well as engaging in a d ialogue with the refugee to make an i ndividual
contract/plan of action to find employment in Denmark. The programme
contains a m inimum of 30 hours of activities per week and i ncludes the
abovementioned language and c ultural orientation. The programme may
also contain vocational training.
Municipalities responsible with assistance of volunteer groups.
Danish cultural orientation courses as well as Danish language courses. The

30 hours programme is run through language schools and civil society.
Counselling
Municipalities and civil society.
Language/skills training
Language schools run by municipalities or other contractors like the DRC.

Free language training for the first three years.
Health
All persons registered as residing in Denmark have access to public

health care. Once arrived, the resettled refugees receive a Health
Insurance Card for their local municipality.
Education and Employment

assistance
All children residing in Denmark have access to the public school system
that is free of charge.
Developing integration
program 15
There are no restrictions on resettled refugees access to the Danish

adult education system. In order to promote educational opportunities
and job prospects, special courses may even be designed in order to
meet their needs.
Municipalities, and t o a l ess degree civil society, are responsible for
education and employment assistance.
Family reunification
Advice on accessing
services
Municipalities.
Mentoring
Done through civil society.

providers
Municipalities are responsible for the programme.
Volunteer support
Three major players, DRC, Danish Red Cross and KIT funded by the
state or local budgets.
Housing
Refugee contribution to
integration
15
16
Family reunification is outside the resettlement quota. 16 Applying for

family reunification can be rather complicated and the refugees often
need the assistance of legal aid clinics or the volunteer clinics of the DRC
or others (municipalities/ volunteers) to help them apply.
Municipalities are responsible for finding appropriate housing for resettled

refugees. Strong efforts are made to find permanent accommodation
prior to their arrival or if this is not possible within the first 3 m onths of
their arrival.
Some of the refugee communities are involved in the reception of
newcomers.
According to the Danish Integration Act: http://ec.europa.eu/ewsi/UDRW/images/items/docl_998_399180562.pdf

Rules on family reunification may change and therefore the official website must always be consulted:
http://www.nyidanmark.dk/en-us/ .
92

Governments contribution
to municipalities
Comments
Integration programme for the first three years fully funded by the State.
The post arrival phase of resettlement is viewed as a well-established structure

that in generally is functioning well. Nevertheless it could be improved in
various ways in order to accommodate the needs of specific groups.
In this view, the collaboration amongst the key players - NGOs and local
authorities - was difficult at the very beginning and still varies from place
to place. Most municipalities see a clear value in the volunteer work
although there may be a tendency to include volunteers more and more
due to cuts in public spending. This may not always be to the advantage
of the refugees. I n those municipalities where the cooperation is good,
there may be regular meetings between the volunteer group and the
municipality to discuss the framework of cooperation. On the contrary, the
collaboration amongst different NGOs is not viewed as being as good as
it should be.
With regard to placement in the municipalities, it seems to work relatively
well but could be done better. The major problems relate to finding a
proper house, which is affordable, and within reach of schools and jobs
even with public transport.
In terms of funding it can be a challenge for the NGOs to get proper
funding for the activities as most funding comes from the state -so there
are not enough funds for specific projects. Furthermore, because of the
lack of financing opportunities under ERF, there are no twinning projects
but there is a wish to learn from others.
It is recommended:
Multiyear planning (e.g. three years) is implemented in terms of numbers
(flexible quota) and also in terms of priorities. This would give certainty to
the UNHCR, local authorities and civil society to plan their integration
efforts more effectively. If substantial changes take place in terms of the
refugee groups most in need of resettlement, the plans could be altered
during the period. This also includes a better allocation of funds for
different projects run by NGOs.
The Danish government should remove the integration potential criteria,
as they have promised to, as soon as possible.
When deciding the placement of the refugees to different municipalities,
the Danish Immigration Service should have more regard to the
capacities of each municipality to receive and integrate the refugees. The
municipalities should also avoid placing the refugees in accommodation
which is far from convenient public transport systems and i n any way
distanced from jobs and educational opportunities. If the prices of
housing are too high, there should be special economic support systems
in place to compensate for that.
With regard to a pos sible link between selection and integration, it is
believed that is important to involve the volunteers as soon as possible
post arrival.
Although the cooperation between civil society and municipalities is very
good in general, there are some areas of the country where the
municipalities do not accept and do not see the advantages of the
involvement of the local volunteer groups. I n order to improve this
cooperation, the various actors should be encouraged to meet more often
and become familiar with each other.
It is also emphasized that it is crucial that resettlement be granted to
those refugees who have the highest requirements for protection.
93

Funding
National Level
In 2011 the Ministry of Integration was closed. The newly created

Udlaeningsstyrelsen that took over the tasks related to refugee
resettlement is a sub-division of the justice department. 17 This
department covers special expenditures related to the treatment of
foreigners such as the costs for interpreters, asylum camp surveys,
verifications, language tests, foreign legal aid, age v erification and legal
aid to foreign minors that seek asylum. Furthermore, expenditure related
to the returning refugees who fail to reach certain criteria is also the
responsibility of this new office. Finally, Udlaeningsstyrelsen covers
integration costs for resettled refugees, interview trips for resettlement
refugees, courses for these, and health examinations of these. 18
Data:
For 2012: 17.2 million DKK (2009: 12.4; 2010: 18.4; 2011: 14.9
projected for 2013-15: 17.2/year
ERF
Costs
Comments
Denmark has opted out from ERF.

n/a
In Scandinavia, there is often a strong case to make comparisons
between the countries. In Denmarks case, this would mean an increase
in the quotas, since Denmark accepts relatively fewer refugees than
Sweden and Norway. This argument has also been raised in public
debates on the topic, and indicates that Denmark may be capable of
managing an increased capacity. 19
Denmark has the capacity to resettle more refugees and increase the yearly
resettlement quota to 1500 a year or 4500 over three years. In order to do
so, the funding could be allocated in a different way in order to create an
incentive for the municipalities to do more for resettled refugees.
17
Source: Finansloven 2012: 11.51.01: 20: Srlige sagsomkostninger
18
http://www.oes-cs.dk/bevillingslove/doctopic?book=BEVPUBL.FL12A&topic=11.51.01&searchtype=3
19
e.g. http://www.dr.dk/Nyheder/Politik/2011/08/25/160402.htm?rss=true
94



Estonia
Report written by
Lehte Roots (EUI)

July, 2013

95
KNOW RESET Country Profile: Estonia
Country Profile: ESTONIA

Estonia has been a member of the EU since 2004. In 2007 it became part of the Schengen visa system.
The first Refugee Act was introduced in 1997, in that same year Estonia became a signatory of the 1951
UN Refugee Convention. Since 1997 Estonia has started to grant refugee status and after the transposition
of the EU directives, it has also granted subsidiary and temporary protection. In 2006 an act entitled Act
Granting International Protection for Aliens (Vlismaalasele rahvusvahelise kaitse andmise seadus) was
adopted which introduced the subsidiary and temporary protection possibilities.
Estonian immigration policy is generally restrictive and is not very open to new waves of immigration. It
is possible to apply for residence permit on the basis of family reunification, study, research, work, setting
up a business, on the basis of legal income and in cases of substantial public interest.
The Estonian migration and asylum policy report issued in March 2011 for the year 2010 states that the
topic which was debated most was residence permit requirements for foreign labour. This issue concerned
the opening up of the Estonian labour market for labour coming from third countries and to fix the salary
1
requirements for labour coming from outside of the European Union.
Estonia has also imposed immigration quotas, which are around 1,000 persons per year. The quota
number is reviewed every year by the government. Estonia is considered more as a transit country and not
2
as a settlement country. In 2010 there were 2,434 entry refusals at the border of Estonia .
Public opinion towards immigration is mostly negative. Half of the responses to the public poll conducted
in 2010 by Saar Poll O indicated that immigration has negative impact on E stonia. The negative
evaluation of immigration is supported by the opinion that immigration places a bu rden on t he social
system, increases unemployment and situations of conflict. Estonia already has a very big proportion (30%)
3
of the population which has an immigrant background and there are persistent integration problems.
The number of asylum seekers coming to Estonia is increasing, but it has not been an important
destination country for asylum seekers. While the number of persons applying for asylum was between 1020 persons per year before 2011, Estonia received 67 asylum seekers in 2011. The number of Dublin
cases has risen (19 persons in 2010 were sent back to Estonia).
Estonia is not a resettlement country and also does not see itself as a country where refugees should be
4
resettled or relocated. Estonia has stated this opinion many times that it is not interested to participate in
such projects related to immigrants. It is based on the difficulties related to the state budget and also a lack
5
of reception capacity of refugees.
http://www.sisekaitse.ee/public/ERV/2010_POLIITIKA_ARUANNE__ee_final.pdf, p 13
http://www.sisekaitse.ee/public/ERV/2010_POLIITIKA_ARUANNE__ee_final.pdf p 29
http://www.siseministeerium.ee/public/EPF/Pagulasuuring_ARUANNE.pdf
Interview with Pomerants, M, member of the Parliament, 27.01.2012.
Komisjoni teatis nukogule ja Euroopa Parlamendile Euroopa Liidu hise mberasustamisprogrammi loomise kohta,
2.09.2009 http://register.consilium.europa.eu/pdf/et/09/st12/st12986.et09.pdf and Eesti pgenike mberasustamise
projektis ei osale, Eesti Pevaleht, 17.09.2009, http://www.epl.ee/artikkel/480500
96
Asylum Profile
status granted 6
11 (2011)
17 (2010)
67 (2011)
33 (2010)
Resettlement Scheme
None
Resettlement Quota

Act Granting International
Protection for Aliens
(Vlismaalasele
rahvusvahelise kaitse
andmise seadus) Published in
RT I 2006, 2, 3 enforced
01.07.2006 7
No provision relating to resettlement.
project/reform
There is no reform or project going on. Resettlement is not on the

political agenda.

c) Temporary
Resettlement:

Governmental Level
No
No
http://www.pagulasabi.ee/eesti.statistika/
available www.riigiteataja.ee
97

experience
From Guantanamo
No
Intra-EU Relocation
No

Refugees resettled
None
Comments
There is no motivation to resettle refugees. The questionnaire filled by the

parliament members, Ministry of Interior and NGOs do not give any
promising possibilities to introduce resettlement in Estonia. Asylum
seekers do not see Estonia as their destination country, in general
practice, they tend to simply get stuck in Estonia or have been stopped in
there on their way to Nordic countries. A number of the persons who
were granted international protection, left soon after receiving the
necessary personal and travel documents.
Estonia does not have large diasporas of third country nationals from
defined resettlement priority regions. There is a high probability that any
resettlement to Estonia will not be successful and will result in secondary
movements within EU. The NGOs dealing with asylum seekers and
refugees (legal and s ocial assistance in some cases) are dependent on
the projects performed with the help of EU-funding. It seems that this
system is not sustainable if the EU funding is cut.
Very often the high number of foreigners settled in Estonia is taken as
a basis for the arguments not to liberalize Estonian immigration policy;
also the Estonian capacity to integrate newcomers is a w ell-known
problem. The economic situation is the other main reason, as many
residents live in extremely poor conditions or without jobs. 8
Estonian officials strongly believe that resettlement at the EU level
should be a voluntary act and cannot be a state obligation.
The Ministry of Interior, at interview, stated that asylum issues should
remain up to the member states as it increases the financial and
administrative burden of the states. 9 Estonian officials also do not have
any experience or expertise in resettlement and t herefore more training
would be needed to manage any resettlement. There is also no political
debate as to whether or not Estonia should resettle refugees. According
to the opinion of the Ministry of Interior it would be an ex tremely
unpopular decision to start to resettle refugees to Estonia. The public
opinion poll ordered by the ministry and delivered in 2010 showed that
Estonian population is not open to refugees.
Interview with Pakosta,L. member of the Estonian Parliament, 26.01.2012.
Interview with the Ministry of Internal Affairs, 14.02.2012.

98


Finland
Report written by
Johanna Jacobsson (EUI)

Ann-Charlotte Sirn-Borrego (ECRE)
April, 2013

99
KNOW RESET Country Profile: Finland
Country Profile: Finland

Being socially, culturally and politically homogenous, Finland has a relatively small number of immigrants.
Notwithstanding the Finnish emigrants living in Sweden and the Finnish-speaking people living in
neighboring areas of Russia, the Finnish language is not spoken widely anywhere outside of the country.
The difficulty of the language, the remote location, the severe weather conditions and the small number of
big cities are probably the most significant reasons for the low level of immigration into Finland.
The number of foreign citizens in Finland reached 20.000 for the first time in the end of 1980s and has
been growing since the beginning of the 1990s. The collapse of the Soviet Union caused a peak in
immigration in 1991-1993. A large number of immigrants are of Russian origin (many of them from pre-war
Finnish territories) but also refugees are well represented (especially Somali and people from the former
Yugoslavia). Since 1995, when Finland joined the EU, immigration has been growing steadily from an
annual level of approximately 12.000 persons to closer to 30.000 immigrants in 2011. 1
Finland aims at an active role in all types of international cooperation, especially in the framework of the
United Nations. Another important framework for the country is the Nordic cooperation. The countrys wellestablished refugee resettlement programme should be examined in this context. The beginning of refugee
resettlement in Finland was greatly influenced by the other Nordic countries, especially Sweden. Finland's
Scandinavian neighbours were receiving large numbers of refugees yet Finland had v ery few. Another
motivation was that it was felt that cooperation with the UNHCR and the establishment of its own resettlement
programme showed the countrys willingness to practice progressive international humanitarian policy.
Furthermore, the opportunity to resettle refugees was seen as one of the ways in which Finland could further
integrate with its European and Scandinavian partners and dissociate itself from its Russian neighbour. Today
refugee resettlement is considered an i mportant form of Finlands foreign policy. In addition, refugee
resettlement is often seen as one of the primary ways Finland participates in "burden-sharing" and gl obal
distribution of social justice and peace and security. The resettlement programme is the most visible, and also
generally accepted, form of the countrys humanitarian foreign policy.
The first decision on admitting refugees collectively was taken by the Government on 24 October 1973
concerning the reception of a hundred refugees from Chile. The actual beginning of refugee resettlement in
Finland is usually placed in the year 1979 when Finland started to receive refugees at the request of the
UNHCR. The first refugees were admitted on an ad hoc basis and they consisted of approximately 100
Vietnamese refugees received from Malaysia. A resettlement programme has been in place since 1985.
Legal provisions regarding resettlement were legislated for in 1991 2.
Refugees who arrive under the resettlement quota (known as 'Quota refugees') have been the first
refugees that arrived to Finland in large numbers. Since 2001, the annual number of quota refugees has
been 750. The largest refugee groups admitted to Finland under the refugee quota since 2001 have been
Iraqis, Afghans, Sudanese, Burmese and Iranians.
When the pre-quota Chilean refugees arrived in 1973, Finland was completely unprepared for the
reception of large numbers of refugees. The first group of Vietnamese refugees in 1979 arrived to a similar
situation. In the 1980s, Finland received about 1400 refugees, mostly Vietnamese. During this period, a
large number of municipal decision-makers and officials were trained and became familiar with refugee
resettlement. During the 1990s, Finland received a growing numbers of asylum seekers, thus the number of
refugees living in the country went up. At the same time, Finland was suffering from a severe recession and
unemployment. During this decade the legislation and practices concerning refugees reception, integration
and prevention of social exclusion were created. In the beginning refugees were received in temporary
reception centres. Since 1987, the reception was gradually shifted to municipalities. 3
Statistics Finland (http://www.stat.fi/til/muutl/index_en.html).
The Aliens Act of 1991
Sirkku Pivrinne, Pakolaisten vastaanoton kolme vuosikymment, in Outi Lepola (ed.), Koto-maana Suomi,
Kertomuksia maahanmuutosta 19992001, Tyministeri, Edita Helsinki, 2002, p. 2534.
100

Public opinion is generally more welcoming toward quota refugees than other beneficiaries of
international protection since it is widely considered that quota refugees come from serious conflict
situations and have been individually chosen by Finland. A certain differentiation between quota refugees
and other persons benefiting from international protection is also present in the legislation and practices of
the Finnish authorities. This differentiation in the public opinion is, however, becoming maybe less evident
because of the growing number of immigrants in municipalities across the country.
There are also an increasing number of people who e are critical of Finland's immigration policy. This was
demonstrated by the success of a nationalistic party, True Finns, in the parliamentary elections of 2011.
In the current political climate of Finland, there does not seem to be the willingness, or financial capacity
(especially in the municipalities), to increase the quota size. Additionally, the political reality in Finland is
such that no political party would consider to proposing an increase in the resettlement quota. The role of
media is crucial to influencing attitudes.
Finland emphasises the need of strategic resettlement. It also stresses the need f or continuing the
implementation of the Joint EU Resettlement Scheme including the need to get more EU states to
participate in the global resettlement work in cooperation with UNHCR. 4 It is also felt that the EASO, by
managing the EU resettlement scheme, has an important role in promoting, both by financial incentives and
by sharing good practises, an overall increase of resettlement places in the EU.
http://www.unhcr.org/refworld/docid/4ecb9bfd1c.html
101
Asylum Profile
Number of protection status
granted 5
1,271 (2011):
169 (Refugee status (Persons granted with asylum) 8)
714 (Subsidiary protection)
143 (Humanitarian protection)
245 (Other grounds 9)
1,784 (2010):
181 (Persons granted with asylum)
644 (Subsidiary protection)
654 (Humanitarian protection)
305 (Other grounds)
3,088 (2011)
4,018 (2010)
Resettlement Scheme
Programme-Based (since 1985)
Resettlement Quota
750/year (since 2001)

Ulkomaalaislaki30.4.2004/301
(Aliens Act)
Sections 90, 91 and 92 of Chapter 6 (International protection).

The Finish Aliens Act lays down the definition of refugee quota
and the requirements and procedures for admitting aliens to
Finland under the refugee quotas.
Agreement with UNHCR

1985
Decision SM/2011/2143 on 17
February 2012 by the Ministry of
the Interior.
project/reform
Signed agreement to participate in the UNHCR resettlement

Programme from beginning of 1985. 10
Adopted by the Finnish government on t he geographical
allocation of the refugee quota based on a proposal prepared by
the Ministry of Interior, Ministry of Foreign Affairs and the Ministry
of Employment and the Economy.
The current Government continues the resettlement activity in
accordance with the well-established practice.
Source: The Finnish Immigration Service.
Ibid.
Ibid.
Asylum refers to the residence permit issued to a r efugee under the asylum procedure. The asylum procedure is
applied to asylum seekers that apply for international protection at the Finnish border or on Finnish territory. Quota
refugees do not go through the asylum procedure. They are granted with a refugee status based on the assessment
conducted by the UNHCR and the Finnish authorities during the selection trip.
Includes persons admitted, for example, through family reunification and on individual human grounds.
10
http://www.unhcr.org/3c5e57f07.pdf
102

Chile, 1973: The first reception of 100 refugees from Chile.
1973- Government decision of 24

October
In addition, Kirkon Ulkomaanapu (Finn Church Aid, an N GO)

committed to the reception of 10 refugees. This resettlement of
refugees to Finland was done on the refugees own application
and in cooperation with the representative of the UNHCR based
on instructions received from the Finnish Ministry for Foreign
Affairs and the Ministry of the Interior. 11
The first refugees were admitted on an ad hoc basis and they
consisted of approximately 100 V ietnamese refugees received
from Malaysia. Ad hoc resettlement was continued until a
resettlement programme was put in place in 1985.
1979 -1985
The annual quota for refugees is established in the annual State

budget approved by the Parliament. Since 2001, the quota has
been fixed at 750 persons a year. 10% of the quota is reserved
for emergency cases and urgent cases. The reception of
refugees at the request of the UNHCR is always implemented in
the framework of the refugee quota. The same applies to the
reception of persons appeared as witnesses at international
criminal courts and considered to be in need of protection.
Finland does not resettle outside the arrangements with the
UNHCR and the international criminal courts.
Evolution of quotas between

1986 and 2012
1986
100
1987
200
1988
300
1989-1991
500
1992-1993
500 + 200 (An additional quota for ex-Yugoslavia)
1994
500
1995 1996
500 + 500 (An additional quota for ex-Yugoslavia)
1997
500
1998
600
1999
650
2000
700
2001-2012
750 12
c) Temporary Resettlement:
n/a

Governmental Level
Two twinning arrangements in the form of the MORE and MOST

projects.
11
Quick Holger: Chilen pakolaistoimikunta II:n raportti tyvoimaministerille vv. 1973-1974 saapuneita Chilen pakolaisia
ja heidn olojensa jrjestmist koskeneista toimenpiteist. Helsinki: Tyvoimaministeri, 1975.
12
The resettlement quota was never fulfilled but it varies from year to year
103

The MORE Project (Modelling of
National Resettlement Process
and Implementation of Emergency
Measures)
December 2003 - April 2005.
The MOST Project (Modelling of
Orientation, Services and Training
related to the Resettlement and
Reception of Refugees)
December 2006-2008
An EU funded Project run mainly by the Finnish Ministry of

Labour and the Reception and I ntegration Agency of Ireland in
cooperation with the UNHCR, the IOM and the European
Council on Refugees and Exiles (ECRE).
A transnational project funded by ERF. Led by the Finnish
Ministry of Labour. Project partners: the Reception and
Integration Agency of Ireland, the Spanish Ministry of Labour and
Social Affairs and the Swedish Migration Board. Implemented in
cooperation with UNHCR, IOM and ECRE.
Informal cooperation with some other EU countries. Ireland,
Romania, Poland and Hungary have participated to the Finnish
delegations selection trips as observers. 13
February 2010 and ongoing

The HAAPA-project 14: to enhance the placement of highly

vulnerable resettled refugees in local municipalities.
ESF project: EU-resettlement linked in an a wareness raising,
fact finding, information exchanging, project.
e) Resettlement-like experience
From Guantanamo
n/a
Intra-EU Relocation
Finland does not engage in any EU relocation activities.
Other
Comments
Finland has agreed, that if necessary, it will give protection to

persons appearing as witnesses at international criminal courts
(ICC, ICTY and the Special Court for Sierra Leone). A small number
of such persons have been admitted to Finland under the refugee
quota. They were included in the emergency quota, that is 10 % of
the overall refugee quota.
According to the current Governments programme from June
2011, the refugee quota policy will be continued at current level
in cooperation with the UNHCR. The biggest challenge for
effective resettlement is the small number of municipalities willing
to receive quota refugees. The Government is thus aiming at an
increase in the number of municipalities receiving quota
refugees. A financial incentive in the form of the HAAPA project
has been created for the promotion of resettlement of refugees in
a vulnerable position. The Ministry of Employment and t he
Economy is currently negotiating with the Association of Finnish
Local and R egional Authorities on how to increase refugee
placements in municipalities. The Government programme in this
regard was set out in June 2011. In order to support the
cooperation model between the state and municipalities, a plan
will be prepared to gradually raise the level of compensation paid
to municipalities. The level of compensation will then correspond
with the actual development of costs.
13
Interview with Senior Inspector Monica Harju, the Finnish Immigration Service.
14
http://www.resettlement.eu/sites/icmc.tttp.eu/files/Creating%20Welcoming%20Communities_HAAPA%20Finland.pdf
104

2011
626
Selection trip: Thailand
Admitted refugees: 119 Burmese refugees, 50 so-called urban
refugees of various nationalities
Selection trip: Iran
Admitted refugees: 265 Afghan refugees
Selection trip: Rwanda
Admitted refugees: 92 Congolese refugees
In addition, 100 emergency cases of different nationalities
(usually chosen based on e.g. health and security reasons)
2010
634
Country of first asylum: Rwanda (126)
Country of origin: DR of Congo (126)
Country of first asylum: Iran (153)
Country of origin: Afghanistan (153)
Country of first asylum: Thailand (147)
Country of origin: Burma (131)
Sri Lanka (10)
Pakistan (6)
Country of first asylum: Syria (145)
Country of origin: Iraq (144)
Egypt (1)
Emergency cases: 63
2009
727
Country of first asylum: Syria-Jordan (327)
Stateless (26)
Sri Lanka (22)
Iran (1)
Somalia (1)
2008
Emergency cases: 100

737
Burundi (5)
Country of first asylum: Syria (282)
15
Information received by email from Senior Officer Arja Rantonen-Lakkisto, the Finnish Immigration Service, on 23 April
2012. Statistics for 2003-2010 are available on the website of the Finnish Immigration Service (
http://www.migri.fi/about_us/statistics/statistics_on_asylum_and_refugees/quota_refugees).
105

Sri Lanka (18)
Pakistan (5)
China (13)
Burundi (1)
Somalia (1)
Iran (2)
Ivory Coast (2)
DR of Congo (5)
Stateless (3)
Emergency cases: 99
a) Selection Criteria and Process
Pre-Arrival Phase
Selection criteria
UNHCR Criteria
The requirements to apply for asylum are laid down in section 87

of the Alien Act. The wording of this section is virtually identical
to the definition in the 1951 Convention, omitting the territorial
and temporal limitations.
Refugee status is granted based on the assessment submitted by
UNHCR. The UNHCR resettlement criteria is applied under
section 92 (2).
On an exceptional basis, persons other than those presented by
the UNHCR may be gr anted a r esidence permit. This based on
their need for protection, instead of being granted convention/
refugee status. 16
The selection criteria for quota refugees are determined in
Section 92 of the Aliens Act. Those in polygamous marriages are
not accepted for resettlement in Finland.
Additional National Criteria

Ulkomaalaislaki30.4.2004/301
(Aliens Act) section 92 a nd
section 36
In addition to these selection criteria laid down in the Aliens Act

and the annual decision taken on t he geographical allocation of
the refugee quota (based on the need of continuity in the chosen
refugee groups), Finland has not determined any specific target
groups. According to the Finnish authorities, the need for
international protection is the primary and most important
selection criterion. Finland also puts emphasis on the aliens
capacity to integrate into Finnish society. The refugees
motivation to integrate is seen as an important factor.
The general requirements for issuing residence permits apply
also to quota refugees. It may be refused if there are reasonable
grounds to suspect that the alien intends to evade the provisions
on entry into or residence in the country. 17
16
The Finnish Aliens Act (301(/2001) , Section 90
17
More detailed explanation of the selection criteria is included in the Government proposal for the Aliens Act of 2004.
106

Selection Process
The selection procedure is initiated by documents submitted by

UNHCR. Based on these, the officials of the Immigration Service
MIGRI and the security authorities make a pre-selection in
Finland. All the relevant information concerning the refugees
needs for resettlement, integration potential and possible family
relations should be available at least a month prior to the actual
selection mission.
Deploying Staff
n/a

The UNHCR and Finnish Immigration Services.
Dossiers
As an ex ception to the normal procedure, in emergency and

urgent cases, aliens are admitted to Finland without a pe rsonal
interview on the basis of a written statement by the UNCHR. Very
few cases are accepted through a dossier selection.
Missions
These interviews are conducted by MIGRI officials,

representatives of Employment and Economical Development
Centres and, if necessary, security officials. In the recent years
municipalities have also taken part in the missions. During the
selection mission the delegation presents a briefing to provide the
refugees with basic information on Finland.
After the interviews the members of the delegation prepare a
tentative list of those to be selected. At the end of the mission the
list is given to the UNHCRs field officer. The final decision will be
made within two months.

documents
Medical screening
Cultural orientation is the remit of IOM. The course has been

mandatory for everyone over 15 y ears of age. The arrangement
was established in 2001 and ran until the termination of the
contract in 2010. The orientation was not arranged in 2011 and
the contract for 2012 is currently being negotiated.
After a municipality has been located to accommodate the
refugee(s), the travel arrangements can be made. These are
handled by IOM and financed for by the Finnish government.
Before departure, IOM conducts a f it-to-travel examination to
ensure that there are no medical obstacles to the travel or that
the passenger poses no risk of infection to the other passengers.
Procedure Timing
January/February: Scheduling of selection trips with the UNHCR
May: The UNCHR sends the refugees documents to the Finnish
Immigration Service (Migri)
June: First selection trip
August: Migris decision, details of the chosen refugees are sent
to the municipalities
September/October: Information on municipal placement and
accommodation to Migri, travel arrangements made (Migri/IOM),
second selection trip.
Decision is made in approximately two months.
November/December: Arrival of the refugees, third selection trip.
107

Comments 18
The annual refugee quota is never fully filled. According to the

Finnish authorities, this is mainly due to the lack of suitable
candidates proposed by the UNHCR and the lack of flexibility in
changing the allocation decision to include candidates from other
regions. Since the Finnish government policy regarding selection
is explicitly based on humanitarian criteria and not on integration
perspectives, it is unclear why the set quota cannot be
materialized.
The Finnish authorities prefer to receive refugees from the same
regions and with similar backgrounds because it aims at
coherence in the geographical and ethnic origin of the selected
refugees. The Finnish authorities consider this a necessity since
the organisation of municipal services for a l arge number of
different cultural and language groups would be extremely
challenging especially in smaller municipalities. Certain
coherence in the composition of the refugee groups is considered
to be also to the benefit of the refugees themselves.
It may be also be linked to the reluctance of the municipalities
to resettle refugees and t o the reason that they do not get
enough compensation from the state for the integration
services they provide. The municipalities may also refuse to
resettle refugees with special needs (medical or other) on the
grounds that they are unable to provide for the adequate
services due t o a l ack of resources. There have also been
complaints from resettling municipalities that the information
provided by UNHCR on s ubmitted cases with special needs
has been insufficient and, at times, not updated. This can lead
to the expectations of refugees and those of the receiving staff
being very different. This in turn can negatively impact upon
the integration process. Some municipalities may also feel
uncomfortable in resettling refugees with a d ifferent skin color
due to negative attitudes locally, both among the population
and the policy makers. It is important to point out that the
Finnish municipalities are extensively independent from the
state and c annot be f orced to resettle against their will. The
decision to resettle is taken through a pol itical process in the
municipalities. Refugee issues tend therefore to be an ex tra
sensitive topic ahead of municipal elections.
Lengthy negotiations between government representatives and
the municipalities are needed as a result of the municipalities'
reluctance to contribute to resettlement. These negotiations take
place before the needed resettlement places are allocated. When
the bureaucratic process is prolonged, it results in unnecessary
delays for the refugees departures after selection, in some cases
putting their health and life at risk. In some cases refugees have
died before being able to travel to Finland. Other circumstances
which may contribute to prolonging the departure include a
shortage of resources at Finnish Embassies which prevent the
issuing of travel documents, a shortage of staff at the UNHCR
regional office, logistical problems and bureaucratic exit
procedures in the country of departure.
18
Data and information based on the qualitative and quantitative research done in the framework of this project
108

The government needs to secure the target (750 refugees) of the
annual resettlement quota. It might be necessary to conduct an
evaluation on the Finnish resettlement program and its different
stages to find out the reasons for the backlog. Is it a l ack of
resources? Should the cooperation and coordination between the
different stakeholders, both national and i nternational, be
improved? What other steps should be taken? While researching
Finnish resettlement, positive reference was made time and time
again to the Danish model for resettlement. Finland could learn
much from this model. Denmark applies a three year quota. That
would mean a quota of three years at 750 refugees per year
(2250 persons) on the basis of the current Finnish quota. By
introducing a three year quota, the yearly national and
international bureaucratic decision making could be avoided and
resources could thus be directed into planning, developing and
implementing the scheme. The system would also save
resources for planning and coordination for the UNHCR, as the
organization would know the target allocations for Finland for the
following three years.
Another way to facilitate the selection process is to do m ore
dossier based selection which is more cost effective and al so
time saving. The challenge for dossier selection is that the
information provided should be precise and up to date so that the
municipality of resettlement is able to organize adequate
reception arrangements.
Currently no cultural orientation is organized for refugees
admitted for resettlement to Finland.
According to the principle of two-way integration, refugees and
the receiving community should both be prepared prior to the
refugees arrival. The cultural orientation should preferably be
delivered in the refugees native language. Resettling municipality
staff and NGOs should be involved in the planning and
implementation. Refugee children should be pr ovided with their
own cultural orientation. It is also important that the receiving
municipality gets necessary and up dated information about the
resettled refugees special needs in order to be well prepared for
the reception. If accurate information is given to the refugees and
to the municipality prior to arrival, this will reduce the gap i n
expectations between both parties.
Additionally, in order to become orientated with what awaits them,
it is also important to inform the refugees about travel
arrangements.
Furthermore, online information should be available and secured
with a password. The online site should be interactive. Through
this website refugees waiting to be resettled can ask questions of
already resettled refugees. Through the site relevant information
may be s hared by refugees, NGO staff and v olunteers. This
online service is especially relevant for dossier cases that may
not have had the benefit of pre-departure orientation.
109

b) Status and Rights PostArrival phase
Status granted
Legal source
Aliens Act, Chapter 6, Section
106
Refugee status is granted to persons who have been admitted to

Finland under the refugee quota and have been issued with a
residence permit on t he basis of their refugee status. Finland
relies upon the UNHCRs assessment of a per sons status as a
refugee. The refugee criteria are observed during interviews on
selection trips but such interviews do not correspond to the fulllength, first instance, asylum interviews conducted with asylum
seekers in Finland.
Refugee status is also granted to quota refugees family members
if they have been recognized as being mandate refugees by the
UNHCR.
Family members admitted to Finland through family reunification
are granted refugee status if they have been i ssued with a
residence permit on the basis of family ties.
Rights granted
Legal source
Lakikotoutumisenedistmisest
30.12.2010/1386 (Act on the
Advancement of Integration)
Section 9,10, 11 and 12
Residence
The first Act on the Integration of Immigrants and Reception of

Asylum Seekers entered into force in 1999. The reform Act on
Integration entered into force 1st September 2011. The new Act
regulates issues concerning integration and reception. It also
increases governmental compensation for municipalities which
receive refugees.
Like other immigrants (including other refugees and beneficiaries of
international protection), quota refugees are eligible for the usual
integration measures under the Act. Unlike other beneficiaries of
international protection, quota refugees are, however, granted with
a municipality of residence directly upon arrival to Finland. Quota
refugees position is in this respect quite different than those
refugees who have arrived in Finland as asylum seekers. Quota
refugees have a direct access to immigrants benefits upon arrival
to Finland, whereas other refugees and benef iciaries of
international protection have in most cases stayed in temporary
accommodation in reception centres while waiting for decision on
their application. They have access to integration measures and
benefits under this Act only after being issued with a r esidence
permit and a municipality of residence.
According to the Finnish Integration Act of 2011 all immigrants
regardless of status are entitled to basic information about the
Finnish society. Refugees and ot her immigrants once granted
residence permit in Finland have the same social rights and
duties as Finnish citizens. Normally the first residence permit is
issued for one year but for resettled refugees the first residence
permit is issued for a period for 4 years. After this initial four year
period, permanent residence may be granted. Third country
nationals have the right to vote in municipal elections if they have
resided in Finland for 2 years.
Airport arrival
The refugees are received by the Red Cross upon arrival at

Helsinki international airport. The reception is coordinated by Red
Cross staff while mainly implemented by trained Red Cross
volunteers.
Info upon arrival
By municipal staff in the municipality of resettlement.
110

Developing integration program
(housing, public assistance, legal
issues,
employment
and
education, child welfare, mental
health and medical assistance,
finance assistance and social
integration
Housing
Language/Skills
Counselling
Municipal staff and NGOs. The Finnish Red Cross has been very
actively involved in advocacy both on national as local level.
If it is deemed suitable, an individual integration plan is drawn up
in cooperation with the municipality, the employment office and
the immigrant. The integration period normally lasts 3 y ears,
during which the participant is paid a so called integration
allowance. After the integration period the refugees are entitled to
the same benefits as Finnish citizens. The typical components of
the integration plan are: language courses, employment policy
actions, internships, training for working life, rehabilitation,
vocational guidance and other similar/parallel activities. Parallel
activities are organized by local and international NGOs,
Community Based Refugee Organizations, language schools and
associations etc.
Cultural orientation forms part of the integration programme.
Housing is provided by the municipalities that resettle refugees.
Service provided by local employment office.
Main component of the integration programme. Informal language
training is also provided by the Finnish Red Cross e.g. in Finnish
or Swedish language clubs organized by FRC volunteers.
Provided by social/case workers in the municipality
resettlement and through health service providers.
of
Family reunification is granted to Convention Refugees (resettled

refugees have convention status in Finland) and people with
subsidiary protection (including humanitarian protection). There
are no maintenance requirements attached.
Family reunion is granted with the following core family
members:
spouse/cohabitant/registered partner (including same sex)
unmarried minor children (aged under 18 years)
parents/guardians of an unaccompanied minor
Other family members are eligible for reunification under certain
conditions:
unmarried foster children are eligible for reunification IF
there is evidence that the childs parents or guardians
are missing or deceased and the relationship was
established before the sponsor arrived in Finland
minor siblings of unaccompanied minor IF they lived
together in their country of origin and their parents are
missing or deceased and it is in their best interest
Other family members IF refusing reunion would be
unreasonable because the family member is fully
dependent on the sponsor and they intend to continue their
close family life in Finland. In such cases, dependency must
be physical and emotional, as well as financial.
The Finnish government pays the travel costs for the family
members of resettled refugees.
Training of local providers
Training falls within the competence of the relevant ministries:

Ministry of the Interior, Ministry of Employment and the Economy
and the Finnish Immigration Services in cooperation with the
Centre for Economic Development, Transport and the
Environment (The Centres for Economic Development, Transport
and the Environment manage the regional implementation and
development tasks of the state administration). Ministry of Social
Affairs and Health supervises the local governments promotion of
the welfare of their inhabitants and s ustainable development.
111
Mentoring
Training is also organized by NGOs and associations such as: the

Finnish Refugee Council, the Family Federation of Finland, the
Finnish Red Cross, and the Finnish Association for Mental Health.
Advice of Accessing Services
The Family Federation of Finland WOMENTO-project started in

January 2011 aims to advance the integration of educated
immigrant women into Finnish society through a mentoring
system. The main focus is in facilitating the entry of immigrant
women into social networks and working life through personal
mentoring by a Finnish volunteer woman. WOMENTO is built on
the mentoring concept of the KVINFO organization in Denmark.
WOMENTO encompasses 18 m entor-mentee couples in the
beginning of 2012. Funding: SITRA and Finlands Slot Machine
Association RAY.
Refugees contribution to
integration
Volunteer support
Advice is provided by local authorities, on internet and by NGOs.

Refugees CBOs need much reinforcement when providing
integration support services. Refugees CBOs can be either paid
service providers or act on a v oluntary basis. There are several
models for voluntary participation. Voluntary actions may also
lead to job opportunities. Since many refugee communities have
lived long enough in Finland, and i ntegrated well, it is a good
moment to involve them in the reception and integration of
newcomers.
Volunteer support is provided by different NGOs and
associations. An example is the Family Federation of Finland.
That organisation has implemented a 3-year project called
Vertaistukea Pakolaisille (Peer Support for Refugees) of which
the objective was to promote integration both individual and
family based for refugees and persons granted international
protection. The project created a pe er support model for first
phase reception which may be u sed as a component in the
municipalities integration programme and also implemented in
refugees CBOs. The objective of the OVI-project (DOORproject) of the Finnish Association for Mental Health was to
strengthen the operational qualifications of the participating
refugees CBO project partners and their know-how of mental
health issues.
The Finnish Red Cross carried out a one-year (2011) pilot project
called Red Cross Volunteers Role in the Reception of Refugees
for Resettlement in which the volunteers capacity to provide
support on local level to newly arrived refugees was
strengthened through intensified cooperation and s upport from
the staff of the FRC HQs Refugee Team.
Comments
112
The framework for the Finnish Integration Act is based on t he

idea that integration is a comprehensive, two-way process which
involves learning and adaptability both on the part of the
immigrants and also the local population. Finnish experts on
integration have nevertheless expressed worries that the gap
between objectives and implementation of the Act, adopted in
2009, may widen due to the fact that it targets all immigrants. This
includes those who arrived in Finland for work and through
marriage if they are in need of integration support. The policy is
comprehensive and stresses equality and thus all services should
be equally accessible for all immigrants regardless of their status.
However, the objectives may be di fficult to accomplish if, at the
same time, the necessary financial resources are not allocated.
This is especially true concerning language courses since
language skills are crucial for successful integration. In particular,
many small municipalities may have difficulties in implementing

the law due to insufficient financial resources. This fact will put
immigrants in unequal positions since the availability of services
may depend on where the person resides and who is the service
provider. The service provider is selected through a t ender
process. This may result in lost confidence towards the
governments integration policy both by immigrants themselves
and the local population. There is a d anger that policy might be
blamed for failures which are down to deficient implementation.
Training for public sector staff on the local level is needed
especially when a m unicipality is starting resettlement. The
local actors need ex tensive training to improve, adapt and
increase structures that are necessary to meet the challenges
of a m ulticultural society. It is important that service providers
adapt their services and pr actices so that the services meet
the needs of the refugees, and work well also for refugees and
other migrants.
It is also important to allocate resources for awareness raising
and advocacy at a local level.
Close cooperation on local level between authorities, NGOs and
refugees CBOs will bring additional resources and be of benefit
to all parties and the refugees.
Funding
National Level
Governments contribution to
municipalities
Most of the costs involved in resettlement are shouldered by the

municipalities that receive the quota refugees. The state covers
some of the expenses accruing to the municipalities. There is no
separate monitoring of expenses relating to quota refugees only
(they are grouped together with other expenses relating to
beneficiaries of international protection). An estimated calculation
is that for the annual refugee quota of 750 persons the
compensation to the municipalities is approximately 2.4 million
per year. The compensation for quota refugees is paid during the
first four years. For other beneficiaries of international protection,
the compensation period is three years.
The state covers certain specific expenses relating to the
integration of quota refugees (e.g. interpretation expenses, certain
medical costs). A fixed sum of 700 e uro/person is directed to the
so-called initial mapping of the immigrants needs and skills.
Local Level
The contribution Finland currently receives from the European

Refugee Fund is directed to the HAAPA project. The project
grants a specific financial incentive to municipalities that receive
emergency cases (approximately 100 persons in the annual
refugee quota). The amount of the incentive is 50 % of the usual
fixed compensation for refugees. The amount of this financial
incentive paid to the municipalities in 2009-2011 was 76,596 . 19
The compensation paid to the municipalities from the state
budget is in the form of 1) fixed compensation and 2)
compensation of specific expenses accrued. These forms of
compensation are paid to the receiving municipalities for all types
of beneficiaries of international protection.
The computational annual contribution of the government to
municipalities for resettlement is 2, 091 for refugees over 7
years, and 6, 845 for children under 7 years.
19
Financial information obtained through email correspondence with Tiina Pesonen, Senior Advisor, Ministry of the
Interior; Kari Kananen, Special Expert, Ministry of the Interior and Kristina Stenman, Immigration Director, Ministry of
Employment and the Economy.
113
ERF
Costs
Comments
For every quota refugee received, European Refugee Fund ERF

pays Finland 4000 euros.
The travel expenses of the quota refugees to Finland are covered
by a s pecific budget allocated to the Immigration Service. The
estimated need is 915,000 per year. In 2011, the total sum came
to 709,000. The expenses associated with these missions are
taken from the budgets of the authorities participating to the trips. 20
Finland has a l ong-established and well-functioning tradition in
the resettlement of refugees. Notwithstanding some recent
changes in the political situation and a rise in xenophobia, there is
a wide consensus on the continuation of refugee resettlement
among all political groups. However, the capacity of the refugee
quota is not likely to increase from the annual amount of 750
persons in the near future. This is mainly because the capacity of
municipalities to receive quota refugees is very limited.
A constant challenge for Finland is in even reaching the annual
quota which it has set for itself.
Finland is currently trying to address the issues which have
prevented it from filling its quota in the past by increasing
flexibility in its own procedures and in its cooperation with the
UNHCR. The Government is also trying to create more incentives
for the municipalities to receive refugees.
20
Email correspondence with Kari Kananen, Special Expert, Ministry of the Interior.
114


France
Report written by
Janine Silga (EUI)

Matthieu Tardis (ECRE)
July, 2013

115
KNOW RESET Country Profile: France
Country Profile: FRANCE

France is traditionally a country of immigration. After the Second World War, it received a great number of
both foreign workers and refugees.
The economic crisis of the early 1970s resulted in increasingly restrictive immigration policies. There was
an attempt to stop economic immigration, while simultaneously integrating immigrants and their families who
were already present on t he French territory. This meant that the only immigration flows that were allowed
was with regard family members of immigrants for settlement purposes and refugees. This indirectly led to a
higher rate of irregular immigration. Immigration subsequently became a key issue of any political debate with
two main topics particularly attracting public opinions attention: integration of immigrants and their offspring as
well as irregular immigration. The rise of the right wing party Front National contributed to highlighting the
most controversial aspects of the debate over immigration to France.
In the mid-2000s, public discourse slowly changed. The issue of the integration of soothe -called second
generation immigrants becoming increasingly sensitive (the December 2005 riots being its climax), the
doctrine of chosen immigration vs imposed immigration emerged 1. According to this doctrine instilled by
former President Sarkozy, the socio-economic integration of second-generation immigrants arrived through
family immigration had been a failure, while France was not attracting enough professional immigration, seen
as desirable in the context of worldwide competition to attract brains. In other words, the intention to lower
immigration flows on t he basis of family immigration, while promoting professional immigration. In such a
background, bogus asylum seekers supposedly abusing the asylum system were also under focus. This led
to the signature of several international agreements with main countries of origin of immigrants to France.
Such agreements intended to exchange labour immigration as well as development aid for more cooperation
of countries of origin to support Frances policy against irregular immigration.
The French immigration and asylum system is ruled by the Code on the Entry and Stay of Aliens and
Asylum - Code dentre et de sjour des trangers et du droit dasile (CESEDA). Asylum is dealt with in
Chapter VII of CESEDA (Livre VII) which was last modified by Law n2011-672 of 16 J une 2011 on
immigration, integration and nationality. 2 Refugee resettlement is not provided for by the CESEDA.
France has participated in major multilateral resettlement operations during the second half of the XXth
century, such as the resettlement of Hungarians in 1956, of Southern Asian boat people in the late 1970s
and Kosovars in 1999.
France started a resettlement programme in February 2008 when the government adopted a framework
agreement with the UNHCR. In June of the same year, France decided to engage in an ad hoc
resettlement scheme for Iraqi refugees. While Irak 500 was not a resettlement programme as such since
half of the Iraqis came directly from Iraq, it was dealt with by the same stakeholders and in the same
circumstances as a resettlement programme. The Joint EU Call to resettle 10,000 refugees from Iraq,
which was adopted by the Justice and Home Affairs Council on 2 7-28 November 2008, came under the
French Presidency of the Council.
Nevertheless, the lack of interest of the French authorities for resettlement has been remarkable. French
authorities are not actively participating in European and international meetings on resettlement, including
ATCR (Annual Tripartite Consultations on Resettlement) in Geneva and the IOM-UNHCR-ICMC project on
the promotion of practical cooperation; France stopped relocating refugees from Malta in 2011, and refused
to resettle refugees stuck in the Choucha camp in Tunisia. Although the resettlement quota remains the
same 3, the rejection rate is extremely high. Besides, the asylum service of the Ministry of Internal Affairs did
On the doctrine of chosen immigration, see Dominique Turpin, La loi no. 2006-911 du 24 j uillet 2006 relative
limmigration et lintgration: choisir pour ne plus subir? Revue critique de droit international priv, 2007, p. 1-34.
NOR: IOCK1003689L, Official Journal of the French Republic n. 0139 of 17 June 2011, p. 10290.
According to the framework agreement between France and UNHCR, France committed to assess a hundred files per
year, corresponding to about 300 persons.
116

not convene the working group on resettlement 4 between May 2010 and February 2013, when the Ministry
eventually brought its members together. A number of commitments were made on this occasion to
improve the resettlement process and the reception of resettled persons.
Refugee rights activists in France do not have a united position as to resettlement, which explains why
only France Terre DAsile (FTDA) and Forum Rfugis are involved in the reception of resettled refugees.
Several NGOs working for the promotion of immigrants rights do not participate in such operations on the
grounds that they would degrade refugee law 5 and might constitute a t ool for externalising Frances
immigration policy by creating a double process of refugee selection 6.
This working group used to meet every three months to discuss about the difficulties and to find solutions. UNHCR,
IOM, the French Office of Immigration and Integration, OFPRA, the Ministry of Foreign Affairs, France terre dasile
and Forum rfugis were part of this group.
See for instance, Gisti position on resettlement in a note published in November 2005
(http://www.gisti.org/IMG/pdf/nt_reinstallation-des-refugies_2005_en.pdf) further developed by Claire Rodier during a
conference on resettlement organized by Forum rfugis and CCME in December 2009.
Interview of Matthieu Tardis with Claire Rodier. On the position of GISTI, see especially: La rinstallation des rfugis,
instrument europen de lexternalisation des procdures dasile, Note de travail, November 2005, available at:
http://www.gisti.org/IMG/pdf/nt_reinstallation-des-refugies_2005.pdf
117
Asylum Profile
status granted 7
10,702 (2011)
10,340 (2010)
40,464 (2011)
36,931 (2010)
Resettlement Scheme
Ad hoc and Programme-Based (since 2008)
Resettlement Quota
100 files/year

Code dentre et de sjour
des trangers et du droit
dasile (CESEDA) created by
ordonnance n2004-1248 of
24 November 2004
Last modified by: Law n
2011-672 of 16 June 2011 on
immigration, integration and
nationality
Although there is no legal provision on resettlement, it is partially ruled

by Livre VII on asylum, especially regarding reception, procedure and
rights awarded after resettlement.
OFPRA (Office for Protection of Refugees and Stateless Persons) is
the only authority authorised to grant international protection and this
can only be done in French territory.

Framework Agreement
between the Government of
the French Republic and
the UNHCR, signed in Paris
on 4 February 2008
Article 5 Refugee resettlement programme

5.1 On the basis of the files presented by the UNHCR and transmitted
to the French Representation to the United Nations in Geneva, the
French Republic will examine the files of the refugees whose
resettlement on the French territory is considered.
5.2 The persons whose files will be presented to French authorities will
have to fulfil eligibility criteria according to the strict mandate of the
UNHCR and the French legislation relating to the determination of
the refugee status.
5.3 In the framework of strategic priorities of France, the UNHCR will
present roughly one hundred files each year.
project/reform
No foreseeable project or reform.

Immigration directe
1947-1948
Agreement (concluded in June 1947 and supplemented by another

agreement of 13 January 1948) between the French government and
the International Refugee Organisation (IRO) Essentially based on
working capacity of post-war European displaced refugees.
These figures include: Asylum seekers in their first requests, Appeals upon first request and ac companying minors.
Report 2010: http://www.ofpra.gouv.fr/documents/RA_2010_Ofpra.pdf - Relevant data: Annexes, from pp. 71-72.
Ibid.
118

- Plan culture famille 1948
Two agreements of the 9th of August and the 16th of November 1948:
About 1,000 Central European families resettled in French rural areas.
- 1956
Hungarian crisis prima facie refugees: 12,690 Hungarian protesters

against the Soviet invasion.
- 1974-1984
Southern Asian boat people were resettled in France on the basis of

annual resettlement quotas. This led to the resettlement of
approximately 107,500 Asian refugees in France
- From April to July 1999
About 8,000 Kosovar refugees.
- Iraq 500: From 2008
This operation was called Iraq 500, because it was originally conceived
for the reception of about 500 Iraqi nationals. The refugees either directly
came from Iraq or were Iraqi refugees from neighbouring countries (Syria
and Jordan): 1,215 people were covered under this programme.
Although it shares several characteristics with stricto sensu resettlement,
Iraq 500 was not originally conceived to become a resettlement
operation. Indeed, about half of the people selected came directly from
Iraq and, consequently, were not already qualified for refugee status.
Annual Programme 2008
About a 100 files to be submitted by UNHCR
About a 100 files

About a 100 files

c) Temporary
Resettlement:
About a 100 files

n/a

Governmental Level
France did not participate in the activities of the UNHCR-IOM-ICMC

project on pr actical cooperation although the asylum service signed a
partnership declaration.
n/a
experience
From Guantanamo
In 2009, two former prisoners from Guantanamo were authorised to

come and live in France: Lakhdar Boumedienne and Saber Lahmer. A
third one, Nabil Hadjarab was turned down 10.
Intra-EU Relocation
France implemented the EU relocation programme in 2009 an d 2010.

190 beneficiaries of international protection arrived from Malta.
In 2009, 95 refugees were relocated to France (77 adults + 18
children) 11.
The nationalities represented were 12:
Country of Origin: Somalia (57), Eritrea (18), Sudan (8), Iraq (4),
Ethiopia (3), Sri Lanka (3), Ivory Coast (2)
Ministry of Home Affairs, Interview of 3 April 2012
10
http://www.andyworthington.co.uk/2010/09/10/france-turns-down-guantanamo-prisoner-nabil-hadjarabs-appeal-for-asylum/
11
French Office for Immigration and Integration (OFII) Activity Report, 2010, 8th Official Report, p. 122
12
Rapport au Parlement, Les orientations de la Politique de limmigration et de lintgration, 6th Official Report drafted in
accordance with Article L.111- 10 of CESEDA, December 2009, p. 144
119

In 2010, 95 refugees were relocated to France (73 adults + 22
children) 13.
The represented nationalities were 14:
Country of Origin: Somalia (66), Eritrea (13), Sudan (11), Iraq (3),
Liberia (1), Morocco (1)
19,2% were women 15
France stopped relocation in 2011.

2011
2010
The annual programmes are not achieved during the civil year. Early 2012,
all refugees selected under the 2010 programme were still not in France.
333 persons submitted by UNHCR (100 dossiers). Dossiers were
still under determination.
150 refugees 17 selected out of 253 refugees (100 files submitted by
UNHCR).
2009
Annual Programme 2009 18

151 refugees selected out of 273 r efugees (100 files submitted by
UNHCR): 52% of files accepted
32 files from Near East countries (61,5% of accepted files):
76 refugees (26 files): Palestinian refugees
8 refugees (4 files): Iraqis
3 refugees (2 files): Iranians from Turkey
17 files from African countries (33% of accepted files)
Ethiopia (7 files): 23 refugees
Rwanda (2 files): 8 refugees
Democratic Republic of Congo (6 files): 11 refugees
Burundi (1 file): 4 refugees
Ivory Coast (1 file): 4 refugees
2 files from Asia:
Afghan refugees living in Iran (1 file): 6 refugees
Chinese women refugees in Kyrgyzstan (1 file): 2 refugees
1 file from Europe:
Chechens living in Azerbaijan (1 file): 5 refugees
13
OFII Activity Report, 2010, op.cit., p. 123
14
Ibid, p. 123
15
Office Franais de Protection des Rfugis et Apatrides (OFPRA) Activity Report, 2010, p. 19
16
Statistics published by the Ministry of Interior Affairs in December 2011, in Secrtariat gnral du c omit
interministriel de contrle de limmigration, rapport au parlement, les orientations de la politique de limmigration et
de lintgration, dcembre 2011, pp. 120-124. See also France terre dasile, le bilan contrast du pr ogramme de
rinstallation franais, la lettre de lobservatoire de lasile et de lintgration, n 48, octobre 2011.
17
Figures provided during a seminar organised by France terre dasile in June 2011 about resettlement. For more
information, please read, France terre dasile, le bilan contrast du programme de rinstallation franais, la lettre de
lobservatoire de lasile et de lintgration, n 48, octobre 2011.
18

120

Annual Programme 2008 19
2008
239 refugees selected out of 347 refugees (99 files submitted by

UNHCR): 64% of files accepted.
On 20 November 2009, 211 people had reached France, the main
nationalities represented being the following: Russia (83 people),
Palestine (40 people), Iran (24 people), Afghanistan (14 people),
Ethiopia (12 people) and Sri Lanka (10 people). 20
2008 2011
Ad hoc resettlement Iraq 500 From 2008

1,094
Initially set for 500 I raqi refugees, the number of people supposed to
benefit from resettlement to France has been set to 1,215 (in December
2008 France agreed to take in 200 Christians from Mossoul). 21
2010
Out of these 1,215 people, 1,064 are Christians and 135 are Muslims.
On December 2010, 1,002 refugees had arrived in France: 502 from
Iraq, 150 from Jordan, 297 from Syria, 34 f rom Lebanon, 14 from
Turkey and 5 from Tunisia.
In addition, following the attack on October 31, 2010 at the Church
of Our Lady of Hi-Baghdad, it was decided to host the national territory
of persons whose situations are all related to the attack: the wounded
and their carers as well as those selected on the basis of criteria for
family reunification. To date, 92 people have already been received as
part of this operation.

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Additional National
Criteria
Annual Programme
UNHCR criteria and French legislation relating to the determination
of refugee status
Ad Hoc Programme - Iraq 500
The prerequisite to their selection is that they had to belong to a
religious minority (especially Christian) and have a link with France
(either through family ties or knowledge of French by at least one
family member). At the time of their selection, they had to reside either
in Iraq or in a neighbouring country: Jordan, Syria, Lebanon or Turkey.
19
Rapport au Parlement, Les orientations de la Politique de limmigration et de lintgration, 8th Official Report drafted in
accordance with Article L.111- 10 of CESEDA, December 2011, p. 121
20
La rinstallation des rfugis, Etat des lieux 2009 (Forum rfugis), pp. 106-108
21

121

Selection Process
Deploying Staff
n/a

The asylum service of the Ministry on Interior Affairs. The asylum

service can ask for an opinion from the Ministry of Foreign Affairs
and/or OFPRA. The French Ministry now has a person in place
dedicated to resettlement.
Dossiers
Annual Programme
According to the framework agreement, UNHCR and t he French
authorities have a bi lateral meeting every year to discuss opinions on
UNHCR and governmental activities. The asylum service of the Ministry
of Internal Affairs is taking the decision on t he cases. The Ministry of
Foreign Affairs and OFPRA are possibly consulted for advice by the
asylum service. There is no collaboration with regional and local
authorities when it comes to the decision. Every year, the asylum
service is sending French priorities to the UNHCR. NGOs and other
stakeholders are not officially informed of the priorities.
The framework agreement signed in February 2008 set up the
annual quota for France. According to Article 5, the UNHCR submits a
hundred cases every year. The rate of rejected dossiers submitted by
the UNHCR to France in the framework of the annual programme is
very high. France refuses around one file out of two. Motives are
unclear, security concerns have been evoked.
Missions
Ad Hoc Programme - Iraq 500

The terms of the arrival of Iraqis in France have been set out in a
Convention between the French Office for Immigration and Integration
(OFII) and the IOM signed on 4 June 2008. 22 An administrative note
(circulaire) was issued on 10 J une 2008 23 on the reception of Iraqi
refugees in France.
According to this note two hypotheses were considered:
Resettlement could take place either upon the

recommendation of the UNHCR, following a procedure
much similar to the one provided for under the 2008
Framework Agreement.
Resettlement could also take place following a special

procedure according to which the Association dEntraide aux
Minorits dOrient (created in January 2008) was in charge of
recommending files to the French authority. This latter
procedure specified that refugees whose files were accepted
would be granted a short stay visa (Visa C) and would have
the option to either apply for asylum at the OFPRA or to be
delivered a one-year residence permit (vie prive et familiale).
Finally, some files were spontaneously sent by some Iraqi

family members already living in France. 24
Following their submission, all resettlement files were sent to the

Ministry of Home Affairs, which carried out some safety checks on the
persons whose files are under examination. If the files were selected,
the asylum direction of the Ministry of Home Affairs subsequently gave
its instruction to deliver visas to those whose files were chosen. 25
22
Ibid.
23
NOR/IMI/A/08/00028/C
24
Quel avenir pour les rfugis irakiens en France ? op.cit., p. 21
25
Ibid, p. 21-22.
122

Under OFII request, IOM can provide CO sessions for groups of 14

people being resettled to France on t he topics listed here: the trip to
France; administrative procedures upon arrival in France, reception
condition (accommodation, rights, access to healthcare, education),
integration in France (finding a job, learning French), life in France. This
has never happened except for Iraqis and E U relocations. Since
December 2008, half a day session of CO was organised before
departure to prepare the beneficiaries for life in France. In April 2009,
around ten such sessions were given in Damascus and Amman for a
minimum of ten people. When such activities cannot be organised (for
safety reasons like in Iraq), the IOM distributed an information package,
of which the Information Leaflet for People Resettled in France. 28
An information leaflet for persons being resettled to France has been
conceived by Forum Rfugis. Yet, it has not been s ystematically
distributed to beneficiaries before departure. A new edition of the leaflet
has been on the agenda of the Asylum Service for 2 y ears. It is
currently preparing a leaflet presenting what refugees can expect when
they arrive in France (accomodation, assistance, etc).

documents 26
Through its network of offices, IOM facilitate logistical arrangements

(temporary accommodation, booking, ticketing, transportation to the
airport, etc.) if so requested by OFII.
In coordination with UNHCR and local partners, IOM collects from
the competent authorities the required travel documents (exit permits,
grants of asylum and/or the entry visas for France) and verifies the
authenticity of the identity particulars of the persons concerned. To rule
out any dishonesty, the travel documents are delivered to the interested
parties at the time of departure generally at the international airport
after a final identity check has been made.
IOM staff assists the persons during immigration and c ustoms
procedures and helps them with boarding. It can also provide special
assistance (medical or non-medical assistance, help with clothing).
Medical screening 27
At the request of OFII, IOM may furnish the following:

any relevant and useful information regarding the health
situation in the area of departure, including recommendations
as to any vaccinations that are needed before departure;
a health assessment of the persons concerned, including a
medical history registration form and a physical examination, as
well as clinical examinations (e.g. X-rays and blood tests);
pre-departure vaccination and/or treatment of the beneficiaries
for infections such as malaria and intestinal parasites.
OFII and IOM jointly assess the health of the persons to be resettled
to France and any treatment that may be needed (including required
vaccinations). The stipulated and accepted requirements as well as
their cost will be set out in writing.
Procedure Timing
n/a
26
Information provided by IOM.
27
Ibid.
28
http://www.iom.int/france/pdf/Livret%20reinstallation%20fr.pdf
123

Comments
Recommendations:
- Refugees should be better informed of the reception conditions and
life in France as to lower down unrealistic expectations. The
information leaflet has to be improved, particularly on housing and
employment issues. A video tool might be a better tool for
dissemination of information.
Distributing a leaflet and a one-day CO have proven not to be
enough. Refugees waiting for transfer to France could easily benefit
the integration training system put in place for applicants for family
reunification. France currently offers basic French classes and
information about republican principles in more than 30 c ountries.
This training usually takes place in the premises of the Alliance
Franaise or by OFII representations abroad. They could easily be
of benefit to resettled refugees without causing high costs.
- The selection procedure is not appropriate for the following reasons:
The procedure is too lengthy. The asylum service is under
resourced and the Ministry of Foreign Affairs consultation
delays the decision.
The rejection rate is too high. The number of selected
refugees could be higher.
If the means are available and notwithstanding emergency
cases, French authorities could conduct selection missions
in the countries of first asylum. The selection missions
should include a representative of OFPRA in order to fasten
the administrative process in France and, eventually a
representative of NGOs that will be in charge of reception
and integration. If no selection mission is organised, OFPRA
should be involved in the selection process in order to avoid
conducting the asylum phase in France.

Post-Arrival phase
Status granted
Administrative instruction
(circulaire) of 10 June 2008 29
- Iraq 500
The procedure for the reception of Iraqis has been settled in an
inter-ministerial meeting on the 23rd of November 2007. It has been
decided that the selected Iraqis will not automatically be granted
refugee status, but immigration status. However, this did not prevent
them from requesting such status at their arrival in France under the
common procedure.
Initially, some selected Iraqis received a visa D, long-term visa
granted in the case of protection transfers (when the UNHCR under a
strict mandate recognises individually a refugee). Other received a visa
C short term visa granted in the case of asylum seeking. Following the
visit of an official from the French Ministry of Immigration (now the
Ministry of Home Affairs) to the UNCHR offices in Jordan and Syria, it
was found out that those Iraqis arriving with a visa D did not benefit
from protection under the UNHCRs strict mandate, but were granted
such protection prima facie. Since, France does not recognise prima
facie protection, it was decided that all Iraqis would first be gr anted a
visa C and once they arrived they would lodge a r equest to be
recognised as refugees by OFPRA. Those recognised as refugees
would be given the ten-year residence permit, while others would be
given subsidiary protection and accordingly, were delivered a one-year
residences permit. As for those who were recognised as neither
29
NOR/IMI/A/08/00028/C
124

refugees nor beneficiaries of subsidiary protection, they would be given
an ordinary one-year residence permit, for the reason of the obligations
France holds towards them. 30
- Annual Programme
CESEDA
Refugees arriving under the procedure of the Annual Programme

are bound to be granted refugee status.
Before their arrival, they are granted a so-called Visa D long-term visa.
Upon their arrival, they are delivered a six month temporary leave to
remain (rcpiss), giving them right to work and other related social
rights such as the Active Solidarity Income (RSA) 31 (Article L262-4 2 a
of Code de laction sociale et des familles). Besides, they receive
financial support while waiting for the OFPRA decision just as other
asylum seekers 32. Their being granted such benefits depends on their
being hosted in specific housing facilities for asylum seekers (CADA) 33.
Moreover, they receive global medical coverage 34.
They have to file an application to be granted the refugee status with
the OFPRA within 21 days after their arrival, just as other asylum
seekers.
They are interviewed.
Although they follow the same procedure, resettled refugees are
automatically granted refugee status. The process to be granted asylum
can last several months. 35
Rights granted
Legal basis
CESEDA
Residence
Airport Arrival
Resettled refugees are granted a permanent residence permit (ten year

residence permit).
The OIM meets the beneficiaries at the international area of the airport
and accompanies them to the exit and/or to the TGV station if the final
destination is not Paris. The OIM also organizes the local transport to
the designed reception centre for groups of more than 10 persons.
If resettled refugees arrive at an airport in Paris, they are received by
FTDA staff that are responsible for transportation to the transit centre in
Crteil, located in the Paris region, and managed by FTDA. Some of
them might be redirected to the transit centre of Villeurbanne (Lyon
region), managed by Forum Rfugis.
If resettled persons have to be t ransferred to the transit centre in
Villeurbanne (Lyon region), refugees are escorted to Gare de Lyon
train station in Paris and they are taken care of by the staff of Forum
Rfugis on their arrival at the station in Lyon.
Info upon arrival
30
31
32
33
Nothing is foreseen in this respect. However, staff of the transit centre in

Crteil informs refugees about the procedure and their rights and duties.
Interview with Matthieu Tardis, 2012. For full details, read Quel avenir pour les rfugis irakiens en France ? Une
analyse des perspectives dintgration des bnficiaires de lopration spciale daccueil, Une tude de
lObservatoire de lintgration des rfugis, France Terre dAsile, February 2010, pp. 22-23.
Revenu de solidarit active
Allocation Temporaire dAttente (see Article L5423-8 1 of Code du Travail) and Allocation mensuelle de subsistance
(see Article R.348-4 II of Code de lAction Sociale et des Familles)
Centre daccueil pour demandeurs dasile
34
Couverture maladie universelle, article L 380-1, 3 of Code de la Scurit Sociale
35
Interview with Matthieu Tardis, op.cit.

125
n/a
Developing Integration
Programme (Housing, health,
education)
Resettled refugees are entitled to the same rights as nationals except

electoral rights and access to employment in the civil service. More
particularly, they are entitled to social rights such as a minimum
subsistence income (RSA), free health care (CMU) and access to social
housing. Moreover, like any other newcomers, resettled refugees have
access to the reception and integration contract (CAI), managed by
OFII, that offers civic training, assessment of the professional
qualifications and l anguage classes. They are benefiting from social
and legal assistance in the reception centres.
Resettled refugees can benefit from integration projects run by
NGOs and are assisted for about one year. Three specific projects are
put in place for resettled refuges with the support of ERF.
Resettled refugees have access to a civic training delivered in the

framework of CAI.
Counselling
Counselling is generally provided by NGOs managing reception centres

and integration projects.
However, refugees have access to all social services in the same
conditions as nationals.
Language/Skills training
Resettled refugees have access to French classes (up to 400h)

delivered in the framework of CAI.
French classes are usually provided in reception centres on a
voluntary basis.
Employment
Resettled refugees have access to a s kill assessment delivered in the

framework of CAI.
Reception centres, social workers and specific integration projects
provide workshop and assistance on employment.
Refugees have the right to family reunification in the same conditions as

nationals provided the family links can be established.
Resettled refugees have access to training on social services delivered

in the framework of CAI.
Mentoring
No

providers
No
Volunteer support
No
Housing
Resettled refugees are first accommodated in the Crteil transit centre

run by FTDA or in Villeurbanne transit centre run by Forum Rfugis.
Since September 2011, after a few days in transit centre, resettled
refugees should benefit from direct placement in an apartment for a year.
As a result of the lack of social housing available in France, FTDA,
Forum Rfugis and Adoma offer housing solutions for resettled refugees.
For instance, FTDAs network for the integration of resettled
refugees can offer 80 places for a year in the Paris area and in Niort
(Deux-Svres). Social workers offer individual administrative and social
assistance, including workshops on housing and employment. The
project is funded by the ERF and the Ministry of Interior Affairs.
126

NGOs are asked to send their foreseen housing availabilities to
OFII who informs the asylum service who then asks the Foreign Affairs
to deliver the visa to selected refugees in the country of first asylum.
Comments
Recommendations for a better resettlement programme are the

following:
Transfer of information to organisations in charge of the reception

of refugees: providing early information about the profiles of
resettled refugees to the stakeholders involved in the reception
and assistance is necessary to forestall needs, particularly medical
needs and to offer better services. This would allow the process to
begin for gaining access to social rights and to find a more
permanent accommodation.
Specific reception conditions: accommodation in reception centres

for asylum seekers and the successive housing solutions have
proven not to be a relevant option for resettled refugees. Direct
placement in housing that lasts longer such as the project run by
the FTDA should be prioritised.
Social assistance tailored to the specific needs of resettled

refugees: resettled refugees have specific needs related to their
living conditions in the first country of asylum and they have to face
a quick paced integration process in France. Social assistance
should take these needs into consideration and seek for the
empowerment of refugees.
Quick access to the reception and i ntegration contract: access to

the integration programme is postponed until formal recognition of
the refugee status by OFPRA. It could be easily offered to sign this
contract and the trainings as soon as the refugees arrive in France.
This has already been done in the framework of the EU relocation
scheme.
More involvement of local authorities can better foster integration in

the local community.
Evaluation of the outcome of resettlement by a qualitative survey of

the integration of refugees.
Strengthening the cooperation among national stakeholders: the

working group meetings should convene regularly.
France should increase its participation in the European and

international dialogue on resettlement. For instance, French
authorities should be more active in practical cooperation in
Europe.
It is to be noted that French authorities made a number of

commitments during the Working Group on Resettlement which was
convened by in February 2013, such as the following:
Resettled refugees will be able to have access to the integration

programme without having to wait for the refugee status. They will
be able to sign the reception and integration contract upon arrival.
OFPRA will not systematically interview the refugees before

granting refugee status.
There are now other stakeholders, in addition to FTDA, Forum

Rfugis and Adoma, which provide places to resettled refugees (e.g.
in Besanon and Pau).
127

Funding
National Level
ERF
France is already applying for the dedicated funds available under the
ERF 36. However, there is no information on ho w this money is used
bearing in mind that vulnerable refugees do not benefit extra-services.
The integration projects mentioned above could not exist without the
financial support of the ERF (national actions).
The authorities are co-financing with the ERF the reception and
integration projects run by FTDA, Forum rfugis and Adoma.
Costs
Comments
Projected contribution 2009: 680, 000 euros

(4,000 euros per person for 170 persons) 37
Projected contribution 2010: 272, 000 euros

(4,000 euros per persons for 68 persons) 38
n/a
There does not seem to be any political willingness to further increase
resettlement capacity in France for the time being. An important reason
for this reluctance consists in the high number of asylum seekers and
refugees in France. According to Frances official position, the Annual
Programme was created to honour Frances tradition of receiving
refugees. Although this creation substantially improved the previous
situation making it more predictable, such a programme remains limited
in its scope and still does not match current resettlement needs
worldwide. 39
Frances involvement in resettlement remains quite low in
comparison to other EU Member States.
36
Moreover, 90 % of the EU relocation programme was funded by ERF.
37
ERF Annual Programme 2009 (France) pp. 11-14
38
ERF Annual Programme 2010 (France) p. 17-19
39
Ministry of Home Affairs, Interview of 3 April 2012.

128



Germany
Report written by
Manuela Scharf (EUI)

Margarete Misselwitz (ECRE)
July, 2013

129
KNOW RESET Country Profile: Germany
Country Profile: GERMANY

Following the Second World War, the right to asylum was established in the Constitution from 1949. The
number of applicants was low until 1968. Most applicants were refugees from the Eastern Bloc and were
granted refugee status.
After deciding in 1973 t o end t he recruitment of foreign workers, Germany received 3 m illion new
immigrants, most of them ethnic Germans from Eastern Europe, Turkey and Italy. At that time German
society considered its immigrants to be temporary by hoping that they would leave the country once their
labour was no longer needed. Recruitment stopped in 1973, but immigration did not stop. However, the
nature of the immigration did change 1. The foreign workers, mainly from Turkey and Italy, did not go back to
their home countries, but brought their families to Germany with the intention of remaining in Germany.
Integration problems arose and became clearer with economic recessions. The so called Gastarbeiter and
their families had m ainly come from less educated and q ualified social backgrounds and had l imited
German language skills.
A new period began in the late 1980s, when immigration again increased rapidly. Apart from on-going
family reunifications, the number of ethnic Germans coming from Eastern Europe rose sharply after 1989
as did the number of asylum seekers 2. In spite of numerous legislative changes in asylum procedure during
the previous ten years, all of which attempted to expedite asylum procedures in cases of manifestly
unfounded or abusive asylum claims, the number of asylum seekers continued to climb and r eached
440,000 in 1992. Moreover Germany received approximately 100,000 de f acto refugees from the former
Yugoslavia. Germany admitted almost 70 per cent of all asylum seekers registered in the European
Community in 1992 3.
So, as highlighted above, before 1993, the German Constitution guaranteed an absolute right to asylum.
Faced with mounting immigration pressures, the major political parties of Germany reached a compromise
in December 1992. The compromise set out that the Constitution would maintain the individual right to
asylum but that an A mendment would restrict manifestly unfounded asylum applications and asylum
seekers entering from safe third countries. The amendment of the German Constitution marked a change in
German asylum policy. The change has been highly successful in stemming the burgeoning immigration
into Germany. From 1993 onwards it was impossible for an immigrant to obtain asylum if he entered from a
country of origin that was considered to be safe.
The large number of asylum seekers decreased rapidly after the constitutional and legal reforms of
1993. Reform of the asylum regime was undertaken in an environment characterised by frustration about
the economic burden of reunification and a very high level of unemployment. 4 Since then discussions about
asylum have decreased in importance but at the same time a general debate on i mmigration started.
Recognising the necessity of immigration for economic reasons due to changes in demography and after
much wrangling with the opposition, the German government drew up a new immigration law. That law
came into force on the 1st of January 2005.
The new immigration law, focused on defining immigration, the integration of aliens in Germany and
refugee protection. The new law potentially widens the scope of refugee protection by recognizing that
victims of non-state and gender specific persecution fall within the protection scope of the Geneva
Convention 1951. The latter and other important changes were considered as important developments 5.
After a decline in the numbers of asylum seekers from 1995 until a resurgence in 2008, Germany has
continually reduced the number of people granted entry into the country.
Johannes von Stritzky, (2009), Germany s immigration policy: from Refusal to Reluctance, ARI 93/2009, 3/06/2009.
Ibid.
4
5
Kay Hailbronner, (1994), Asylum law reform in the German Constitution, American University International Law
Review 9, no. 4, pp.159-179.
Johannes von Stritzky, (2009), op.cit.
UNHCR (2004), New German Immigration law includes advances in refugee protection, 12 July 2004.
http://www.unhcr.org/40f2bb884.html
130

In 2012, Germany saw a rapid increase in the number of asylum applications. The biggest number of
those hoping to enter the country came from Serbia, Afghanistan, Syria and Iraq.
After observing an ex treme rise in the number of the asylum seekers from Serbia and Macedonia in
September 2012, Germanys interior minister called for tighter rules for processing the applications.
Despite this large increase, the 2012 numbers are still much lower than in 1990s, when Germany had
more than 100,000 asylum seekers per year.
The important ruling by the European Court of Human Rights in the case M.S.S. v Belgium & Greece
also impacted upon German legislation on asylum seekers in Germany. Their situation is now examined in
light of this ruling. On January 2011, the Federal Ministry of the Interior ordered that transfers of asylum
seekers to Greece under the Dublin II Regulation be suspended for one year. In November, the suspension
was prolonged until 12 January 2013.
As far as resettlement is concerned, Germany has practiced ad hoc resettlement for many years without
ever committing to an official annual quota for resettlement.
In November 2008, the Ministers of the Interior (Ministers on the national and federal states level)
decided to resettle 2,500 Iraqi refugees 2,000 from Syria and 500 from Jordan. This came in anticipation
to the European Councils conclusions in 2008 t hat encouraged EU member states to resettle 10,000
refugees from Iraq. In addition to UNHCR selection criteria, the admission order by the German Ministry of
the Interior put a f ocus on persecuted minorities (Iraqi Christians) and introduced the following extra
categories: ability to integrate (indicators: level of education, professional experience, language skills),
preserving the unity of the family, family or other ties to Germany that can facilitate integration, and the level
of protection need. Germany also resettled 50 Iranians from Turkey in 2010.
In December 2011 the Ministers of the Interior decided to adopt a permanent resettlement programme
for the next three years, resettling 300 refugees per year starting in 2012. In response to the UNHCRs and
the EUs initiative calling, priority was given to refugees of Sub-Saharan origin (mainly Somalis) who had
fled from Libya to the Shousha refugee camp in Tunisia, and 100 refugees to be selected from Iraqis that
fled to Turkey. The German Federal Office for Migration and Refugees (BAMF) ultimately accepted 200
refugees for resettlement, out of 246 applications. In September 2012, 195 refugees were resettled in
Germany after spending more than 18 months in the Shousha camp. In October 2012, 105 Iraqi refugees
arrived in Hanover as part of the resettlement programme. They were resettled from Turkey. These
represented a second group after September's arrivals and were part of the 900 vulnerable refugees that
are to be resettled by 2014.
The adoption of a permanent resettlement programme was an unexpected breakthrough after years of
lobbying for a permanent resettlement programme by different stakeholders. The most important factors in
leading the German government to rethink their position on a permanent resettlement programme were the
mainly positive experiences of the ad hoc resettlement of Iraqi refugees in 2009/2010 on the local level, and
the developments on the European level with the campaign for resettlement to Europe.
The capacities for increased resettlement numbers definitely exists in Germany. The extension of the
resettlement programme solely depends upon the political will of the government. The general public has
little or no knowledge about resettlement. However, public opinion concerning the admission of the Iraqi
refugees was surprisingly positive even though general attitude towards refugees is not without its
problems. NGOs and welfare associations stated that they could definitely support more refugees than the
planned 300 per year. And on the local level, large numbers of volunteers organised by the Save-Me
campaign offered their support for refugee resettlement. The media had also been reporting mainly in a
positive way about the resettlement of Iraqis. All this would form a good basis for more resettlement in the
future.
Since there is only the experience of ad hoc resettlement to refer to, and the future resettlement
programme will draw on legislation and practices that were deployed for the ad ho c resettlement, this
research focuses on the experience of resettling 2,500 Iraqi refugees in 2009/2010.
131
Asylum Profile
9,675 (2011)
status granted 6
10,395 (2010)
43,362 (2011)
48,187 (2010)
Resettlement Scheme
Programme (Since 2012)
Resettlement Quota 8
300/year from 2012 to 2014

Asylverfahrensgesetz,
01/07/1992 (Asylum
Procedure Act), last amended
in November 2011.
Contains no specific provision on r esettlement, but rules about the

procedure of granting of asylum and about the recognition of a refugee as
well as the legal status of the persons entitled to asylum.
Gesetz ber den Aufenthalt,

die Erwerbsttigkeit und die
Integration von Auslndern im
Bundesgebiet
(Aufenthaltsgesetz),
01/05/2005 (Residence Act),
last amended in December
2011.
Sections 22 and 23 (2), adopted in the first version of the Residence Act
in 2005, contains the legal basis for resettlement.
Section 22 contains provision for admission from abroad.
A further legal basis for the issuing of a residence or settlement permit is
section 23 (2). It was applied in the case of Iraqi refugees, following the
ruling of the Federal Ministry of the Interior of 5 December 2008.
Upon receiving a residence permit, Section 44 (1) entitles those
foreigners who reside in Germany to attend an integration course.
Other basis of
resettlement:
Information on the procedure of
the resettlement of Iraqi
nationals from Syria and Jordan
in the first semester of 2009 9
This UNHCR document contains information on the eligibility and the

procedure of the resettlement of 2,500 Iraqis in Germany.
http://www.bamf.de/SharedDocs/Anlagen/EN/Downloads/Infothek/Statistik/statistik-anlage-teil-4-aktuelle-zahlen-zuasyl.pdf?__blob=publicationFile (February 2012), p. 8
http://www.bamf.de/SharedDocs/Anlagen/EN/Downloads/Infothek/Statistik/statistik-anlage-teil-4-aktuelle-zahlen-zuasyl.pdf?__blob=publicationFile (February 2012), p. 8.
Source: Federal Office for Migration and Refugees.
Informationen zum Ablauf des Aufnahmeverfahrens fr irakische Staatsangehrige aus Syrien und Jordanien im ersten
Halbjahr 2009, UNHCR Berlin,
http://www.unhcr.at/fileadmin/rechtsinfos/fluechtlingsrecht/3_deutschland/3_2_unhcr_stellungnahmen/FR_GERHCR_rst_IRQ_012009.pdf (February 2012).
132

Ruling of the Federal
Ministry of the Interior
pursuant to 23 (2) of the
Residence Act, 5 December
2008
Decision on the reception of 2,500 Iraqi refugees from Syria and Jordan.
In the ruling the Minister notes that the situation of the refugees in their
countries of first asylum has worsened so that a common action at the
international, European and national level is required. It defines the
selection criteria and the distribution among the Lnder according to the
Knigsteiner Key, a s ystem of burden sharing among the Lnder in
several political fields.
Decision on the launch of a

permanent
resettlement
programme
and
on
admission of refugees from
North Africa, December 2011
Decision adopted at the 193th session of the Permanent Conference of

the Ministers and Senators of the Interior of the Lnder (8-9 December
2011). It concerns the launch of a permanent resettlement programme
and admission of 300 r efugees per year over the next three years
(starting in 2012) from North Africa.
As far as the resettlement of the Iranian refugees from Turkey is
concerned, there was no specific ruling from the Federal Ministry as it
was the case with the Iraqi refugees. The Iranians were resettled
following individual decisions on the basis of the above mentioned
Sections 22 and 23 (2) of the Residence Act. According to the BAMF, the
Federal Ministry of the Interior has decided to resettle a f urther 25
Iranians pursuant to 22 (2) of the Residence Act.
project/reform
The national legislation for the future resettlement programme will be the
same as for the ad hoc resettlement of Iraqi refugees in 2009/2010,
which does not provide a refugee protection status. This was criticized
by all stakeholders interviewed for Know Reset, mainly because their
legal status entails very strict conditions for family reunification. These
factors would inhibit the integration of the refugees.

1956 10
Approx. 13,000
Country of origin: Hungary
From 1979 on 11
Approx. 35,000
Country of origin: Vietnam
From 1990 on 12
Approx. 3,000
Country of origin: Albania
From 1992 on 13
Approx. 350,000 (acceptance and t emporary protection of just under

350,000)
Country of origin: Bosnia
1999 14
2005 15
Approx. 15,000
Country of origin: Kosovo
14
Country of origin: Uzbekistan
10
http://www.bamf.de/EN/DasBAMF/Aufgaben/HumanitaereAufnahme/humanitaereaufnahme.html
11
12
13
14
15
133

2009-2010 16
2,501
Country of origin: Iraq (2,501).
Country of first asylum: Jordan (438), Syria (2,063).
Gender: Male (1,117), Female (1,384).
Age: 0-15 (879), 16-21 (339), 21-40 (608), Over 40 (675).
Religion: Christian (1,207), Mandean (491), Muslim (798), Yezidi (5).
2010
50
Country of origin: Iran (50)
Country of first asylum: Turkey (50)
2011 Decision of Ministers
of Interior
c) Temporary
Resettlement:
On the launch of a permanent resettlement programme for the next three

years and on admission of refugees from North Africa. Based on this
decision it was decided to resettle 300 refugees per year starting in 2012.
In March 2013, Germany has committed to receiving 5,000 Syrian
refugees displaced by the violence in their country of origin. This goes in
line with UNHCR plan for the humanitarian admission of 10,000 Syrian
refugees while resettlement countries are also called to resettle 2,000
vulnerable persons on a more permanent basis.

Governmental Level
Share project: focus on integration on the local level with UNHCR, IOM,
NGOs, BAMF
ERF project: Linking-In EU-resettlement an aw areness raising, factfinding, information exchanging project.
experience
From Guantanamo
In September 2010 t wo prisoners from Guantamo arrived in Germany.

One came to Hamburg, the other one to Mainz. 17
Intra-EU Relocation
20 refugees from Malta in 2006 18
2010
11 African refugees from Malta in 2009 19

102 African refugees from Malta, Project EUREMA 2010/2011 20
Country of origin: Eritrea (20), Ethiopia (2), Sierra Leone (3), Somalia
(61), Sudan (16).
Country of first asylum: Malta (102).
153 African refugees from Malta in 2011/2012 21
Country of origin: Eritrea (71), Ethiopia (7), Somalia (72), Sudan (2),
Unknown (1).
Country of first asylum: Malta (153).
Gender: Male (68), Female (83), Unknown (1).
Age: 0-15 (43), 16-21 (7), 21-40 (100), over 40 (2).
Religion: Christian (62), Mandean (86), Unknown (4).
16
17
http://www.faz.net/aktuell/politik/inland/aufnahme-aus-humanitaeren-gruenden-guantanamo-haeftlinge-in-deutschlandeingetroffen-11038373.html (February 2012).
18
19
See the interview with the German Ministry of the Interior, 13 February 2012.
20
21
ibid.
134

Comments
In April 2013, Germany also announced that it would resettle 100

refugees stranded in camp Hurriya near Baghdad in Iraq.

Refugees resettled
2013
105
Country of origin: Iraq
Country of First Asylum: Turkey
2012
200 23
Country of first asylum: Tunisia
2009-2010 22
2,501
Country of origin: Iraq (2,501).
Country of first asylum: Jordan (438), Syria (2,063).
Gender: Male (1,117), Female (1,384).
Age: 0-15 (879), 16-21 (339), 21-40 (608), Over 40 (675).
Religion: Christian (1,207), Mandean (491), Muslim (798), Yezidi (5).

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Additional National
Criteria
In addition to UNCHR selection criteria, the German Ministry of Interior

put a f ocus on members of persecuted (religious) minorities, victims of
violence, those with special medical needs and single women with
children.
Germany also applied other criteria such as capacity for integration. 24
22
23
24
UNHCR document: Informationen zum Ablauf des Aufnahmeverfahrens fr irakische Staatsangehrige aus Syrien
und Jordanien im ersten Halbjahr 2009,
http://www.unhcr.at/fileadmin/rechtsinfos/fluechtlingsrecht/3_deutschland/3_2_unhcr_stellungnahmen/FR_GERHCR_rst_IRQ_012009.pdf (February 2012); See also BAMF document: Evaluierung zur humanitren Aufnahme
irakischer Flchtlinge aus Syrien und Jordanien 2009/2010.
135

Selection Process
Deploying Staff
n/a

UNCHR, BAMF
Dossiers
UNHCR identified refugees, also with the support of local NGOs in

Amman and Damascus.
UNHCR prepared refugee dossiers and submitted them to BAMF to
make a pre-selection.
Missions
After pre-selection in Germany on the basis of UNHCR dossiers,

selection interviews were carried out by BAMF on a s election mission in
Syria and Jordan. Refugees were accepted for resettlement during
selection missions.
As far as the Iranian refugees are concerned, the Federal Ministry of the
Interior decided individually for each case.
None

documents
The German Foreign Office issued visas for the refugees.
Medical screening
IOM
Procedure Timing
Comments
The resettlement took place in cooperation with the IOM. The time for the
preparation of the resettlement was four weeks and the first refugees
arrived in Germany in the middle of March 2009. They came by air to
Hannover from where they were brought to the reception centre in
Friedland. 25
The German decision to give priority to members of the Christian minority
for resettlement provoked discussion in the countries of first asylum as
well as in Germany. Also, the ability to integrate category for selection
has been criticised by different stakeholders. As resettlement is intended
for the most vulnerable refugees, the humanitarian purpose should
therefore have absolute priority.
Pre-departure: In individual cases, BAMF expected the refugees to
return to Iraq to obtain their missing documents.
Before embarking on the resettlement programme, hardly any information
about Germany and what to expect was given to the refugees.
Expectations among the Iraqis were often too high and unrealistic.
Recommendations for pre-departure:
For the selection of refugees the category ability to integrate or
cultural proximity should be dropped.
Before refugees enter the resettlement programme, information
service has to be i mproved and should provide a more realistic
picture of Germany and what refugees can expect there (cultural
orientation).
25
http://www.stadt-muenster.de/ratsinfo/00001/pdf/00280208.pdf (February 2012); see also: Nele Allenberg, Die

Aufnahme irakischer Flchtlinge in Deutschland ein erster Schritt hin zur Einrichtung eines
Resettlementprogramms?, in: Asyl 4/09, p. 10.
136

Post-Arrival phase
Status granted
Resettled refugees do not get a refugee protection status.
Residence Act, 23 (2)
The legal status of resettled refugees is a three year, extendable

residence permit pursuant to 23 (2) of the Residence Act.
The Federal Office for migration and refugees can revoke refugee status
after three years if the requirements for recognition are not fulfilled
anymore. After seven years refugees may apply for German citizenship
upon passing a citizenship test and providing proof of employment 26.
Rights granted
Legal source
Residence Act
A residence title pursuant to
23 (2) (such as the one that
the Iraqi refugees were
granted) entitles the refugee
to benefits from the Social
Code II which means: 27
Residence
The temporary legal status of three years gives the refugee free access
to an integration programme, social welfare assistance, education,
employment and h ealth care. If people are permanently unable to work
they receive financial aid according to the Social Code XII. The amount
corresponds to the Hartz IV amount but the funding is different.
Iraqi and Iranian refugees were granted a residence permit for up to three
years; it is possible to extend it for another three, then for another one year.
After seven years a settlement permit can be granted.28 Different from the
residence permit, the settlement permit is a permanent residence title.
Section 9 of the Residence Act specifies the preconditions for the granting of
the settlement permit, of which one important criterion is that the foreigner
has been in possession of the residence permit for at least 5 years.
Airport Arrival
BAMF provided transport from the airport to the reception centre in

Friedland. Medical cases that could not travel by bus were picked up by
the German Red Cross and brought directly to hospital or to their final
destination.
In general, refugees stayed for a period of 2 weeks in Friedland, some
stayed 3 months and attended language courses and gained further
counselling before being distributed to the federal states (Lnder).
Info upon arrival
In Friedland, NGOs (German Red Cross, Diakonie and Caritas) held

preliminary counselling and information sessions on integration into
Germany, family reunification, status, distribution to the Lnder and
social welfare assistance. The German Red Cross offered a family
tracing service.
In some places there was a working group established especially for Iraqi
refugees on the Lnder and at a local level with all crucial stakeholders
(local state authorities and NGOs) involved. Here, all relevant information
was shared and it proved to be very efficient. However, this was more the
exception than the rule. It also depended on the Lnder and on how fast
they would transfer information to the local level. Information on special
needs, e.g. housing or medical needs, was not always communicated.
Programme(Housing, health,
education)
Refugees were granted free access to integration programmes that

include language and orientation courses and to integration services
provided by welfare associations/NGOs for all migrants. In both, the
following issue were addressed: housing, employment and education,
child welfare, mental health and medical assistance, social integration.
26
ICMC (2009)
27
Andrea Kothen (ProAsyl) 24/11/2009, document received by Sarah Hergenrther (Save-me-Mnchen).
28
Nele Allenberg, Die Aufnahme irakischer Flchtlinge in Deutschland ein erster Schritt hin zur Einrichtung eines
Resettlementprogramms?, in: Asyl 4/09, pp. 10-11.
137

Counselling
Orientation courses - as part of the integration programme - also offered

cultural orientation.
Preliminary counselling was held in Friedland, and after distribution to the
Lnder counselling was again offered by welfare associations and NGOs
as part of the regular integration services offered for all migrants with
residence permission. The following questions were addressed: status,
social welfare assistance, health care service, family reunification,
language acquisition, housing, employment.
German lessons were offered in Friedland for those who stayed 3

months. Once distributed to the Lnder, they were entitled to attend
integration programmes that included German lessons. Welfare
associations and NGOs helped to locate integration programmes.
Employment
Welfare organisations, NGOs and volunteers assisted refugees in finding

employment, registering at employment agencies, and reviewing
qualifications. Employment agencies assisted in trying to find
employment.
Resettled refugees do not get a refugee protection status. The conditions

for family reunification are very strict: Livelihood has to be secured for the
whole family without social welfare assistance, sufficient living space
must be available, and the spouse has to have proven knowledge of the
German language ( 29 and 5 (1) of the Residence Act).
Mentoring

providers
Volunteer support
Housing
Refugee contribution to
integration
Comments
Given by welfare associations in Friedland and later on the local level by

NGOs, volunteers (from the save-me network) and again welfare
associations.
In some places, save-me volunteers were assigned to individual refugees
for mentoring. They assisted with adaption and administrative processes.
Again, this was more the exception than the rule.
No formal training
Save-me is a network that tries to gain volunteer support on the local
level for resettled refugees. The save-me groups are independent local
groups that offer their help in finding housing, employment or childcare,
etc. They are mainly in larger cities.
The Lnder and municipalities organized the first accommodations. Some
municipalities offered for the beginning again reception centres others
already provided private accommodations. In some cases, save-me
volunteers also assisted in finding private accommodations.
In Berlin, the Iraqi cultural association El Rafedein was officially
incorporated into the integration process. Some save-me members were
also Iraqi (refugees).
In contrast to a refugee protection status, the status of resettled refugees
includes strict conditions for family reunification, no UNHCR travelling
pass, no permanent settlement permit and restricted permissible place of
residence if the refugee is a r ecipient of social welfare assistance and
long waiting periods until being given the opportunity to apply for a
permanent residence status.
Iraqi refugees were distributed to the Lnder according to the
Knigssteiner Key and within the Lnder according to determined quota.
At the beginning, distribution was on the basis of personal requirements
and family reunification. Later on, as quotas were filled, refugees were
obliged to go to Lnder where they were separated from family members
or members of their religious community. The legal status of resettled
refugees restricts their place of residence, a subsequent move to other
Lnder was rarely possible. Problems also resulted in their being
distributed to rural areas without infrastructure for integration, meaning no
counselling centres, no integration courses, no educational offers and no
contact to other Arabic speaking people.
138

After leaving Friedland, some refugees were again accommodated in
reception centres. This often caused disappointment. Interaction with
other residents of the reception centre, especially with Iraqi asylum
seekers with a di fferent legal status, resulted in tension, which was a
situation of considerable emotional strain for some refugees. There are
still some refugees - mainly larger families - living in reception centres.
In the first months, the necessity of a t ranslator was inevitable. But
authorities in general did not cover expenses for translation. Volunteers,
especially native speakers, were overburdened by the great need of
complex and time-consuming accompanying and counselling assistance.
Problems occurred in cases when diseases or disabilities among the
refugees were not known, or insufficiently known, prior to their arrival in
the municipalities. In some cases, the reception facilities were therefore
totally unprepared and h ad to undertake emergency care, which could
have been avoided had there been enough information in advance.
A special challenge was the reception of severely disabled persons.
There were major difficulties in finding adequate accommodations. The
language courses were also sometimes inaccessible for disabled
persons. Social isolation was often a serious problem.
The biggest obstacle for integration is the language barrier. Yet in
some regions, refugees could not claim their right to language classes
due to long distances to the course provider and inadequate public
transport, and some language classes were cancelled due to insufficient
enrolment. In some cases refugees had to wait months or even a year to
get placed in a course. A need for special courses also appeared
because often the Iraqi refugees were illiterate, unfamiliar with the Latin
alphabet, and/or elderly. Those courses could not be pr ovided
everywhere.
Collaboration between state authorities and NGOs differed from place
to place. In most cases collaboration was assessed as good. However, in
some places the opportunity to make use of civil society (save-me
volunteers) that offered their help for resettled refugees was simply
ignored. Problems also occurred when staff members of the
municipalities and/or immigration authorities were uninformed or
insufficiently informed about the arrival of resettled persons and/or the
legal status of the Iraqi refugees. Sometimes there was no clear division
of tasks between involved services, authorities and institutions.
Recommendations:
The legal status of resettled refugees should be c hanged into a
refugee protection status according to the Geneva Refugee
Convention and include a permanent residence permit from the
beginning. This would require a change in the German Act.
Different stakeholders expressed the opinion that the stay in
Friedland could be used and institutionalised in a better way by
clarifying all administrative questions and gi ving all relevant
information from the start.
Distribution of refugees within Germany has to consider refugee
needs and the local infrastructure for integration. More flexibility
in distribution is necessary.
After leaving Friedland, accommodation in reception centres
should be avoided.
Translators should be planned for and funded by the state.
More information about the refugees health problems should be
given in advance.
Access to language courses should be ensured and factored into
the distribution process.
139
Collaboration between state authorities and other stakeholders

has to become regulated and i n some cases improved. All
relevant stakeholders should be provided with necessary
information about the refugees, and the responsibilities of
different stakeholders should become regulated.
Conditions for family reunification have to be eased.

Funding
The Federal State covers the costs for:
National Level
Local Level
The standard financial aid according to the Social Code II:

unemployment compensation, additional needs health insurance.
Proportionately the Federal Government also covers heating and
living costs (between 25.4 and 35.2%). The amount is paid
together by the competent authorities.
Work finding aids according to the Social Code III
The costs for the selection and transport of the refugees from the
countries of first asylum (e.g. the flight, possibly with the help of the
army or the Federal Agency for Technical Relief, or also selection
missions by the BAMF) as well as the integration course (through
the BAMF).
The costs covered by the Lnder depend on:
The distribution procedure in the Lnder,
The Lnder themselves. It is regulated in each Land Reception Law

or through Lnder rulings.
The municipalities cover the costs for:
140
Housing and heating for refugees receiving unemployment

compensation II (Hartz IV), singular benefits in exceptional cases.
Social benefits, health treatment, housing and heating costs for

elderly and permanently sick people pursuant to Social Code XII
The rent and operational costs of (temporary) accommodation

which belongs to municipalities. In some cases the municipalities
are reimbursed part of the costs by the Land or Federal State
In part the refugees themselves have to cover certain user fees. It

is not possible to tell the general cost of rent and operation of
these accommodations. This depends on t he Laws for
Reimbursement in each Land, but also on the practice of each
municipality in renting, renovation and allocation etc. Empty
housing also incur costs for the municipalities so that, in some
cases, there are more advantages to allocating them to refugees
so that they can benefit from reimbursement by the State and
cover the costs that otherwise they would have had t o bear
themselves.
Voluntary benefits for the resettled refugees. Also here, the

municipalities might use rules for reimbursement, depending on the
laws in each Land. These rules are actually intended to grant help
for integration, advisers for legal problems or for social projects.
ERF
Costs
The government received money from the European Refugee Fund.

More than half of it was distributed to the Lnder.
The Government can receive 4,000 from the European Refugee

Fund for each refugee. This money is usually used to cover the
preparation and the transfer. Between 2008 and 2011 Germany
has received 8.6 million from the ERF. 29
For the resettlement of the 2,501 Iraqi refugees the Federal

Republic had applied for an ERF Funding for 2,160 persons, but it
was granted only for a part of them. Not all of these refugees
belonged to the specific group of persons for which the funding
was created. 30
The beginning and t he end of resettlement is not legally defined and

therefore is it impossible to give precise costs of resettlement activities or
singular procedures of resettlement 31.
The asylum expenses amounted to 1,032 million in 2007, 842
million in 2008 and 789 million in 2009.
Comments
The ad hoc resettlement of Iraqi refugees in 2009/2010 has been

assessed as being positive and forms a good basis for future
resettlement. It showed that Germany has the necessary capacities and
resources and also convinced policy-makers to support further
resettlement.
However, programme problems that emerged need to be a ddressed
in order to improve the resettlement experience for both refugees and
NGOs into the future.
On the basis of the quota that has been decided, the planning of the
resources has become easier and more cost-effective for all participants.
The necessary preparation for all of the respective groups of refugees
can be made and the funding of the ERF can be better integrated in the
financial planning.
29
http://dipbt.bundestag.de/dip21/btd/17/085/1708562.pdf (April 2012) p. 1.
30
http://dipbt.bundestag.de/dip21/btd/17/085/1708562.pdf (April 2012), p. 4.
31
Interview with the Ministry of the Interior, op.cit.

141



Greece
Report written by
Konstantinos Eleftheriadis (EUI)

July, 2013

142
KNOW RESET Country Profile: Greece
Country Profile: GREECE

The population of Greece is 89.9% Greek. The remaining 10,1% are immigrants, the majority of whom are
from Eastern Europe. 1 Although, immigration had started in the early 1980s, Greece became a l argely
immigrant-receiving country after the fall of communism, and thereby transforming the countrys status from
a sending to a receiving country. Greece is bordered from west to east with Albania, Macedonia, Bulgaria,
and Turkey. The borderline with Turkey is one of the most frequented passages of immigration into Europe.
According to the International Organisation of Migration, 85% of the illegal immigration to the EU passes
through Greece and originates at its border with Turkey 2 which places a particular pressure on Greece. 3
Greeces legal framework for asylum and i mmigration is based upon two basic legal texts, one
presidential decree (114/2010) and one law (3907/2011). In addition, there is an Action Plan which does not
have a legal validity but serves as a guideline of the politics that should be adopted by the administration.
The new law 3907/2011 of 21 J anuary 2011, which has not yet been f ully implemented, establishes the
Central Asylum Authority and t he Regional Asylum Services, which will be attached to the Ministry of
Interior, and will constitute an independent administrative authority composed of qualified and specialized
civilian personnel who are responsible for the adjudication of asylum applications at first instance. This law
is, according to the UNHCR, the basis for significant improvements and progress on asylum institution
building, as well as for fair and efficient decision-making on individual claims. 4 However, its implementation
poses significant challenges due to the lack of financial means to set up, equip and operate the system.
The assumption is that since the beginning of the financial crisis in 2009, the asylum system has been
completely overloaded. Hence, the inability to register all the applications that were made explains why
there has been a de crease in the number of asylum applications. Nonetheless, in the first half of 2009,
Greece registered the 6th largest number of asylum applications in the EU. 5
In general terms, the system of asylum provision is quite dysfunctional in Greece and less generous
than in other EU countries. In fact, only 0.03 per cent of the applications of refugee attribution have been
approved, while in countries such as France, the UK and Sweden, this percentage has reached almost 30
per cent. For instance, in the first three quarters of 2010, Greece awarded refugee status to 8% of Afghan
applicants, 0% of Somalis and 8% of Iraqis. The average protection rates for these same States in the five
EU member states which have received the highest number of asylum claims in the same period of time, is:
Somalis 70%, Afghans 45%, and Iraqis 51%. 6
In addition, it is admitted that the whole system of asylum processing is collapsing. 7 The conditions of
detention of the asylum seekers in Greek detention centres constitutes a humanitarian crisis. 8 On the 21st
of January 2011, Greece was judged by the European Court of Human Rights to have violated the
European Convention of Human Rights in how it applied EU law. 9 In fact, Greece was condemned for the
living and detention conditions of refugees and asylum seekers which is in breach of Article 3 of the ECHR.
1
Data from the United Nations Department of Economic and Social Affairs, Population Division's World Migrant Stock:
The 2008 Revision
http://www.iom.int/jahia/Jahia/greece
See COM (2006) 401 final, Proposal for a Regulation of the European Parliament and the Council establishing a
mechanism for the creation of Rapid Border Intervention Teams and amending Council Regulation (EC) No
2007/2004 as regards that mechanism,
http://eur- lex.europa.eu/LexUriServ/site/en/com/2006/com2006_0401en01.pdf
Asylum situation in Greece including for Dublin II transferees, UNHCR, 30 January 2011.
See Asylum Claims in Industrialised Countries, Monthly trends January June 2009, www.unhcr.org
Asylum situation in Greece including for Dublin II transferees, UNHCR, 31 January 2011
Interview with Iliana Raouzaiou, Caritas NGO, 16 March 2012
While Dublin II transferees are unlikely to end up in the Evros detention facilities upon their return to Greece from
another Member State, the inability of the Greek authorities to provide for the basic standards required to ensure
human dignity is of grave concern. There are no indications that Dublin II transferees are spared the hardships and
treatment that at present are generally experienced by asylum seekers in Greece. Asylum situation in Greece
including for Dublin II transferees, op.cit.
ECHR, M.S.S v. Belgium and Greece, 21 January 2011

143

Finally, the financial crisis has paralysed the country for the past five years and ha s aggravated an
already delicate situation and leaves no possibility for the introduction of resettlement in the political and
therefore to the legal agenda.
Asylum Profile
status granted 10
130 (2010)
95 Refugee Status
35 Other Protection
66 (2009)
Number of asylum
seekers 11
36 Refugee Status
30 Other Protection
10,273 (2010)
15,928 (2009)
Resettlement Scheme
Resettlement Quota

Law 3907/2011, 26 January
2011, Establishment of the
Asylum Service and the
Service of First Reception
(transposition of the directive
2008/115/EC).
Presidential
Decree
114/2010, 22 November 2010,
Establishment of a uniformed
procedure of identification of
the status of refugee or of
subsidiary protection for aliens
and stateless in compliance
with Directive 2005/85/EC on
minimum
standards
on
procedures in Member States
for granting and withdrawing
refugee
status
(L326/13.12.2005).
Article 5 of law 3907/2011 states that the Asylum Service is competent

for every process of granting the refugee status, its content, and the
procedures of temporary protection attribution. The basic innovation of
law 3907 is the establishment of the Asylum Service, which, once it is set
up, will have the competency of examining the asylum applications.
The law is not used in reality. The reason is the delay in the
establishment of the Asylum Service as it is proscribed in the law.
The presidential decree 114/2010 assigns the responsibility for
determining asylum applications at first instance to Police Directorates in
fourteen locations (including two airports) and establishes independent
appeals committees which are responsible, inter alia, for including for the
applications backlog. The decree also establishes the Appeals
Committee, an independent authority that reviews negative decisions. 12
project/reform
Although, the law 3907/2011 has been voted in order to replace the
decree, the decree is still used as a result of the delay in the setting up
the Asylum Service.
10
Source: Ministry of Citizen Protection
11
Ibid.
12
Asylum situation in Greece including Dublin II transferees, op.cit.

144

c) Temporary
Resettlement:
2011
From Libya: During the protests against Gaddafis regime, there were a
large number of foreign nationals who were evacuated from the country.
Greece was one of the countries which participated in the evacuation
plans, not only of Greek nationals, but also of Europeans and third
country nationals. Firstly, Greece offered ports in Crete as points of
arrival of six US war ships, which were transporting evacuees. Secondly,
Greece sent two boats to Libya in order to evacuate foreign nationals,
Europeans, Chinese, Filipinos, and Brazilians. Concerning the Filipinos
transferred to Crete, Greek police guarded the hotel where they were
staying because of fears that some of the Filipinos would stay illegally in
the country. At the same time, there were agreements with Filipino
diplomats to repatriate them back to the Philippines. 13 It was also agreed
that Chinese nationals would stay in Greece only temporarily and then
they would be repatriated to China. 14
2,146 Chinese and 665 Filipinos 15 were transferred temporarily to
Crete before being repatriated to their home countries. The same is true
for an unknown number of Europeans and Americans.
1999
During the war in Serbia in spring 1999, many Kosovars were forced to
flee to Macedonia. The potential humanitarian crisis forced the United
Nations, IOM and several states to participate in an evacuation plan in
order to transfer refugees from Macedonia to other countries. Greece
accepted to offer Thessaloniki airport for this purpose. The Government
of Greece requested that flight plans be presented by IOM with four days
notice being given for each flight by IOM and the concerned embassy in
Athens. No other identity or travel documents were required. 16

Governmental Level
experience
From Guantanamo
13
14
None
http://www.ekathimerini.com/4dcgi/_w_articles_wsite1_1_02/03/2011_381072, 2 March 2011

Greece has agreed to offer hospitality to Chinese evacuees arriving from Libya, who will stay on Crete until
arrangements are made for their return to China, http://www.xpatathens.com/news/23422, 24 February 2011
15
Idem
16
UN High Commissioner for Refugees, Updated UNHCR Guidelines for the Humanitarian Evacuation Programme of
Kosovar Refugees in the Former Yugoslav Republic of Macedonia, 11 May 1999, available at:
http://www.unhcr.org/refworld/docid/3ae6b31b7b.html [accessed 6 April 2012]
145

Intra-EU Relocation
There is no relocation at this moment. There are, however,

discussions, at the European level, to extend the relocation scheme
existing in Malta to Greece. 17

Refugees resettled
None
Comments
Greece is in the top ten countries of the EU in terms of the biggest

number of asylum applications made. 18
The Council of Europe in the report Asylum system and refugees:
sharing responsibilities in Europe of 6 June 2011, describes the Greek
asylum processing system as collapsing. The reasons are described
below:
Indeed, many applicants refuse to provide any information
whatsoever. This makes the asylum determination process much more
complicated. Furthermore, Greece is in the middle of an economic crisis.
[] Greece, which is under particular pressure of arrivals of refugees and
asylum seekers (but also of irregular migrants) due to its geographical
position, is experiencing huge di fficulties in dealing with the asylum
claims. In compliance with the Dublin Regulations, other EU member
states send asylum seekers that first entered the European Union via
Greece, back to Greece. Since the M.S.S. judgment 19, many EU
countries have suspended returns of asylum seekers to Greece. This,
however, has not been enough to solve the problems.
Greece has still to deal with a backlog of over 50,000 asylum claims 20
and urgently needs to reform its asylum procedure to ensure its fairness
and effectiveness.. 21
Due to the severe financial crisis that the country is facing at this
moment, the possibility of implementing any kind of resettlement are
extremely limited. The Greek government are more likely to be willing to
negotiate with regard to an expansion of the Maltese relocation
programme rather than engaging in an inward resettlement programme.
17
European Voice, 26 January 2012, http://www.europeanvoice.com/article/imported/ministers-to-discuss-asylumrelocation-plan/73314.aspx
18
Asylum in the EU27, EUROSTAT, 23 March 2012,

http://europa.eu/rapid/pressReleasesAction.do?reference=STAT/12/46&type=HTML
19
Reference to the M.S.S v. Greece and Belgium decision of the European Court of Human Rights on 21 January 2011
(see above).
20
Reference to the asylum applications which were not treated in 2011 and therefore were transferred to 2012
21
Asylum Seekers and refugees: Sharing responsibilities in Europe, Council of Europe, 6 June 2011, p. 11
146


Hungary
Report written by
Andrea Csehi (EUI)

Mria Barna (ECRE)
reviewed by the Know Reset coordination team
July, 2013

147
KNOW RESET Country Profile: Hungary
Country Profile: HUNGARY

Hungary is not a major destination for international migrants. Before the fall of the Communist regime in
1989, Hungary was mainly a country characterised by emigration. After 1987, however, an increasing
number of refugees started to arrive in the country, at first mainly ethnic Hungarians from Romania, forcing
the political leadership to face a totally new situation. In addition to this, the Hungarian Government also
provided support to people arriving from East Germany. In response, Hungary ratified the Refugee
Convention in 1989 as well as the UN Protocol of 1967 relating to the Status of Refugees. Both documents
constitute the legal basis that defines the concept of asylum procedure in Hungary.
Regime changes occurred in surrounding States at the same time as these important changes to
migration law in Hungary. These added to the strain on immigration services. At the beginning of 1990s,
the armed conflict in the Former Yugoslavia led to a new wave of refugees. The government made a
political decision to admit these refugees on humanitarian grounds and most of them were granted
temporary protection.
In the early 2000s, the number of legal migrants in Hungary increased, with the highest number arriving
around the time of Hungarys accession to the European Union in 2004. Long-term migration into Hungary
has continued to decline in recent years. This trend reflected the economic crisis, which hit Hungary hard
from 2009-10. 1 As opposed to this, the number of asylum seekers saw an increase until 2009. In 2012, a
total of 2,157 asylum-seekers were registered, representing half of the numbers of 2009. This was mainly
due to a sharp decline in the number of asylum seekers from Serbia and Kosovo, a decline that might be
related to the December 2009 implementation of the EU visa exemption agreement with Serbia, the Former
Yugoslav Republic of Macedonia (Fyrom) and Montenegro. According to government statistics, 25% of the
applications were considered as subsequent applications (either in the context of Dublin II returns or
otherwise), compared to 20% in 2010. 2
Despite its geographic position, located at the crossroads of migratory movements in Central Europe
and along the Eastern border of the European Union, Hungary has not yet developed an official migration
policy. The Hungarian Government has considered asylum matters primarily in the context of the fight
against illegal migration. In the amendments to legislation on asylum and foreigners, as well as in the
respective implementing measures, the human rights and protection needs of asylum-seekers and refugees
have been given lesser priority than security and law enforcement objectives. The detention regime and
practice has become more extensive, while access to the asylum procedure is more restricted.
Recently, in December 2012, the Hungarian Government announced the establishment of an annual
resettlement programme thus becoming one of the newest States in Europe to resettle, together with Spain
and Bulgaria.
As this first resettlement programme is just a pilot project and given the recent economic situation as
well as the limited capacities of Hungary, the Government pledged to resettle only one family in 20122013. 3 With regards to further numbers, or provisions for the forthcoming years, there has been no decision
made as of yet.
As Hungarys resettlement programme has only one resettled refugee, it is not representative enough to
draw general consequences on the outcome of the programme. 4
Hungarian society does not know anything about refugees and even less about resettlement. Afghan
border crossers are usually addressed by the media as criminals and not as potential asylum seekers. Yet,
when it comes to public response regarding a case of resettlement, the Hungarian state could be seen by
the public as having acted on a humanitarian basis, generously offering help and participating in global
burden sharing.
http://www.oecd.org/els/mig/IMO%202012_Country%20Note%20Hungary.pdf
Hungarian Office of Immigration and Nationality, http://www.bmbah.hu/index.html
Interview with UNHCR Hungary, April 2012.
Interview with Dr.Marta Pardavi, Hungnarian Helsinki Committee , April 2012.

148

The European Unions agenda to strengthen its Members participation in refugee resettlement is seen
as playing an important role in the political decision making on a national level as well. The role of the
EASO is considered as facilitating and coordinating the exchange of knowledge.
Asylum Profile
status granted 5
462 (2012)
87 Refugee Status
375 Other protection

188 (2011)
52 Refugee Status
2,157 (2012)
1,693 (2011)
Resettlement Scheme
Pilot programme since December 2012
Resettlement Quota
Planned resettlement of 1 family (around 5-8 refugees) but only one

was resettled on 29 November 2012

Act LXXX of 2007 on Asylum
Section 7 (5)
The framework of the future Hungarian resettlement programme is

delineated by Section 7(5).
The minister may grant refugee status to an alien who was granted
recognition as a refugee by the competent authorities of another
country or the Office of the United Nations High Commissioner for
Refugees, and to whom the Geneva Convention applies as declared by
the refugee authority.
Previously, the above cited clause had included: The number of
refugees recognised under the terms of the present subsection shall
not exceed one hundred per year. 7

Governmental Decree
301/2007
Implementing Act LXXX of 2007 on Asylum.
7/A
The refugee authority shall establish the applicability of the Geneva

Convention based on a personal hearing of the foreigner or on the
basis of the available documents.
UNHCR Ministerial Meeting:

Hungarys pledge, 8th of
December 2011 8
The Hungarian Government announced its decision to become a

resettlement country in October 2010 and confirmed its commitment
through a pledge submitted to the Ministerial Conference organized by
UNHCR in Geneva in December 2011.
http://www.ksh.hu/docs/eng/xstadat/xstadat_annual/i_wnvn003.html
http://www.ksh.hu/docs/eng/xstadat/xstadat_annual/i_wnvn003.html
Source: UNHCR | Refworld | Act LXXX of 2007 on Asylum, n.d.

http://www.unhcr.org/refworld/country,LEGAL,,LEGISLATION,HUN,4562d8b62,4979cc072,0.html.
http://www.unhcr.org/pages/4d22fd496.html
149

Governmental Decree
1139/2011
The governmental decree is meant to guarantee the practical

implementation of the Resettlement programme of 2012 (7/A
paragraph of the 301/2007 decree).
project/reform
The Hungarian Government pledged to launch the first resettlement of

one family (5-8 persons) in 2012-2013 from North-African. 9
The first Hungarian national resettlement operation is considered as
a pilot programme.
The outcome will be assessed as well as the whole process (from
the beginning until the end including the integration phase) in order to
develop a good model programme tailor-made to the national needs on
the basis of which Hungary will be able to extend its resettlement
efforts in the future. 10

n/a
In autumn 2010, a governmental decision was drafted on Hungary

launching a national resettlement programme. In response to the Arab
spring in 2011, a Governmental Decision (No. 1139/2011) was
adopted. Within the framework of this programme Hungary showed its
solidarity in the form of both resettlement and relocation.
c) Temporary
Resettlement:
n/a

Governmental Level
Hungary has been participating in different initiatives related to

knowledge sharing about resettlement for several years. The official
twinning programme initiated by the Finnish government was
highlighted in positive terms. It was also pointed out that the visit to
Finland was followed by the authorities trip to Thailand, during which
they had the possibility to assist a selection mission of the Finnish
government within the framework of their resettlement programme.
In addition to this, Hungary has been participating in the UNHCR
initiated Annual Tripartite Consultations on Resettlement, convened for
the first time in 1995, bringing together governments and NGOs. The
Ministry of Interior has already represented Hungary as a possible
resettling country in the ATC in 2010.
Besides, together with 9 other EU Members States, Hungary took
part in the 2010-2011 initiative of IOM, UNHCR and ICMC
(International Catholic Migration Commission), called Promotion of
Resettlement in the European Union through Practical Cooperation by
EU Member States and Other Stakeholders." 11 This project was part of
the initiatives aimed at encouraging the European Member States
participation in the development of a larger scale, joint European
resettlement program. Financed by the ERF, the project was officially
launched in Timisoara in March 2010, and ended with a conference in
Brussels in June 2011.
Interview with UNHCR Hungary, op.cit.
10
11
Interview with the Hungarian Ministry of Interior , Office of Immigration and Nationality (OIN), March 2012.
A Joint IOM, UNHCR and ICMC Project: Promotion of Resettlement in the European Union Through Practical
Cooperation by EU Member States and Other Stakeholders. International Catholic Migration Commission, July 2,
2010. http://www.icmc.net/activities/ERF-project.
150

Hungary was represented by the Hungarian Helsinki Committee in the

2008-2010 ASPIRE (Assessing and Strengthening Participation In
Refugee resettlement to Europe) projects, which had as its main
coordinator the Churches Commission for Migrants in Europe (CCME)
and was financed by the ERF. 12
The project focused on the expansion of a debate between
governmental and non-governmental actors in Member States, which
had started showing a recent interest in resettlement.
According to the Helsinki Committee, the organizations role within
the projects framework was to promote the implementation of the
resettlement quota that was at that time part of the Hungarian Asylum
Act, which recommended a limit of hundred persons per year.
Besides the promotion of an actual resettlement programme,
Helsinki had the possibility to promote the countrys involvement in the
development of a common European framework for resettlement. 13
During the project a number of different cooperative activities
involving ten EU Member States, civil society organizations, UNHCR
and IOM have been implemented. Amongst these, Hungary
participated in a pilot programme on resettlement interviews via video
link, which was carried out by the Dutch government at the Emergency
Transit Centre in Timisoara, Romania, and was observed by Hungarian
government officials. Moreover, Hungarian authorities and NGOs
visited the UK and Sweden, to learn more about the two countries
programmes for reception and integration of resettled refugees. Lastly,
Hungary participated in the various multi-stakeholder-meetings and the
final conference held in Brussels in June 2011.
experience
The Cuban Case
In October 2008, as a result of a bilateral agreement between the

Government of the United States of America and the Hungarian
Government, 29 Cuban citizens arrived in Hungary, with the help of the
International Organization for Migration (IOM). After that decision, which
granted refugee status to all the newly arrived, an integration process
started. As for the financial aspects of this programme, the resettlement,
all the related procedures, as well as the integration initiatives were
financed entirely by the US government. The majority of the refugees left
Hungary a few months after arrival and have moved to Spain.
It is not appropriate to consider that operation as an example of
resettlement as the migrants who were beneficiaries of the programme
were not refugees prior to their arrival to Hungary and as a
consequence the programme does not match the criteria of
resettlement. On the other hand, the case is still worth considering, as
many of the experiences that it endowed the Hungarian authorities with
could prove to be useful in any future resettlement programme.
Although the 2007-2008 resettlement programme of Cuban
migrants to Hungary does not match the criteria of resettlement
entirely, it still holds many relevant conclusions worth considering. This
case was a typical one as it showed how in some cases the
government is ready to carry out this sort of programme, despite the
fact that the legal and infrastructural frameworks had not been
developed previously.
12
Churches Commission for Migrants in Europe, n.d. http://www.ccme.be/areas-of-work/refugeeprotection/aspire/.
13
ASPIRE: Assessing and Strengthening Participation In Refugee Resettlement to Europe (2008-2010). Hungarian
Helsinki Committee, June 12, 2011. http://helsinki.hu/en/aspire-assessing-and-strengtheningparticipation-in-refugeeresettlement-to-europe-2008-2010.
151
Intra-EU Relocation
Hungarys participation in the EUREMA (European Relocation

Malta) project in 2010. The EUREMA project started in 2009 and was
specifically designed to cater for the islands needs by granting
substantial financial assistance to Member States for every person who
had been granted international protection and is resettled from Malta. 14
Hungary was amongst those Member States who agreed to relocate a
small number of refugees from the island. In the framework of the
project, a couple arrived in Hungary in August 2010. As was the case
with the Cuban migrants some years earlier, that couple were first
brought to the refugee camp of Bicske.
The integration phase could not even start, as the couple left
Hungary and returned to Malta three days after their arrival. The legal
status of the couple started representing a problem only after their
arrival, despite the fact that they were not even entitled to participate in
the EUREMA, not being refugees. Namely, the man was a stateless
person originating from Kazakhstan, while his partner, a woman, was a
Russian citizen, and as such, was absolutely unwilling to give up her
citizenship (a necessary consequence of the obtaining the refugee
status, which was, parenthetically, offered to her). Also the couple in
question had reached a relatively high level of integration in Malta.
To the questions of why Hungary insisted on persuading the couple
to participate in the relocation programme if they were not necessarily
in need of leaving Malta, most of stakeholders agree that there has
been a serious communication issue in carrying out the selection
phase. Additionally a more serious dilemma was raised related to the
selection criteria used by the Hungarian authorities in the EUREMA
project, probably because they were the only non-black couple family
that could participate in the relocation.
In spite of the negative outcome of Hungarys participation in the
first EUREMA, the country is planning to take part in the second phase,
as the European Commission announced the extension of the
project. 15 Nevertheless, Hungarys participation will be limited, together
with other Member States to token pledges of five to ten refugees. 16
Comments
Notwithstanding the two precedents that have been elaborated above,

Hungary has been formally a non-resettling country up to now.
Nevertheless, in 2012, the country has announced the establishment of
an annual resettlement programme.
The possibility of resettlement is not envisaged in the Asylum Law
but is referred to in a government decree, which only mentions
resettlement in 2012. It seems that the possibility for resettlement in
2013 will be created in a separate government decree. 17
The amendment to the Asylum Act with regard to the quota of one
hundred was simply due to a political consideration. It was designed to
tackle the governments reluctance to pass the legislation in question
without such a limitation included into it. Nevertheless, as will be shown
later in the report, 100 resettled refugees annually is already an
unrealistically big number compared to the intentions of the current
government. 18
14
Ivan, Camilleri. EU Pressures Members to resettle Asylum Seekers. www.timesofmalta.com, May 12,
2011.http://www.timesofmalta.com/articles/view/20110512/local/EU-pressures-members-to-resettleasylumseekers.364942.
15
Ibid.
16
17
Interview with UNHCR office in Budapest, April 2012.
18
Ibid.
152

While Hungarian legislation exempts third-country family members
of a recognised refugee from general maintenance requirements for
family reunification, the Act on the Entry and Stay of Foreigners was
amended in 2010 to exclude family members of beneficiaries of
subsidiary protection from this exemption.

Refugees resettled
1 refugee resettled from Egypt
29 November 2012
The refugee is a Christian convert.

Process Pre-Arrival
Phase
Selection criteria
The resettlement programme is the responsibility of the Ministry of

Interior, however the Office of Immigration and Nationality (OIN) will
decide the applicability of the Geneva Convention under the 301/2007
governmental decree, in the cases of foreigners involved in the
selection procedures for resettlement. A decision as to the resettlement
of the refugees chosen will take place after a personal hearing of the
persons in question and in the presence of relevant documents
(provided by the UNHCR).
UNHCR Criteria
Additional National
Criteria
The pledge and the decree 1139/2011 do not include any resettlement
specific procedural rules.
Selection Process
The Hungarian government has not announced any admissibility

criteria; Neither has it expressed a preference for a particular
nationality. Due to practical implications, Hungary is focusing on
refugee groups meeting current criteria for ERF subsidies. Besides, the
reason why the government decided to resettle a family might be that a
family has better integration potential.
n/a
Deploying Staff

OIN and UNHCR
Dossiers
No
Missions
Selection mission was provided instead of dossier-based selection.

National Security was not present in the mission.
No cultural orientation was provided to the refugee neither by mission

delegates neither by IOM.
Assistance
documents
Though in principle assistance with travel documents was provided to

the refugee, a lot of gaps were encountered during the process.
Medical screening
with
Procedure Timing
travel
n/a
n/a
153

Comments
The debate focuses on the priorities of selection, and focuses on two

main perspectives, namely the integration potential of refugees versus
their protection needs.
Even though Hungary resettled only one refugee, a few gaps are
identified in implementing the prearrival phase. One of the gaps is the
lack of Cultural Orientation. In addition, the travel arrangements
emphasised a lack of planning, knowledge as well unclear division of
roles and responsibilities.
As for the pre-departure phase and the selection procedures, the
OIN sees no possibility for NGO involvement and emphasizes the strict
state priority when it comes to deciding on the target groups and
people
eligible
for
resettlement.
Stakeholders
interviewed
acknowledged the decisive role of the state in this phase, but
nevertheless the state should be ready to consider the involvement of
NGOs in elaborating on the selection criteria. In this respect, it should
be stressed that the knowledge of NGOs regarding Hungarian refugee
communities, integration, as well as several other aspects that could be
useful in complementing the states priorities and improving the
implementation of the selection mission.
It is recommended that a more precise development of the selection
criteria to be used in resettlement would also facilitate a more
conscious elaboration of an integration programme. There seems to be
an agreement regarding the fact that Hungary should not embark on a
resettlement programme for the most disadvantaged ones, as the
country could not guarantee a positive outcome of their integration and
their personal well-being. Stronger selection criteria should be
developed with the involvement of civil society and international
experts prior to starting the implementation of the resettlement
programme itself.

Post-Arrival phase
Status granted
The granting of refugee status in Hungary is a responsibility of the

Minister of Interior.
Act LXXX of 2007 on Asylum

Section 7 (5)
The minister may grant refugee status to an alien who was granted
recognition as a refugee by the competent authorities of another
country or the Office of the United Nations High Commissioner for
Refugees, and to whom the Geneva Convention applies as declared by
the refugee authority.
Rights granted
Residence
The resettled refugee is issued identity papers upon arrival and will
need to wait for the issuance for up to 2 months.
Airport Arrival
No
Info upon arrival
No
19
No inclusion and no information provided. Local community was not

involved in the planning process and not informed about the arrival of
the resettled refugee. This was also connected with the lack of
planning for the refugees residence past the collective information. 19
Ibid.
154

education)
Only a short version of the integration plan was provided to the refugee
after one month being over in Hungary. A few keys fact still remain
unclear. The integration plan does not provide information on the
educational and employment profile of the resettled refugee.
Availability for two months.
Access in the camp only in the Hungarian language, no English.

Access not guaranteed for vocational training.
Education
Access to education only in Autumn 2013.
Housing
Living in Biscke, the pre- integration centre. There are no plans for
accommodation after one year.
Counselling
Availability of psycho-social counselling.
Employment
No plans for the refugees employment. Limited access to specialized

advice/ presentation in the event of discrimination.
n/a
n/a
Mentoring
n/a

providers
n/a
Volunteer support
n/a
Comments
Hungary considered the resettlement of only 5 persons in 2012 and

integration capacity still remains a challenge. The integration plan is
still unclear and still pending with OIN.
As for reception conditions in general, refugees and beneficiaries of
subsidiary protection are accommodated in the open OIN integration
facility in Bicske. As a consequence of changes in legislation,
beneficiaries of international protection may generally stay only six
months (instead of one year) in the camp which can be extended
exceptionally by another six months. The present system has proven to
be ineffective in equipping beneficiaries of international protection with
the skills required for integration. Living in Bicske for up to one year
keeps people isolated from the local community. Most of the residents
do not have any contacts with Hungarian people except for the social
workers. They often do not have any other ties to people living outside
the camp who could ease their integration into the society. This also
slows their process of learning the language and how different
institutions and services operate. After having lived in Bicske for 6
months, most of the refugees do not have a detailed knowledge on
employment conditions, their own financial resources, proficiency in the
Hungarian language etc. that are needed to find employment. After
being released from Bicske, refugees do not have any realistic
prospects on access to accommodation or employment. Access to
language courses is also of great concern. As a result, some refugees
opt to move to other EU Member States upon recognition of their
refugee status. If returned to Hungary, they often become homeless.
Homeless refugees reportedly face various violations of their physical
integrity, with single women particularly at risk. 20
Moving on to the post-arrival phase of resettlement, the possibilities
of involvement open up. Since there seems to be a consensus that
integration of resettled refugees should happen in a joint system with
all other refugees, it is evident that the role of NGOs is expected to be
similar to the one that they are currently playing in integration.
20
Interview with the UNHCR Hungary, op.cit.

155

Lastly, the involvement of the existing refugee communities and the
possibility of them playing a supportive role if Hungary receives some
resettled refugees should be addressed briefly. There is almost no
example of an institutionalized refugee community which could be
involved on a project basis or on a more systematic level in
resettlement. Nevertheless, NGOs who have a deeper insight in the
structure of the diaspora communities in Hungary see potential in some
of the more settled and integrated refugee groups.
The following is some recommendations:
A stronger cooperation between the governmental

authorities and the NGOs is extremely important. The fact
that NGOs lack basic information about the governments and
the Ministrys decisions and activities regarding resettlement,
while the availability and openness to sharing expertise and
burdens seems to be present on the civil sectors side, is
certainly a serious problem. As it is evident from the analysis
of the interviews, civil society in Hungary is capable of
contributing to the implementation of the resettlement
programme, with a vast amount of professional knowledge
and enthusiasm. However, this potential is wasted by lack of
communication between the government and NGOs.
The opening of a Resettlement Dialogue Panel would

enable all parties to share views, expertise and ideas on
resettlement in Hungary. Moreover, in connection to the
previously highlighted need for a stronger cooperation
between NGOs and authorities, the panel would also enable
the governmental bodies to communicate their decisions to
NGOs and other important stakeholders.
The Helsinki Committees representative argues that keeping

the number of the resettled refugees to a minimum does not
always make it easier to carry out successful resettlement and
to set up a suitable plan for future resettlement activities.
Quite the contrary, resettling more refugees may actually
bring much more representative deductions and result in more
usable know-hows that can pay off on the long run.
A greater determination and a sustained effort at
improving the asylum system itself (with special emphasis
on integration) is what, in the opinion of many commentators,
the Hungarian authorities should offer. Namely, as NGOs and
UNHCR articulate with regards to different topics, openness
on the level of political declarations is not necessarily
sufficient to bring about real improvements. Unless Hungary
becomes aware of the crucial link between effective and just
integration and the successful resettlement of refugees, an
important decision to start a resettlement programme could
fail to fulfil its principal goals.
Funding
National Level
OIN does not plan to complement the ERF support by matching funds
additional to the basic support provided to all refugees in the country.
ERF
Hungary pledged to resettle in the calendar year 2012 five

persons belonging to the category of persons from a country or
region designated for the implementation of Regional Protection
156

Programme in order to be eligible for additional resources from the
ERF. 21 It will thus receive 6,000 euros for each resettled refugee, as
a first time applicant to the ERFs contribution.
Costs
It is recommended that a more detailed and more controlled budgeting

of the funds allocated by the ERF for each resettled person could
contribute to what many NGO representatives hope for, that is an
improvement of the Hungarian reception and integration services and a
better functioning of the system itself. This is especially true because of
the fact that while ERF funding represents one of the biggest incentives
to carry out resettlement, it is questionable whether the free handling of
the sums in question is necessarily a positive detail. As the UNHCR
warned, this can result in discrimination among the refugees.
Comments
With its resettlement programme Hungary committed to enhancing the

delivery of comprehensive durable solutions, to promoting increased
opportunities for refugee resettlement, the participation of new
resettlement countries, improved integration outcomes for resettled
refugees, and the strategic use of resettlement to unlock other durable
solutions such as voluntary repatriation and local integration. 22
The basis for the assessment of readiness for resettlement is the
proven and credible integration of refugees. Ultimately, the delivery of
Refugee Convention obligations on a domestic front remains a huge
issue. Only once the country establishes a satisfactory and credible
record in refugee integration will it be ready for receiving refugees
through resettlement. Hungary currently has to recover from its own
economic crisis. It seems to be a too great a challenge to now focus
on resettling refugees. 23
There is no sum allocated on a yearly basis to be spent on asylum
seekers, neither on a system-level nor on a per capita basis. This
makes the system more vulnerable to political decisions and, as the
economic situation in the country has deteriorated in the past few
years, financing of this area is becoming less and less of a priority.
Thus EU fund are the biggest incentive.
The kind of commitments and measures that Hungary has
adopted in the past few months in order to participate in resettlement
programmes are a promising start. Hungary now enters a critical few
years to see how resettlement may evolve and how its programme
may become more established.
21
Interview with the Hungarian Ministry of Interior, op.cit.
22
23
Ibid.
157


Ireland
Report written by
Frank McNamara (EUI)

Shauna Gillan (ECRE)
February, 2013

158
KNOW RESET Country Profile: Ireland
Country Profile: Ireland

Ireland has shared a common travel area with the United Kingdom, an Area which involves some cooperation on matters relating to immigration issues. Ireland joined the European Union in 1973. It is not part
of the Schengen area but participates in the Common European Asylum System. Inward immigration as a
result of EU free movement went up massively during the last decade. Polish people have now overtaken
UK nationals as the largest non-Irish community in Ireland. 1 Lower figures but with a similar pattern are to
be found with regard to Lithuania, Latvia and other eastern European States. Romanian and Indian are
other nationals who have seen a large increase in inward migration to Ireland between 2005 and 2011. This
free movement had slowed considerably by 2011. Non-EU national inward migration also increased over
the past decade. The Minister for Justice, Alan Shatter, has recently announced visa waivers and other
immigration incentives which the government has designed to stimulate the Irish economy. 2 Irelands
economic depression has not led to a substantial tightening in immigration control.
The late 90s and early 00s saw a huge increase in first instance asylum applications. It was indeed
possible to gain Irish citizenship by virtue of being born on the territory of Ireland. In June 2004 the 27th
amendment was made to Bunreacht na hireann the Irish constitution. 3 Consequently, asylum application
numbers have been falling since 2005. 4
The reform of the legislation providing for international protection of refugees has been mooted for
several years now and has been widely supported as an area in need of reform across the Irish parliament
Dil ireann. 5
Ireland has a long history of resettlement. The website of the Office for the Promotion of Migration
Integration, which is the office responsible for resettlement in Ireland, lists the resettlement of Hungarian
refugees in Ireland in 1956 as its first resettlement. 6 Chilean refugees were resettled in 1973, Iranians in the
mid-eighties and refugees from the former Yugoslavia in the early nineties. Ireland now admits people for
resettlement whether or not they satisfy the 1951 Geneva Convention conditions. Therefore the programme
is seen as a humanitarian response. 7
It was not until 1998 that a government decision led to an actual resettlement programme being
founded. 8 In 2005, the initial programme (for ten applicants plus their immediate families) was expanded to
two-hundred persons in total. 9 This quota was filled until the economic crisis began. Thereafter the
continuing uncertain economic conditions have hampered the filling of Irelands resettlement quota.
http://www.cso.ie/en/media/csoie/census/documents/census2011pdr/Pdf%203%20Commentary.pdf
http://www.inis.gov.ie/en/INIS/Pages/PR12000003
That amendment changed the way in which Irish citizenship would be granted to children born on the island of Ireland.
From then on, a person born in the island of Ireland, which includes its islands and seas, who does not have, at
the time of the birth of that person, at least one parent who is an Irish citizen or entitled to be an Irish citizen is not
entitled to Irish citizenship or nationality, unless provided for by law.
http://www.orac.ie/pdf/PDFStats/Monthly%20Statistics/2012/2012%2001%20January%20ORAC%20monthly%20report.pdf
This legislation has been disrupted by general elections in 2007 and 2011. The Minister for Justice was recently
questioned in the Dil on the status of this reform, he stated: "the Immigration, Residence and Protection Bill 2010,
which I restored to the Dil order paper, comprehensively reforms and simplifies the current refugee status
determination process. The Bill provides for the introduction of a single application procedure for the investigation of
all grounds for protection and any other grounds presented by applicants seeking to remain in the State. This change
of the processing framework will remove the current multi-layered and sequential processes associated with the
existing system." http://debates.oireachtas.ie/dail/2012/02/21/00338.asp
Available at:
http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlement-overviewofrecentresettlementprogrammes-en
Interview for Know Reset with Martina Glennon (Assistant Principal Officer) and Elaine Houlihan (Executive Officer),
Resettlement Unit, Office for the Promotion of Migrant Integration , conducted on the 5th of January 2012.
Irish Government Decisions are the decisions taken by Cabinet when it meets. The cabinet is made up of the
Taoiseach (Primeminister); T naiste (Deputy Primeminister); and the Ministers in government. The Attorney General
of Ireland also attends Cabinet.
Available at: http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlement-intro-en

159
KNOW RESET Country Profile:Ireland

The number of applications for international protection to the Office of Refugee Applications
Commissioner has fallen year after year since 2005. The peak for that office came in 2003 with almost
seven and a half thousand applications. That figure dropped to a nine year low of almost 1,300 applicants
in 2011. This continuing lowering, along with Irelands low refugee recognition rate at first instance
application has not influenced Ireland to increase resettlement beyond the 2005 decision to expand and
certainly not since the financial crisis began. The 2005 decision to expand resettlement might be in direct
response to the drop in numbers of applications at first instance. It seems that economic stability and
continued low application rates would see Irelands quota for resettling refugees increase but only after
substantial economic recovery.
While Ireland has a resettlement programme and does not conduct ad-hoc resettlement, this does not
mean that Ireland does not respond to emergency requests from the UNHCR and the EU. Responses to
emergency requests are within the standing quota referred to above. 10 The latest example of such requests
came through Ireland accepting requests from the UNHCR to accept refugees (ex-Libya) from Tunisia and
to a call from the EU to accept refugees also ex-Libya, from Malta. 11 In recent years, Ireland has resettled
refugees from Regional Protection Programmes (RPP) areas identified by the EU. 12 It is noteworthy that the
relocation of refugees from Malta to Ireland has been realised within Irish annual resettlement quota.
10
Interview with Martina Glennon and Elaine Houlihan, op.cit.
11
Ibid.
12
ibid.
160
Asylum Profile
status granted 13
61 (2010)
1,939 (2011)
Number of asylum
seekers 14
1,290 (2010)
Resettlement Scheme
Resettlement Quota
24 (2011)
15

200/year (since 2005)

Refugee Act 1996, Number
17 of 1996.
Specific provisions on resettlement: Programme Refugees Section 24
Other basis of
resettlement:
Government Decision,
November 1998 16
Marked the start of Irelands resettlement programme. 18
Government Decision, June

2005 17
Allowed for the expansion of the resettlement programme from ten persons
plus family members to 200 persons.
project/reform
Reform of resettlement is unlikely. For the foreseeable future, all major

policy decisions will be dictated by Irelands economic performance. This
is also true of immigration and asylum.

1956
530 refugees from Hungary
1973
120 refugees from Chile
1979-2000
212 20 refugees from Vietnam
1985
26 refugees from Iran
1992-2000
455 21 refugees from the Former Yugoslavia (Bosnia)
1999-2001
1032 22 refugees from Kosovo
13
Source: Office of the Refugee Applications Commissioner.
14
ibid.
15
Source: Office for the Promotion of Migrant Integration.
16
See: http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlement-intro-en
17
See: http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlement-intro-en
18
For the announcement of this in the Dil, see: http://historicaldebates.oireachtas.ie/S/0157/S.0157.199812010007.html
19
Numbers refer to initial intakes only. See: http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlementoverviewofrecentresettlementprogrammes
20
591 persons admitted under Family Reunification process during the time period.
21
22
161

b) On a programme basis 23
Since 1998
Since 2005
10 files
The original programme was set up to resettle ten people plus their family
members which usually worked out as between thirty and sixty people.
200 persons
While the refugee resettlement programme is characterised as being the
only resettlement which now occurs in Ireland, this programme can react
to a given humanitarian situation which arises. Taking refugees in
response to a humanitarian situation which arises is still done but it
occurs within the quota for the Irish resettlement programme.
c) Temporary
Resettlement:
Governmental Level
Cooperative arrangements
In resettling Burmese Rohingya in 2009, the Irish authorities were in touch

with Canada and the UK who had already resettled Rohingya. The
resettled communities were also put in touch with each other. In 2009,
Ireland also took some refugees in cooperation with the UK. This was a
Transnational EU funded project. Bulgaria and Belgium also participated in
that initiative as they were considering participating in the resettlement
programme. 24
The MORE Project (Modelling

of
National
Resettlement
Process and Implementation of
Emergency Measures), Dec.
2003-April 2005
EU funded Project. The Project partners: Irish Ministry of Labour, Finland

and the Reception and Integration Agency, Ireland in cooperation with the
UNHCR, the International Organisation for Migration (IOM) and the
European Council on Refugees and Exiles (ECRE).
n/a
experience
From Guantanamo
Intra-EU Relocation
Aim: to develop comprehensive models for the resettlement process which

can be utilised by other EU Member States and other countries. The main
outcome of the Project was the production of a practical guide to the
resettlement process. 25
In July 2009 it was widely reported in the press that Ireland would be
resettling two prisoners from Guantanamo bay. The two identified were
Uzbek nationals in origin. 26 Press reports in September of that year confirm
this resettlement and state that the men had arrived on Irish territory. It is
further stated that A team from the Department of Justice is assisting them
in a resettlement programme. 27 No Uzbek resettlement is listed on the
Departments official statistics. 28
Relocation from Malta in 2011. Inside the existing refugee programme and
its quota. 29
23
Source: Office for the Promotion of Migrant Integration.
24
25
The project is available at: http://www.integration.ie/website/omi/omiwebv6.nsf/page/AXBN-7TCDXV11105525en/$File/More%20Project%20Report-%20Shaping%20our%20future.pdf
26
See: http://www.guardian.co.uk/world/2009/jul/29/ireland-accepts-guantanamo-inmates
See also: http://news.bbc.co.uk/2/hi/8174262.stm
27
See: http://www.rte.ie/news/2009/0927/guantanamo.html
28
See: http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlementoverviewofrecentrefugeeresettlementprogrammes2000-2011-en
29
Interview with Martina Glennon and Elaine Houlihan op.cit.

162

Comments
Adherence to the quota has fluctuated in recent years, apparently due to

Irelands current economic difficulties. It is unlikely that Ireland will fulfil its
quota in the foreseeable future and expansion of that programme is not on
the agenda and will not arise unless Ireland is able to again fulfil its quota
on a regular basis.

Refugee Resettled 30
2012
49
Country of Origin: 23 DR of Congo, 5 Egypt, 1 Eritrea, 3 Ethiopia, 5
Iranian Kurd, 4 Liberia, 10 Somalia
2011
45
Country of Origin: 23 Sudanese, 1 Moroccan, 6 Iraqi, 6 Ethiopian and 9
Eritrean
Gender:21 Male, 24 Female
Age:16 in 0-14, 9 in 15-24, 14 in 25-44, 6 in Over 45 age
Maritial Status: 17 Married, 28 Single
Religion:1 Christian, 40 Muslim, 4 Orthodox
2010
20
Country of Origin:16 Iraqi, 3 Burmese (Karen), 1 Syrian
Maritial Status: 8 Married, 12 Single
Religion:4 Christian, 16 Muslim
2009
192
Country of Origin:1 Afghan, 3 Cuban, 84 DR Congolese, 8 Iranian Kurd,
7 Iraqi,4 Jordanian-Palestinian, 82 Burmese (Rohinga), 3 Stateless
Maritial Status: 35 Married, 143 Single, 14 Divorced/Widow/Separated
Religion:89 Christian, 110 Muslim, 3 Unknown
2008
101
Country of Origin: 1 Chinese, 12 Cuban, 2 Eritrean, 3 Ethiopian, 6
Iranian, 5 Iraqi, 2 Russian (Chechnia), 71 Sudanese, 1 Syrian
Maritial Status: 24 Married, 71 Single, 6 Divorced/Widow/Separated
30
Source: Office of the Refugee Applications Comissioner.

163

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Section 24 of the Refugee Act (as amended) provides that the Minister
may, in consultation with the UNHCR and the Ministry for Foreign Affairs,
admit people for resettlement whether or not they satisfy the 1951
Geneva Convention conditions.
The majority of the refugees resettled are accepted based on UNHCR
priorities and are referred through the UNHCR referral systems. Ireland
does not exclude applications based on health issues unless the specific
health issue cannot be dealt with by the national health service or it
poses a threat to public health.
Additional National
Criteria
Group resettlement is preferred. Individual cases are rare. Immediate

family members are included in the quota. Therefore when an application
is examined, care is taken to ensure that all of the nuclear family
members are considered together at the time of application. The
definition of family member for resettlement purposes, which includes
unmarried children over the age of 18 years, is broader than that the
definition of family Member in the Refugee Act 1996, as amended. 31
Unaccompanied child cases are not accepted.
Ireland favours receiving a balanced caseload, which may include a
mix of Women-At-Risk cases, persons with disabilities and other special
needs cases. There is no specific target for any category, although
priority is said to be given to cases with Legal and Physical Protection
Needs .
In addition to the above eligibility categories, which reflect UNHCRs
standard eligibility criteria, Ireland also favours the inclusion of
community leaders and spiritual leaders in resettlement selection . 32
Selection Process 33
Deploying Staff

Resettlement is coordinated at a national level by the Resettlement

Unit of the Office for the Promotion of Migrant Integration (OPMI),
Department of Justice and Equality. Local Authorities and NGOs play a
very important role in the resettlement process. The programme must be
administered within existing budgets using a mainstream model of
service provision. There are ten government departments involved and
an Inter-Departmental Working Group at national level has been
established with representation from all ten Government Departments. 34
The decision on who Ireland will accept for resettlement (i.e. the
country of origin/country of refuge) is taken by the Minister for Justice and
Equality in consultation with the Minister for Foreign Affairs and the
UNHCR. The decision is informed by discussions held between
resettlement countries worldwide at their biannual Working Group on
Resettlement meetings and by information provided by the UNHCR
during the Annual Tripartite Consultations on Resettlement.
31
32
UNHCR Resettlement Handbook, 2011.
33
This section is written based on what the Office for the Promotion of Migrant Integration list as their selection process
on
their
website.
Available
at:
http://www.integration.ie/website/omi/omiwebv6.nsf/page/resettlementirishresettlementproc-en
34

164

Applications for resettlement are submitted by the UNHCR and are
examined by the Office for the Promotion of Migrant Integration. If
considered necessary, (e.g. cases with medical or special needs) other
Government Departments, the Health Service Executive and the Garda
National Immigration Bureau are consulted.
The resettlement process from an administrative perspective is as
follows: 35
Staff from the Resettlement Unit attend the Working Group meetings
and Annual Tripartite Consultations on Resettlement where UNHCR
present their priorities for the coming year.
Based on these priorities, the resettlement team develop a proposal in

consultation with the Department of Foreign Affairs and other units within
the Department of Justice and Equality. This proposal is then submitted
to the Minister for approval.
Dossiers
Once the Minister gives approval to proceed, the Inter-Departmental

Working Group meeting is called to discuss the proposal. The UNHCR
and IOM are advised and the process of resettlement begins.
At a later stage when the exact composition of the group is known, a

second meeting of the Inter-Departmental Working Group is called to
discuss the challenges of the caseload so that the various service
providers can be put on notice to make the necessary preparations. This
Inter-Departmental Working group is also kept informed of developments.
Missions
The UNHCR and IOM have supported selection missions in the past
by providing information on the caseload, organised transport and
interview space etc. Between 2005 and 2008 Ireland carried out selection
missions to Jordan (Iranian Kurds), Thailand (Burmese Karen), Uganda
(Sudanese), Bangladesh (Burmese Rohingya) and Tanzania (D. R.
Congolese). During the missions, staff of the Office for the Promotion of
Migrant Integration would present a two day question and answer
information session. Ireland has conducted joint selection missions in the
past with other resettlement countries.
Due to the reduced numbers at the moment, no selection missions have
taken place since 2008. Selection missions are thought of as the best form
of selection but an emphasis is placed on being realistic about the benefits
based on the costs and effort required by many organisations to organise
such missions. It is thought that the numbers currently being taken do not
warrant selection missions. 36The primary reasons for the Irish authorities
not undertaking any selection missions more recently is again based on
economic realities facing the State. The fact that numbers in the
resettlement programme have dropped means that selection missions are
not needed for the 45 people resettled in 2011 or the 20 people resettled in
2010. Dossier selection is seen as adequate for resettling small numbers
from various countries whereas a selection mission is needed if a large
number are being taken from one specific place.
Pre-Departure
Activities
The OPMI does not engage the IOM to carry out pre-departure cultural
orientation. This option was explored and it was decided that it was not the
best approach. The Irish authorities conduct pre-departure cultural
orientation.
35
The following explanation is based on: ibid.
36
ibid.
165
Assistance
documents
with
Medical screening
travel
Procedure Timing
The IOM takes responsibility for the health screening of refugees being
resettled to Ireland, for the securing of visas and travel documents, and for
making their travel arrangements.
There is an informal agreement between the Department of Foreign
Affairs and Trade and the IOM in this regard.
Approximately 9 months before the arrival of a new group for
resettlement, the resettlement team of the OPMI begins the process of
preparing receiving communities.
Ideally the decision should be taken by May of the year for the next
years programme. Being realistic, the current environment is not
conducive to that. 37
Comments
The Irish standards for the procedure of resettlement are up to the highest
international standards, but a greater level of pre-arrival planning would
help to ensure successful resettlement and integration in the longer term.
Recommendations: Local authorities are of vital importance to a
successful resettlement and to this end there needs to be a large degree
of notice given to local public service providers and authorities, as to the
arrival of refugees for resettlement in their area. It is recommended that a
standard set of time be enforced and that this time reflects the need for
the local area to prepare properly for the arrival. This also allows for local
government to apply for special funding to be provided in order to allow
for extra demand in their locality.
Furthermore, resettlement must take specific account of local
services. Health facilities in particular must be able to meet this new
demand and be easily accessible to resettled refugees. In this regard,
any specific needs of refugees who are to arrive should be identified and
specific plans made in conjunction with local authorities as to how these
needs will be met. Educational needs and special requirements for the
disabled in particular are salient here.
Overall, feedback from local authorities of both positive and negative
elements of their experience in resettlement should be actively sought
for. This feedback should be used as inspiration for forming a loose
template or planning guide for local authorities tasked with receiving
resettled refugees for the first time.

Post-Arrival phase
Status granted
Section 24, Programme
Refugees
Refugee Act 1996, Number
17 of 1996
The legal status is as Programme refugee, as provided under

Section 24 of the Refugee Act, as amended. While a Programme refugee
does not get Geneva Convention Status they get the same rights and
entitlements that are attributable to a Convention Refugee under Section
3 of the Refugee Act 1996 as amended. 38
After resettlement in Ireland, the status of the resettled refugee is
specific within Irish legislation; they are what is called a Programme
refugee. Their rights are very similar to the ordinary Irish Convention
refugee status. They do not receive any other form of protection such as
subsidiary protection. Even if they have not been declared as refugees by
the UNHCR, they will still gain Programme Refugee status. 39
37
ibid.
38
ibid.
39
Ibid.
166

Rights granted
Section 3 of the Refugee Act
Residence
Provides for The extension to refugees of certain rights and applies the
programme refugees the same way as ordinary status refugees.
The right to reside in the State and to travel in or out of the State
Airport Arrival
n/a
Info upon arrival
n/a
Local befriending programmes
education)
The same medical care and social welfare rights as an Irish citizen.
Access to education and training like Irish citizens. Health screening after
arrival.
Culture/information/law and order; Money management; paying bills;

Using banks, Post offices, Public transport. 40
Counselling
Professional counseling for survivors of torture provided by the NGO

SPIRASI, part-funded by the government. This NGO specialises in
helping victims of torture.
Language training
The right to seek and enter employment, to carry on any business, trade
or profession like Irish citizens.
Should an applicant decide to omit a member of the nuclear family at the

time of application, and then seek to be reunited with that family member
at a later date, this type of application would be at the discretion of the
Minister.

Mentoring
An introduction to service providers

providers
n/a
n/a
Volunteer support
Comments
The rights awarded to resettled refugees are to the highest international

standards. Full rights of convention refugees are given. In certain
circumstances, resettled refugees have an advantage over a convention
refugee such as in terms of family reunification.
Recommendations: It is suggested that the Office for the Promotion of
Migrant Integration should consult with local authorities before making a
decision to resettle a group to that area and more information should be
provided pre-arrival to the local authority co-ordinating integration at the
local level, to enable them to better plan to meet the refugees needs.
One way in which this may be done is to facilitate formal contact between
local authorities of the proposed resettlement and other local authorities
who have already had experience of refugee resettlement. In this way
best practice can be more easily identified for the benefit of all.
A further suggestion is that during refugees time at the initial
reception centre, detailed assessments of their educational and health
needs should be undertaken, so that the local authority and local service
providers can better prepare for their arrival. This is particularly true of
more vulnerable cases or cases which have proved challenging in the
experience of other local Irish authorities. The suitable integration of
teenagers is an example of one such demographic. Language support
and access to educational opportunities are a priority for these cases.
40
Presentation slides of Martina Glennon, Resettlement Unit, Office for the Promotion of Migrant Integration.
167

Finally, while it is appreciated that the low key media strategy
adopted by the office is with the intention of facilitating integration and
allowing resettled refugees to go about their new lives in a private
fashion, it is suggested that this approach could be balanced with some
media coverage. This would be with the aim of preventing misinformation
to spread among the public and indeed promoting a more pro-active
awareness and sympathy raising strategy within the public.
Funding
-National Level
-ERF
The budget for resettlement is prepared as part of the budgetary process

for the Office for the Promotion of Migrant Integration which is part of the
Equality Division. The amount required is estimated based on the projected
numbers to be accepted and actual costs in preceding years and the
anticipated costs in the coming year. This is then put into the mix when
preparing the budget for the whole Department. Negotiations then take
place at Departmental level between this Department and the Department
of Finance and the approved budget is redistributed accordingly. If the
Department of Finance does not provide financing for the project then the
project cannot proceed. This has not occurred to date. 41
Details of the 2008 2013 ERF Multi-Annual Programme. 42
Year 43
2008 185,000
2009 202,000
2010 200,000
2011 200,000
2012 200,000
2013 200,000
The figures are total figures for the ERF contribution to three Irish
strategic priorities. One of these priorities specifically stated that An
objective of the strategy will be to enhance the resettlement programme
at present being implemented in cooperation with the UNHCR. 44 That
priority is due to total 1,187,000 by 2013.
Costs
n/a
Comments
Ireland could start resettling more refugees or at least fulfil its own quota
again. Of course, the Government could if approached by the UNHCR, in
exceptional circumstances decide to provide additional resettlement places
but this would require a Government Decision. I think that this is unlikely in
the current economic environment. 45 The economic situation of the Irish
state means that even the unfulfilled existing quota must be considered at
risk. Since the rise of uncertainty over the States finances, to a certain
degree, there has been a general hardening of attitude to immigration. 46
Economic situation
41
42
An overview of the ERF in Ireland can be found at: http://www.integration.ie/website/omi/omiwebv6.nsf/page/fundingfundforintegration-erf-en
43
These exact figures are taken from:

http://www.integration.ie/website/omi/omiwebv6.nsf/page/funding-fundforintegration-erf-ModelMultiAnnual-en
44
Available at: http://www.integration.ie/website/omi/omiwebv6.nsf/page/funding-fundforintegration-erfModelMultiAnnual-en
45
46
For example, the tightening of the Common Travel Area between Ireland and the UK. See:
http://www.rte.ie/news/2011/1220/border.html
168

The economic deterioration can be seen as a threat to the continued
existence of the programme: The resettlement programme, like all other
Government programmes is currently under review as part of the
spending review taking place in each Department. 47
Incoming Legislation
47
The incoming Immigration, Residence and Protection Bill 2010 will not
impact on resettlement but focuses on streamlining the existing asylum
process through a single procedure whereby all forms of protection are
considered simultaneously. In the personal opinion of the interviewee: I
think it will have a positive impact. The status, rights and entitlements will
be more clearly stated. It will separate large scale emergency situations
(such as the Kosovan and Bosnian situation) from annual resettlement
programmes. The new act clarifies entitlements with regard to travel and
travel documents. Furthermore: The period of waiting to apply for
citizenship will change. At the moment there is an administrative
arrangement whereby programme refugees can apply after three years.
This will be normalised and will revert to 5 years residency before being
eligible to apply. This is the same that applies to everyone else but there
was an administrative arrangement that programme refugees could
apply after three years. Other than that, I can see no major difference.

169


Italy
Report written by
Laura Puccio (EUI)

Maria De Donato (ECRE)
July, 2013

170
KNOW RESET Country Profile: Italy
Country Profile: ITALY

Italy underwent major changes during the 20th century which had a fundamental impact on its asylum
profile. First, there has been the evolution from being a country of emigration to a country of immigration
and from being considered a poor country to having wealth in the country. Second, the evolution of
European integration has also had important effects on Italian asylum law. Finally the most recent evolution
has seen Italy strengthening its control measures against illegal migration (the so-called, Pacchetto
Sicurezza) in the face of a wave of irregular migration from the Arab spring, the resulting humanitarian
crisis shows some of the limits of the current Italian framework for immigration and asylum.
It was not until 1989 that Italy issued a framework law for its asylum and immigration policy. This
legislation was passed with an eye to future Italian participation in the Schengen system. 1 The decreto
legge 416/1989, implemented in law by legge 39/1990, also called legge Martelli, lifted the reservations
that Italy had on the Geneva Convention of 28 July 1951 and introduced the first main framework for
asylum law in a single article on asylum. During the 1990s, with the increasing numbers of request for
refugee status, the centralised system for the determination of refugee status was in general acknowledged
to be overburdened and inefficient. The Legge 30 luglio 2002, N189, also known Legge Bossi-Fini,
Modifica della Normativa in Materia di Immigrazione e di Asilo decentralised the procedure and provided
for the creation of the Territorial Commission and in the process creating a simplified procedure.
Decentralisation of the system was also promoted by the Legge Bossi-Fini in the context of reception
through the creation of Sistema di protezione per richiedenti asilo e rifugiati (SPRAR). The SPRAR
system continues in the tradition of the Italian government to involve private actors (NGOs) into its
reception and assistance activities. The SPRAR also conducts further decentralisation through the
involvement of local communities especially in efforts for integration. For the moment, the system suffers
from budget constraints and capacity limitations. These capacity limitations were especially felt after the
Arab Spring and the consequent migration flows toward Italy. As a result, the government issued various
urgency measures to cope with the humanitarian crisis and adapt the capacity. The government requested
and obtained help by the European Commission to sustain these efforts.
Following the insertion of resettlement as part of the EU priorities in Decision n. 537/2007/CE, Italy
included resettlement in its 2009 and 2010 National Programmes in which it committed to resettled 50
refugees in 2009 and 2010 from Libya/Syria. The 2011 National Programme does not make mention of
resettlement and focuses on the emergency situation that has evolved from the Arab spring. 2
Italy does not have a specific legal basis for resettlement projects but it still has resettled on an ad hoc
basis. The first project, called Oltremare I, was started in 2007 as a pilot. It was followed by a second
Oltremare project (Oltremare II), which took place in 2008/2009 mainly for the purpose of allowing family
reunions with the first group of resettled refugees. The third project, promoted by the European
Commission, involved Palestinian refugees from the camp Al Tanf situated at the frontier between Syria
and Iraq who were resettled in Italy in 2009. The last project was the result of two humanitarian
resettlement operations which took place in 2011 and saw Eritreans resettled from Libya.
Christophe Hein links the Legge Martelli to the Schengen process at the European level. See: Christopher Hein, Storia
del diritto dasilo in Italia, in Christopher Hein (ed.) Rifugiati ventanni di storia del diritto dasilo in Italia, 2010
For the National Programmes, see: http://www.serviziocentrale.it/?Inglese&i=13; SPRAR reports:

http://www.serviziocentrale.it/?Documenti&i=7
171
Asylum Profile
status granted 3
10,288 (2011)
7,558 (2010)
37,350 (2011)
12,121 (2010)
Resettlement Scheme
Ad hoc
Resettlement Quota

Legge 39/1990, also called
Legge Martelli
There is no specific provision on resettlement, neither is there a

provision explicitly allowing for resettlement procedures.
Decreto Legislativo 286/1998,

also known as Testo Unico
The procedure for requesting international protection has to start from

the Italian territory and cannot be started from abroad. Therefore,
resettled persons have to apply for a protection status having already
arrived on Italian territory.
Legge 189/2002, known as

Bossi-Fini, implemented by
Decreto del Presidente della
Repubblica 303/2004
Legislative decree 140/2005 5.
Decreto Legislativo
251/2007
Decreto Legislativo 25/2008
Decreto Legislativo 159/2008 6
Ministerial decree 6 March
2008
Other basis of
resettlement:
project/reform
Since 2006-2007 there have been several proposals for asylum law
reform oftentimes initiated by the CIR and with the involvement of other
NGOs acting in the field of asylum (such as the Centro Astalli) and
various groups of deputies and senators. The draft proposals of law aim
at simplifying the legislative framework and at creating a single code of
law for Asylum and Refugee Law distinct from the legislative framework
on immigration. The projects include a specific provision on
resettlement. This provision would provide for the abolition of the
distinction made between pre-arrival (selection) and post-arrival
(determination of status) phases and would allow a single procedure for
SPRAR report 2010-2011. Note: In Italy, both local and national authorities have right to give protection status to
refugees. Therefore, the numbers in 2010 and 2011 refer to only the protection status given by national authorities.
Document on statistics : http://www1.interno.it/mininterno/export/sites/default/it/temi/asilo/sottotema009.html
http://www.serviziocentrale.it/file/server/file/D_Legislativo%20n_140-2005.pdf
http://www.camera.it/parlam/leggi/deleghe/testi/08159dl.htm
172

the recognition of international protection which could already be
initiated from abroad. This procedure would only be limited to certain
categories of refugees who are participating in a resettlement project.
The pre-arrival procedure would then consist both of the selection and
status recognition phase. The provision foresees that statuses granted
under this particular resettlement procedure will be identical in terms of
the rights and benefits as those granted by the ordinary procedure.
This would effectively make Italy a resettlement country with a defined
resettlement quota over three-year periods. 7

Projects: 8
Project 1: Oltremare I
(started in 2007)
Pilot project to receive 39 nationals of Eritrea, from the camp of

Misratah (Libya) where they were detained with a threat of refoulement.
They were resettled in Cantalice and the province of Rieti (mainly
women and some children).
Project 2: Oltremare II
(2008-2009)
30 (circa) Eritreans from Libya to Cantalice and Poggio Moiano, near

Rieti (mainly family members of the refugees in Oltremare I).
Project 3: Reinsediamento a
sud (2009-2010)
Commitment to resettle circa 50 Palestinians from the camp of Al Tanf

(Iraq/Syria) to Riace, Caulonia and Stignano (Calabria).
Project 4: Eritreans from

Libya (2011)
Two Humanitarian Resettlement Operations for the reception of

Eritreans from Libya. Resettled to the CARA of Salina Grande
(Trapani) and from there they were resettled within the province of
Campania.
c) Temporary
Resettlement:
n/a

Governmental Level
n/a
n/a
experience
From Guantanamo
The Italian Ministry of Foreign Affairs had apparently discussed the

possibility of resettling a former detainee but there does not seem to
have been any further developments on the grounds of public security
issues. Decision rested on the Ministry of Internal Affairs.
Proposta di legge N447 d 'iniziativa dei deputati ZACCARIA, AMICI, D 'ANTONA, FERRARI, GIOVANELLI, Disciplina
del diritto di asilo e della protezione sussidiaria Presentata il 29 aprile 2008
http://parlamento.openpolis.it/atto/documento/id/2378#PD;
Disegno di Legge del 10 Novembre 2008, N 1221, Disciplina del diritto di asilo e della protezione sussidiaria, diniziativa
dei senatori MARCENARO, MARINARO, MONGIELLO,DI GIOVAN PAOLO, DELLA MONICA, DELLA SETA
8
For Oltremare projects, numbers and details taken from the CIR website:
http://www.cir-onlus.org/Progetto%20Oltremare.htm; for the other projects number and details taken from the CIR.
173
Intra-EU Relocation
Comments
Intra-EU relocation, or at least more burden-sharing between border

countries and other EU countries, is often discussed in Italian public
political discourse. 9 Considering the recent problems in managing the
consequences of the Arab spring, Italy would probably not be opposed
to starting a discussion on intra-EU relocation, yet from the perspective of
a sending State rather than a receiving State. As shown by the numbers
given in the National Program of 2011 and of the SPRAR report 20102011, Italy has problems with its current reception capabilities.
Discussions were on-going on the fate of the Iranian refugees from camp
Ashraf in Iraq. 10 Italy has discussed with UNHCR the possibility for their
resettlement. However the discussions are still at the early stages.

Refugees resettled
2011
108
Country of Origin: 108 (Eritrea and Ethiopia)
Country of First Asylum: 108 (Libya)
2009/2010
179
Country of Origin: 179 (Palestine)
Country of First Asylum: 179 (Iraq)
2008/2009
30
Country of Origin: 30 (Eritrea)
Country of First Asylum: 30 (Libya)

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Oltremare I was led by the Ministry of the Interior in partnership with its
implementing partners, CIR and the Province of Rieti / Municipality of
Cantalice, and with the support of UNHCR. UNHCR in Tripoli selected
refugees on the basis of their vulnerability and prepared dossiers that
were transmitted to the Italian authorities. The refugees were all exprisoners detained in the camp of Misratah in Libya and were at risk of
being expelled from Libya.
Oltremare II: UNHCR selected refugees on the basis of their
vulnerability and the family relationship with those previously resettled
under the project Oltremare I who had no possibility to meet with
family reunification criteria.
Reinsediamento a sud: The Italian government accepted to resettle 179
Palestinian refugees recognised under the UNHCR mandate living in very
harsh conditions in the Al Tanf camp situated at the Syrian-Iraqi border.
http://www.interno.it/mininterno/export/sites/default/it/sezioni/sala_stampa/notizie/asilo/0746_2008_09_08_parigi_confer
enza_asilo.html
10
http://www.esteri.it/MAE/IT/Sala_Stampa/ArchivioNotizie/Comunicati/2011/12/20111227_ashrafUNAMI.htm
174
Additional National
Criteria
The 2011 resettlement: As opposed to previous resettlement

operations, this one took place without the involvement of UNHCR and
IOM and not all persons had been recognised under the UNHCR
mandate in Libya. Following an appeal made by the Bishop of Tripoli,
Habeshia Association and CIR, a political agreement was reached
between the Ministry of Interior and the Ministry of Foreign Affairs to
urgently evacuate these persons through an operation conducted by
the Italian Air Force. No visa was issued to these protection seekers
who were admitted to the ordinary asylum procedure upon arrival.
Selection Process
Deploying Staff

Dossiers
Missions
n/a
The quotas for the resettlement project are normally decided in
negotiation. The Ministry for Foreign Affairs has had also a role in
negotiating the quotas but the final decision is taken by the Ministry for
Internal Affairs. The projects are then initiated on the basis of an
informal agreement between the Ministry of Internal Affairs and the
UNHCR. After the informal political decision is taken, the Ministry of
Internal Affairs issues an internal decision which allowed the embassies
to issue the visas for the resettled refugees.
The selection procedure of a resettled refugee is mainly done by
UNHCR and officers of the Ministry only assess the dossiers on
grounds of national security issues after the UNHCR selection has
been done. It was only in the framework of the third project that a
mission was organised. This mission went to Iraq and was organised
by the Ministry of Internal Affairs to assess the situation there. Once
the selection is complete, visas are issued (normally temporary short
term visa) and the resettled refugees are transported to Italy.
No

documents
IOM assisted resettled refugees in obtaining travel documents and

made travel arrangements. Refugees were accompanied to Italy by
IOM officers.
Medical screening
IOM
Procedure Timing
n/a
Comments
Cultural orientation should be provided before departure in order to

manage refugees expectations.
The division between pre-arrival selection and post-arrival
evaluation of the status makes it too long a process. Some refugees
refused to apply for their status upon arrival. The draft law proposal
mentioned above would simplify the matter by arranging for an
assessment of the status at the same time as the selection process.

Post-Arrival phase
Status granted
Legislative decree 251/2007
The law in force foresees the recognition of two different statuses of

international protection: refugee status and subsidiary protection.
Resettled persons have to apply for their status upon arrival.
Procedure to obtain the status follows the simplified procedure foreseen
in Italian law for requesting international protection. Requests are done
through the compiling of the document form (modulo C3) at the Police
175

Office of the customs. In the first projects, the forms were not provided
immediately while in the subsequent projects requests were filed
directly at the airport.
Decision on the status is decentralised and falls under the
responsibility of the Territorial Commission. For the resettlement project
in the province of Rieti, the competent Territorial Commission was
Rome; for the third projects with resettlement in Calabria, the Territorial
Commission was the one of Crotone and finally the last project as the
resettled refugee transited through Salina Grande, the requests were
assessed to Territorial Commission of Trapani.
The fourth project also involved an interview by the Territorial
Commission of Trapani. In the previous projects the Territorial
Commissions involved did not request an interview but still made an
appraisal of the documents received to decide on the status to grant the
applicant. Normally interviews are the central part of the evaluation of
requests by the Commission but the Territorial Commission can decide
to omit it if it considers there are sufficient grounds to accept the
request for refugee status without it. The Territorial Commission of
Trapani required the interview as, unlike the previous projects, it
granted diversified statuses (either refugee or subsidiary protection
status) on a case by case evaluation.
Rights granted
Residence
Refugee status automatically awards a residence permit for a period of

five years renewable. It grants rights with regard to family reunification
and gives a document for Schengen movements as well as access to
the labour market, study, health assistance and free movement,
integration and housing. Similar rights are given to those benefiting from
subsidiary protection, however that status grants a permit of stay of
three years only.
Airport Arrival
Italian authorities, UNHCR, IOM, CIR, RCOS Habeshia received the

persons to be resettled at Fiumicino airport for the Oltremare 1 and 2
projects. Reinsediamento a sud: Ministry of Interior, UNHCR, IOM.
Info upon arrival
Info were provided soon after arrival.
No. However, some events were organised in Calabria by the local

Municipalities
education)
Municipalities were directly involved in providing integration services in

partnership with some NGOs. CIR supervised the work of social
assistants.
Cultural orientation was provided on the rights and duties of refugees,

on Italian society, on the ways in which resettled persons could
establish relationships with the Italian Institutions and local resources
and services.
Counselling
Legal/social/psychological counselling and assistance were provided.

CIR provided counselling to the social assistants of Municipalities who
had direct contact with resettled refugees. Counselling and assistance
for integration (social, labour, housing, schooling, health, etc..) were
provided.
Italian classes were provided from teachers with no experience in

dealing with foreigners in Oltremare 1 and Oltremare 2.
Employment
Refugees benefitted from job counselling, however due to the high level
of unemployment they had few possibilities for integration. Scarce
public transportation services contributed to a reduction in the
possibilities to meet relatives and friends, to access services, qualified
training courses and to find a suitable job.
176
Refugees do not have to meet the criteria of housing and income for
family reunification. However, they faced certain bureaucratic problems
in proving the family/parental relationship. Thanks to Oltremare II, in
fact, many family members could be reunited although they did not
meet the family reunification criteria.
Municipalities and NGOs provided these services but they were not
adequate.
Mentoring
Social assistants offered mentoring support but it was not always

ensured and not so qualified.
No

providers
Volunteer support
Housing
Comments
No
Local Municipalities were directly involved in providing independent
housing. Refugees were living in independent houses in uninhabited
areas put at their disposal by municipalities due to the fact that Italians
left these areas due to high level of unemployment.
Information provided upon arrival was inadequate. Service providers in
municipalities were not sufficiently qualified/trained to deal with
refugees and to identify their training and professional skills and offer
jobs. Vocational training and jobs offered did not correspond to the skills
and wishes expressed by the resettled refugees. Isolation and the lack
of public transportation were also obstacles in looking for more suitable
jobs in distant places.
With the high unemployment and scarce presence of public
transportation in the area, refugees faced huge difficulties in having
access to local services.
Between May and June 2011, about 150 Palestinians with no job
opportunities and possibiliy to locally integrate decided to move to
Sweden where their family members were resettled from the Al Tanf
camp. They tried to be admitted to the asylum procedure in Sweden
accusing Italy of having putting them in a very dangerous situation and
that the local mafia had threatened them. They were informed that in
Sweden they would obtain better assistance and opportunities of
integration. However, Swedish authorities decided to send them back to
Italy. The first return operation started in the middle of March 2012
when 47 Palestinian refugees were transferred to Italy.
No job opportunities, isolation and frustration were elements that made
a large number of refugees, in particular Palestinian, leave Italy and
move to another EU Member State. Italy points to the lack of funds to
explain these problems with integration.
Recommendations:
UNHCR, after selecting refugees, should share information on

individual cases with municipalities and NGOs assisting refugees
to plan suitable and adequate integration services in line with
refugees needs. This would allow municipalities and NGOs to plan
ahead and use resources efficiently. The information is vital for
effectively planning appropriate medical and psycho-social care.
Cultural orientation should be provided before arrival and also

offered after arrival in order to lower expectations. It should present
the rights and duties of refugees, information about Italian society
and information as to how to establish relationships with public
institutions and local services.
Trainings should be provided for municipality service providers and

public welfare officers.
177
Capacity building and increased resources (staff and budget)

should be ensured to municipalities involved in managing houses
and providing services to resettled refugees.

Funding
National Level
Local Level
The main budget for asylum activities is the Fondo Nazionale per le
Politiche ed I Servizi dellAsilo. It is managed by the Ministry of Internal
Affairs and it finances the projects up to 80%. The rest is covered by
local communitys resources.
Total contributions in 2010:
Ordinary: 23,396,696.99 Euro
Vulnerable categories: 6,512,242.18 Euro
A contribution was also given to asylum projects by the 8 per Mille 11.
However this contribution stopped in 2010. 12
ERF
ERF Contributions: 13
(ERF I) period 2000-2004 Euro 11,000,000 (ERF II) period 20052007 Euro 6,500,000.
ERF III:
2008: Euro 2,821,520.30 (for
7,088,000.00 Euro were assigned)
2009: Euro 4,470,81.00
2010: Euro 7,202,618.28
2011: Euro 7,740,535.42 (for
6,850,000.00 Euro were assigned)
measures
of
urgency
measures
of
urgency
Total ERF over the period 2008-2010 was 22,236,080 Euro,

equivalent to 6.52% of the total Member States contributions. It is the
4th highest contribution (the first being the contribution to Sweden, the
second to France and the third to Germany). 14
The fourth project was entirely funded by EU funds 15 (ERF III
contributions and Programma Operativo Nazionale (PON) Sicurezza
per lo sviluppo). 16 It also received EU funds for the third project.
Costs
Comments
Nothing available specifically for resettlement, however in both the

National Program of 2009 and 2010, resettlement of 50 refugees was
estimated to have a cost of 200,000 euros. 17
Italy started pilot projects of resettlement under the Prodi
government in 2007. Proposals of asylum law reforms in Italy since
then include an express provision on resettlement but this design of
law has yet to be adopted. 18
11
Sandra Sarti, LItalia dei rifugiati, Settembre 2010. The 8 per mille law allow citizens to choose whether to give 8 per
thousand from their annual income tax to public or church lead social assistance programs.
12
SPRAR report 2010-2011
13
http://www1.interno.it/mininterno/export/sites/default/it/temi/asilo/sottotema010.html
14
See the document Figures on the allocation by EU State for each Funds on the European Commission website:
http://ec.europa.eu/home-affairs/funding/refugee/funding_refugee_en.htm
15
Sandra Sarti, LItalia dei rifugiati, Settembre 2010; see also National Program 2010, which expressly included the
possibilit of using the PON funds and not only the ERF funds for the resettlement projects.
16
The PON is co-financed by the European Regional Development Fund: http://www.ponrec.it/programma/obiettivi-efinalit%C3%A0.aspx
17
see: http://www.serviziocentrale.it/?FER&i=12&s=21
18
On the different drafts of law, links can be found on the website of the Italian Council for Refugees (CIR):
http://www.cir-onlus.org/PROPOSTA%20CIR%20LEGGE%20ASILO.htm
178

However it also shows how a pre-defined procedure would help
clarify for the situation for all parties in the pre-arrival phase of
resettlement and make resettlement less dependent on political
circumstance and will. This would in particular benefit officials involved
in the initial phase of the projects who are not used to proceeding
without a clear and legally specified mandate for action; until now they
have relied upon the high level political decision and the absence of
clear legal prohibition as the main basis for initiating projects.
The current stagnation, both in terms of resettlement projects and in
terms of reforms, is due both to a cautious political will 19 and to the
insufficient reception capacity currently operating. This was originally due
partly to the change in government from the Prodi led government to the
Berlusconi government which changed priorities in the field. However it is
also due to the serious humanitarian problems that Italy has faced since
the Arab spring. Finally there is a certain perception among officials that
the projects were not successful. In particular some refugees resettled in
Italy tried to reach Scandinavian countries where benefits and integration
are more consistent. This problem is not in reality a problem connected to
resettlement per se but to reception and integration capabilities (in
particular due to costs of reception). Italy has been a pioneer in creating
multi-governance networks involving both private organisations (NGO)
and local communities in asylum projects. 20 However comparable
programmes provide better integration opportunities and better welfare
assistance in other EU countries (such as to Scandinavian countries). 21
To examine other funding possibilities, the third and fourth resettlement
projects in Italy used EU funds. Currently resettlement still does not seem
high on the political agenda notwithstanding the change in government.
This is probably due to the current economic and financial crisis of Italy
leading to other political priorities and the continuing emergency from the
effects of the Arab spring.
Many Italian NGOs, news websites and also Italian local
authorities 22 have considered the new European Program on
resettlement as potentially offering a solution to the humanitarian crisis
by offering a safer route to ask international protection from abroad and
share the responsibilities and financial costs for reception with other
European countries. However the impact of resettlement programmes
on the inflows of refugee through unsafe channels will largely depend
on the quotas. So that resettlement can be seen as a way to alleviate
but most probably will not be sufficient to solve some of the problems
faced by Italy in assisting refugees, which will require further capacity
building and improved integration.
19
Italy is currently not among the Member States that will participate in the new EU project of joint resettlement. Still the
Parliament is discussing the matter with civil society involved in asylum. See:
http://www.aise.it/migrazioni/rifugiati/110005-reinsediamento-di-richiedenti-asilo-e-rifugiati-cir-le-tragedie-nelmediterraneo-devono-finire-.html
20
Interview and other documentation : Rseau acadmique dtudes juridiques sur limmigration et lasile en Europe,
Comparative overview of the implementation of the directive 2003/9 of 27 January 2003 laying down minimum
standards for the reception of asylum seekers in the EU Member States, October 2006 http://ec.europa.eu/homeaffairs/doc_centre/asylum/asylum_studies_en.htm; National Report done by the Odysseus network for the European
Commission on the implementation of the directive on reception conditions for asylum seekers in Italy, 2006
http://ec.europa.eu/home-affairs/doc_centre/asylum/asylum_studies_en.htm;
http://atlas-conferences.com/c/a/m/l/43.htm;
21
22
Idem
See footnote 59 but also: http://www.programmaintegra.it/modules/news/article.php?storyid=5693;
http://www.euractiv.it/it/news/sociale/5088-immigrazione-pe-approva-aiuti-per-asili-una-parte-per-italia.html;
http://asiloineuropa.blogspot.de/2012/03/il-programma-comune-di-reinsediamento.html#more
179



Latvia
Report written by
Juris Gromovs (EUI)

July, 2013

180
KNOW RESET Country Profile: Latvia
Country Profile: LATVIA

Latvia could be characterized as having conservative immigration policy, which is in line with the current EU
legal requirements in the area of immigration. Latvia belongs to the group of EU Member States, which
places greater emphasis on addressing labour shortages primarily by utilizing the national workforce, to the
extent that Latvia has not elaborated a strategy for using economic migration to meet the demand for
labour. After accession to the European Union, Latvia experienced the emigration of nationals of working
age to other Member States, which led to notable labour shortages in its domestic labour market 1. The
ensuing debate focused on how to fill the shortages through policies designed to entice back the labour
which had left and the stimulation of the domestic workforce. Also on the agenda was the use of a migrant
workforce which resulted in the establishment of the Migration Policies Working Group. In July 2006, the
Working Group drafted Concept for Migration Policies in Connection with Employment, which had, as one
of its aims, to simplify admission procedures for third-country nationals 2. However it was not been approved
as the economic crisis of 2008 and the increasing unemployment of Latvian residents ended any significant
discussion on this point.
The current legal and institutional framework for asylum and migration system in Latvia does not
stipulate any provision for the resettlement opportunities. No special decision making mechanisms exist on
this issue and the budget for the subject matter is provided. The regulation of asylum and migration issues
is provided in the Asylum Law and the Immigration Law. In total, 663 persons applied for asylum within the
period of 1 January 1998 - 7 December 2011. So for the period of 1998 -2010 there were 367 asylum
seekers, but within 11 months of 2011 alone - 335 asylum seekers. This increase put a lot of pressure on
the reception services for asylum seekers. Thus, the official opinion is that any resettlement-related
measures would strain the reception capacity even further 3.
According to public officials, a majority of current asylum seekers openly acknowledge the fact that
Latvia was not their country of destination and that they were en-route to the Nordic countries or Western
European countries but have been stopped in Latvian territory or at its borders and applied for asylum.
Some of the persons who were granted international protection left soon after receiving the necessary
personal and travel documents. It should be noted that Latvia does not have any cases before the Court of
the European Union in relation to its immigration and asylum legislation and the quality of its transposition
of EU directives, its application or interpretation of the harmonized national legislation.
The public institutions of Latvia are still in the process of further optimizing and decreasing their budget
due to the economic crisis of 2008-2012. These budgetary cuts make the introduction of any resettlement
programme extremely unlikely 4.
The consequences of the financial crisis, the absence of large diasporas of third country nationals, the
absence of NGOs, and high unemployment rates in Latvia put some restraints on integration capacities as
part of reception capacity in its broader scope.
There are no political debates about refugee resettlement - and there has been no such debates since
establishment of the asylum system of Latvia at the end of 1997 - at the level of the Government or of the
Parliament, which would indicate any particular interest in introducing the resettlement schemes and the
relevant legal and institutional framework in Latvia.
Taking into account that so many elements play an important role in a resettlement process and most of
them are of long term perspective, Latvian officials expressed the strongly held belief that participation in
resettlement actions should be seen as voluntary that respects reception capacity of a Member State.
Otherwise permanent resettlement schemes based on statistics will only cause sporadic secondary
5
movement within the EU and could endanger the Common European Asylum System .
The European Migration Network, Satisfying Labour Demand through Migration, June 2011, pp.33-34.
Ibid.
Based on the records of the major points of interview with the State Secretary of the Ministry of Interior, Republic of
Latvia, Mrs. Ilze Ptersone-Godmane.
Article Finance Minister: Latvia has consolidated 2.3 billion lats in three years, December 5, 2011, available at
http://bnn-news.com/finance-minister-latvia-consolidated-2-3-billion-lats-years-42711 (last time checked on February
16, 2012). Interview with the State Secretary of the Ministry of Interior, op.cit.
Based on the records of the major points of interview with the State Secretary of the Ministry of Interior, ibid.
181
Asylum Profile
status granted 6
18 (2011)
6 Refugee Status
12 Other Protection
25 (2010)
7 Refugee Status
18 Other Protection
296 (2011)
61 (2010)
Resettlement Scheme
None
Resettlement Quota

Asylum Law 27/2008, 30th
June 2009.
Immigration Law of October
31, 2002 (with subsequent
amendments, which were
adopted until May 26, 2011).
project/reform
The current legal and institutional framework for asylum and migration
system in Latvia does not stipulate any provisions for resettlement
opportunities. The issues of reception of asylum seekers in accordance
with the provisions of the Asylum Law are dealt with by the Office of
Citizenship and Migration Affairs under the Ministry of Interior.
/
No changes to the legal or institutional framework are planned. The
issue of the resettlement is not a domestic priority at the moment. There
are no political debates about this issue. It was discussed by the
institutions, which are responsible for migration and asylum issues, the
Government and the Parliament as part of EU-agenda related issues
(e.g. formulating the positions for the Council when the proposal on
resettlement was examined).

c) Temporary
Resettlement:

Governmental Level
Source: Latvian Office of the Citizenship and Migration Affairs.
Source: Latvian Office of the Citizenship and Migration Affairs.

182

experience
From Guantanamo
Intra-EU Relocation
Comments
According to local news agencies in July 2010, Latvia received one

person from Guantanamo. His identity is not disclosed, there was just
short announcement by the Ministry of Foreign Affairs and the Ministry
of Interior. No additional information was publicly available on this
subject. This action did not receive any further continuation 8.
None
Latvia is not involved into any resettlement programme and does not
have any national resettlement plans at present.

Refugees resettled
Comments
None
Geographical location obviously matters when it comes to the
challenges in managing migration and asylum flows. The majority of
current asylum seekers do not aim to settle in Latvia but just arrived in
the country in transit. They do not want to stay in Latvia and leave it as
soon as they obtain travel documents.
This, in conjunction with socio-economic conditions in Latvia and the
fact that Latvia does not have a large diaspora of third country nationals
from defined resettlement priority regions, means that there is a high
probability that resettlement to Latvia would simply result in secondary
movement within the EU as the majority of the resettled persons
afterwards will most likely move away from Latvia.
The public institutions of Latvia are still in the process of further
optimizing and decreasing their budget due to the economic crisis. The
idea that the EU may grant certain funding to favour resettlement is
welcomed, however EU funding for the initial transfer of the person to
Latvia will not cover the substantial costs of their reception and integration.
In addition, not all of the necessary conditions can be in order to
carry out successful resettlement activities can be established simply by
providing financial assistance.
The limited reception capacity of Latvia also plays an important role.
A record number of asylum seekers was recorded in 2011 when Latvia
almost received more asylum seekers than the entire period of 19982010 in total. This has put much pressure on the capacity of the
reception of asylum seekers.
The absence of NGOs that would deal with the resettlement is also
to be noted. The only NGO dealing with some narrow issues of asylum
seekers and refugees (such as language and legal assistance in some
cases) is dependent on the projects performed on an EU-funding basis
and is not funded from the state budget 9. Looking from an NGO
perspective, before introducing any kind of resettlement system in
Latvia, the country also needs a comprehensive integration programme
(not just a set of the rights on access to work, unemployment benefits,
vocational training, education or other social security guarantees etc.)
for all categories of legally staying foreigners in order to ensure their
inclusion in Latvian society 10.
Article Guantanamo detainee transferred to Latvia, available at

http://www.lithuaniatribune.com/2010/07/26/guantanamo-detainee-transferred-to-latvia/, (checked on 08.12.2011.).
The same information was repeated in several publications in Latvian language.
Based on the records of the major points of interview with the president of the non-governmental organisation Shelter
Safe House, Mrs. Sandra Zalcmane.
10
ibid.
183



Lithuania
Report written by
Laurynas Bieksa (EUI)

July, 2013

184
KNOW RESET Country Profile: Lithuania
Country Profile: LITHUANIA

Lithuania is a country of emigration. Emigration rate is among the highest in the European Union. Between
1990 and 2010, 615,000 residents emigrated from Lithuania. 54,331 residents emigrated from Lithuania in
2011 1. Emigration numbers increased after the country joined the EU in 2004. The most important factors
explaining emigration trends in Lithuania are comparatively low wages and the high rate of unemployment.
Contrary to emigration from Lithuania, immigration to the country is relatively low. Statistical data shows
that from 2009 to 2010 immigration flows decreased, while comparing the data available in 2010 and 2011,
a significant increase in immigration is observed: in 2011 15,685 immigrants arrived to Lithuania, which is
an impressive number in comparison to 5,213 in 2010 2. Work is one of the purposes for which foreigners
arrive to Lithuania (in 2011, 3,330 work permits were issued for foreigners 3).
Lithuania has a restrictive labour immigration policy. Workers from third countries are considered to be a
temporary solution and therefore are not allowed to stay after their contract is finished or terminated. They
cannot change their employer or look for work while in the country. However, in 2011 the admission rules
were changed in order to facilitate the arrival procedure for those professions of which there are a shortage in
Lithuania. Furthermore, the transposition of EU Directives has led to facilitation of immigration procedures for
certain groups of third countries nationals (e.g. students, researchers and highly skilled workers). 4
As a result of its geographical location (two external borders with third countries) and economic
situation, Lithuania serves rather as a transit country for asylum seekers than as a destination. In recent
years the number of asylum applications in Lithuania was approximately 450-540 annually. The largest
national groups were Georgian and Russian nationals. According to the Annual report of Asylum Affairs
Division of the Migration Department, the number of refused asylum applications is growing (in 2008, 49
applications were rejected, in 2009 155, in 2010 180, in 2011 280 5). This trend is related to the number of
applications lodged by the citizens of Georgia (in 2011, 213 out of 280 decisions to refuse to grant asylum
were made only in regard of Georgian nationals 6). No Georgian has been granted refugee status up to this
point. However, Georgian asylum seekers continue to apply for refugee status in Lithuania. Many asylum
applications (in most cases when asylum seekers left the Foreigners Registration Centre without
authorisation and failed to return) in 2010 (209 out of 503 7) and 2011 (146 out of 527 8) indicate that asylum
seekers have another European destination in mind other than Lithuania. Secondary movement post
application then is quite common if not the norm. In order to prevent asylum seekers from going to other EU
countries when they are expecting a negative decision, amendment to the Law on the Legal Status of
Aliens was proposed by the state authority. According to that law, a foreigner cannot be detained for
unlawful entry to or stay in Lithuania when he has lodged an application for asylum 9. However, the draft
amendment to the law intends to change this provision so that the exception from this ground for detention
is available to aliens who have been granted temporary territorial asylum in Lithuania. So the draft
amendment narrows down the application of the principle of not detaining asylum seekers to only those
asylum seekers with regard to whom the Migration Department has made a decision to grant temporary
territorial asylum. If the Migration Department decides to examine the asylum application through an
expedite procedure, asylum seekers could be detained until the decision on his application is made. NGOs
1
Migration in Numbers, available on the internet: http://123.emn.lt/en/general-trends/migration-10-years-overview
Numbers includes Lithuanian nationals, who came back to Lithuania. Migrations in Numbers, available on the internet:
http://123.emn.lt/en/general-trends/migration-10-years-overview
Lrytas.lt, available on the internet: http://www.lrytas.lt/-13313134901330484910-u%C5%BEsienie%C4%8Diams-pernaii%C5%A1duota-1-9-karto-daugiau-leidim%C5%B3-dirbti-lietuvoje.htm
European Migration Network, MIgration profile: Lithuania,2011, available on the internet:

http://www.iom.lt/documents/Migration_profile_EN.pdf
Asylum in the Republic of Lithuania, Annual Report 2011, http://www.migracija.lt/
ibid.
Asylum in the Republic of Lithuania, Annual Report 2010, http://www.migracija.lt/popup2.php?item_id=975
Asylum in the Republic of Lithuania, Annual Report 2011, http://www.migracija.lt/
Law on the Legal Status of Aliens, 29 April 2004, available on the internet:
http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=416015
185

expressed their doubts whether such legal provision would be incompatible with the principle of not
detaining asylum seekers. The debate on the draft amendment is still pending.
Up to 2012, resettlement was not a big topic of debate in Lithuania. In February 2012 UNHCR was
informed by the Ministry of Social Security and Labour that discussions on Lithuanias participation in
resettlement had started in Lithuania 10. As the representative of the Ministry of the Interior was unaware
of any on-going discussions on resettlement issue, it follows that it is a very initial phase of a possible
reform in this field. 11
Moreover, according to the representative of the Migration Department, the Lithuanian position on
resettlement issue is clear Lithuania is in favour of participation in resettlement programmes only on a
voluntary basis and refuses to participate in any such programmes. 12 On this basis, it is very difficult to say
whether there is a coherent and set vision as to Lithuanias role, if any, in the resettlement of refugees.
10
Written interview of the representative of Regional Office of UNHCR in Lithuania, 23rd of March 2012.
*The number includes foreigners who were granted subsidiary protection repeatedly.
11
Written interview of the representative of the Ministry of the Interior, 21st February 2012.
12
Communication with the representative of the Migration Department, 18th of November 2012.
186
Asylum Profile
95 (2011)
status granted 13
7 Refugee Status
88 Other Protection
111 (2010)
1 Refugee Status
Number of asylum
seekers 14
527 (2011)
Resettlement Scheme
None
Resettlement Quota
503 (2010)

Law on the Legal Status
of Aliens of the Republic of
Lithuania, 29th of April 2004
No IX-2206 (As last
amended on the 8th of
December 2011 No XI1786) 15
Does not regulate resettlement issue.
project/reform
In the Draft Law Amending the Law on the Legal Status of Aliens 16,
which is under the debate at the moment, it is not planned that there will
be any provision on resettlement.

c) Temporary
Resettlement:
In the last decade of the 20th century, several refugee families were
relocated from Lithuania to Denmark. 17 It happened shortly after the
Lithuanian asylum system was established. As the new Lithuanian
system still had some gaps (e.g. refugee qualification and medical
assistance) Denmark agreed to accept several families, 18
13
The Migration Yearbook 2012, available on the internet: http://www.migracija.lt/index.php?-11716339, p. 70
14
The Migration Yearbook 2012, available on the internet: http://www.migracija.lt/index.php?-11716339, p. 67
15
Available on the internet: http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=416015
16
Available on the internet:

http://www.lrs.lt/pls/proj/dokpaieska.showdoc_l?p_id=93543&p_query=&p_tr2=&p_org=&p_fix=n&p_gov=n
17
Written interview of the previous UNHCR Liaison Officer in Lithuania, the 23rd of February 2012.
18
Communication with the previous UNHCR Liaison Officer in Lithuania, the 17th of April 2012.
187

Governmental Level
n/a
n/a
experience
From Guantanamo
After the European Parliament adopted a resolution of the 2nd

February 2009 welcoming the decision by US President Barack
Obama to close the detention facility at Guantanamo Bay and
calling on the Member States, should the US administration so
request, to cooperate in finding solutions, to be prepared to accept
Guantnamo inmates in the Union 19, the Foreign Ministry of the
Republic of Lithuania was obliged by the State Defence Council to
start a consultation with representatives of U.S. administration on
legal, security and technical framework in which to accept former
Guantanamo detainees. 20 According to the media, Lithuania has
consulted with the US about the resettlement of two detainees
from Guantanamo. 21
However, in Autumn 2009, Lithuanias newly elected president
reneged on Lithuanias previous agreement to resettle prisoners
amid an uproar over reports that the Central Intelligence Agency
(CIA) had run a secret jail in Lithuania. 22
On the 28th of October 2011 a Guantanamo detainee filled in a
complaint against Lithuania in the European Court of Human
Rights, over its role in facilitating his extraordinary rendition. 23
Intra-EU Relocation
19
On the 30th of November 2006 the Government of the Republic of

Lithuania adopted a resolution on relocation of asylum seekers
from Malta to Lithuania. 24 In January 2007, six asylum seekers
from Malta were relocated to Lithuania; all of them were granted
refugee status. 25 Lithuanias policy is seen as an expression of
solidarity with other EU members. 26 Lithuania considers the
exercise to have been costly and ineffective, the main reason
Available on the internet: http://www.europarl.europa.eu/sides/getDoc.do?type=TA&reference=P6-TA-20090045&language=EN
20
Lithuania would accept up to 10 Guantanamo prisoners, the 11th of February 2009, available on the internet:
http://www.delfi.lt/news/daily/lithuania/article.php?id=20525296&categoryID=7
21
Lithuania will consider the US request to house two prisoners from Guantanamo, the 13th of February 2009, available
on the internet: http://www.delfi.lt/news/daily/lithuania/article.php?id=20557457&categoryID=7
Lithuania will consider a possibility to accept two prisoners from Guantanamo, the 13th of February 2009, available
on the internet: http://www.lrytas.lt/-12345226861233430547-lietuva-svarstys-galimyb%C4%99-priimti-du-kaliniusi%C5%A1-gvantanamo.htm
Following the Guantanamo prisoners their families may also move in, the 25th of February 2009, available on the
internet:
http://www.delfi.lt/news/daily/lithuania/paskui-gvantanamo-kalinius-gali-atsikraustyti-ir-juseimos.d?id=20730616
22
Cables Depict US Haggling to Clear Guantnamo, the 29th of November 2010, available on the internet:
http://www.nytimes.com/2010/11/30/world/americas/30gitmo.html?pagewanted=all
Latvia will host one Guantanamo detainee, Lithuania will not, the 2nd February 2010, available on the internet:
http://www.lithuaniatribune.com/2010/02/02/latvia-will-host-one-guantanamo-detainee-lithuania-will-not/
23
Reprieve, the 28th of October 2011, Guantnamo detainee takes Lithuania to court over secret CIA prison, available
on the internet: http://www.reprieve.org.uk/press/2011_10_28_Lithuania_CIA_prison/
24
The Migration Department of the Ministry of the Interior, Yearbook of Migration 2006, available on the internet:
http://www.migracija.lt/
25
The Migration Department of the Ministry of the Interior, Yearbook of Migration 2007, available on the internet:
http://www.migracija.lt/
26
Written interview of the representative of the Ministry of the Interior, the 21st of February 2012.
188

being that the relocated persons were not sufficiently informed
about Lithuania prior to relocation. 27
In October 2009 Lithuania refused to contribute to the EU initiative

to relocate more asylum seekers from Malta 28.
In 2011, under the resolution No 1082 of the 14th of September

2011, the Lithuanian Government decided to join the EUREMA
project. In doing so, Lithuania committed to accept up to six
refugees. 29 The Resolution has yet to be implemented.

Refugees resettled
None
Comments
Lithuanias reluctance to receive refugees in the framework of

resettlement initiatives is influenced by social, financial, cultural,
administrative and various other factors. There is very little knowledge
and a dearth of reliable information as to what resettlement, is and what
it entails as a legal and social challenge. 30
The current economic situation in Lithuania is not supportive for a
change to the political and social environment in favour of
resettlement. 31
Resettlement programmes are more orientated to regions distant
and relatively unknown to Lithuanian society, where Lithuania does not
have any geopolitical interests and, in most cases, no social, historical,
cultural or economic ties 32.
The lack of legal framework is also a brake for resettlement in
Lithuania 33.
Though Lithuania could receive a small number of resettled
refugees, 34 before that important step should be taken, public
awareness must be increased, good practices from other EU members
and beyond must be studied and the needs of the refugees to be
resettled must be fully understood. 35
27
European Commission, Directorate-General Home Affairs, Study on the Feasibility of Establishing a Mechanism for a
Relocation of Beneficiaries of International protection JLX/2009/ERFX/PR/1005, Final Report 2010, available on the
internet: http://ec.europa.eu/home-affairs/doc_centre/asylum/docs/final_report_relocation_of_refugees.pdf
28
Ministry of the Interior of the Republic of Lithuania, Legal information: In the Meeting of Ministers of the Interior of
Lithuania and Malta Issues of Granting Asylum for Asylum Seekers in European Union were discussed, 28th October
2009, available on the internet: http://www.vrm.lt/index.php?id=131&backPID=129&begin_at=720&tt_news=2281&
29
Resolution on asylum seekers from the Republic of Malta, No 1082, 14th of September 2011, available on the internet:
http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=406687&p_query=&p_tr2=2
30
Written interview of the previous UNHCR Liaison Officer in Lithuania, op. cit.
31
bid.
32
Written interview of the representative of the Ministry of the Interior, 21st of February 2012.
33
Written interview of the representative of the Red Cross Society, the 24th of February 2012.
Written interview of the representative of Regional Office of UNHCR in Lithuania, op.cit.
34
Written interview of the representative of the Red Cross Society, op.cit.

Written interview of the representative of Regional Office of UNHCR in Lithuania, op.cit.
35
Written interview of the previous UNHCR Liaison Officer in Lithuania, op.cit.

Written interview of the representative of the Red Cross Society, op.cit.
Written interview of the representative of the Ministry of the Interior, op.cit.
189



Luxembourg
Report written by
Janine Silga (EUI)

July, 2013

190
KNOW RESET Country Profile: Luxembourg
Country Profile: LUXEMBOURG

Relative to the size of its resident population, Luxembourg was, at the beginning of 2010, the EU Member
State with the highest share of non-nationals. Non-nationals accounted for about 43% of the total
population. 1 The vast majority of them (86,3%) are citizens of other EU Member States (by order of size,
the largest three groups are Portuguese, French and Italian).
Immigration and asylum law is not codified in Luxembourg. However, all relevant legal acts are
compounded in the Statut des Personnes Etrangres, 2 according to their subject matter.
The main legislative Acts in the field of immigration are the Act of 29 August 2008 on Free Movement of
Persons and Immigration 3 and the Act of 16 December 2008 on Reception and Integration of Foreigners in
the Grand Duchy of Luxembourg. 4 The latter notably created the Luxembourg Reception and Integration
Agency (Office luxembourgeois de laccueil et de lintgration OLAI) which is essential in the process of
refugee resettlement. It also created the Reception and Integration Contract.
Regarding asylum, the relevant instrument is the Act of 5 May 2006 relating to asylum and other forms
of protection. 5 The last significant legal Act adopted in the field of immigration and asylum was adopted in
July 2011. 6
In Luxembourg, stricto sensu, resettlement is understood as the process covering: 1) the selection in the
country of first asylum (non-EU Member State) of refugees to be resettled; 2) their transfer to the receiving
country (Luxembourg) and 3) the initial steps to integration in the receiving country (Luxembourg). 7
Although relocation is not covered by this stricto sensu definition as it refers to the transfer of refugees (or
people in need of international protection) from one EU Member State to another one, resettlement may
also refer to relocation for practical use. 8 Over the last ten years, Luxembourg carried out one main stricto
sensu resettlement operation in 2009, to resettle 28 Iraqi refugees from Syria and Jordan. 9
For data and figures, see: Eurostat:

http://epp.eurostat.ec.europa.eu/statistics_explained/index.php/Migration_and_migrant_population_statistics; Report
of the European Migration Network (Luxembourg contact point), 2010:
http://www.emnluxembourg.lu/sites/default/files/Policy%20Report%202010_EN_pdf.pdf
Last update of this document: http://www.legilux.public.lu/leg/textescoordonnes/recueils/etrangers1/Complement.pdf
Memorial A, N. 138 of 10 September 2008, p. 2024: http://www.legilux.public.lu/leg/a/archives/2008/0138/a138.pdf This

Act notably created the first detention centre of Luxembourg. It became operational since 22 August 2011, following
the adoption of the Regulation of 17 August 2011 on the conditions and modalities of detention regime of the
detention
centre,
Mmorial
A
n.
180
of
22
August
2011,
pp.
3222-3225:
http://www.legilux.public.lu/leg/a/archives/2011/0180/a180.pdf
Mmorial, A, N. 209 of 24 December 2008, p. 3156 http://www.legilux.public.lu/leg/a/archives/2008/0209/a209.pdf
Mmorial, A-No 78 of 9 May 2006, p. 1402 : http://www.legilux.public.lu/leg/a/archives/2006/0078/a078.pdf
Act of 1st July 2011 amending the Act of 29 August 2008 on Free Movement of Persons and Immigration and the Act of
5 May 2006 relating to Asylum and Other Forms of Protection. Mmorial A, N. 151, 25 July 2011, p. 2180 and p.
2201. http://www.legilux.public.lu/leg/a/archives/2011/0151/a151.pdf
Interview with Mrs Welter (OLAI) 14 May 2012
Ibid.
Interview with Mrs Welter (OLAI) 14 May 2012 and Caritas-Luxembourg, Interview of 14 March 2012
191
Asylum Profile
status granted
64 (2012) 11
57 Refugee Protection
7 Other Protection
62 (2011) 12
Number of asylum
seekers 10
41 Refugee Protection
21 Other Protection
2,056 (2012)
2,170 (2011)
Resettlement Scheme
Ad hoc
Resettlement Quota

Act of 5 May 2006 relating to
Asylum and other Forms of
Protection
There is no provision directly dealing with resettlement. However, this

Act provides for the legal framework applying to the resettlement of
refugees, especially on their rights following resettlement.
Relevant provisions for resettlement:
Chapter 4 on the content of international protection (articles 42 to 55)
Regulation of 1 September
2006 on the conditions for
granting social support to
asylum seekers
project/reform
Rights granted upon arrival before being formally granted the refugee
residence permit: Housing, healthcare, financial support): Article 1 13
/
In Luxembourg the very few resettlement operations that took place
happened on an informal basis, mostly carried out on a diplomatic level.
Resettled refugees arriving under such circumstances do not undergo
an additional procedure to reassess their refugee status and within a
few weeks they enjoy full rights on an equal footing with other refugees.
10
http://www.gouvernement.lu/salle_presse/communiques/2013/01-janvier/16-stats/stats.pdf
11
http://www.gouvernement.lu/salle_presse/communiques/2013/01-janvier/16-stats/stats.pdf
12
Statistiques concernant les demandes de protection internationale au Grand-Duch de Luxembourg de lanne 2011,
Press conference of 31 January 2012, Ministry of Foreign Affairs (Immigration Directorate)
13
Interview with Mrs Welter (OLAI), 23 May 2012

192

-1979-1981
Vietnamese Boat People from Philippines and Thailand
-1982
25 Polish refugees from Austria
- Mid- 1980s
Bahas Iranian refugees from East Turkey
-End of 1980s
Vietnamese refugees from Hong-Kong and Cambodian refugees from

Thailand
- 1998
25 Christian Iraqi refugees from Turkey
- 2002
A Somali family living in refugee camp in Kenya joining one of their

member already settled in Luxembourg
- 2009
28 Iraqis refugees: 25 from Syria and 3 from Jordan 15 (This is the only
stricto sensu resettlement operation that was carried out by
Luxembourg)
- 2011
About 10 people to be relocated 16
c) Temporary
Resettlement:
n/a
2008
Joint selection mission to Thailand. Belgium and Luxembourg were

invited to join the Netherlands on this mission in order to promote
resettlement.
n/a
Governmental Level
experience
From Guantanamo
n/a
Intra-EU Relocation
Luxembourg took part in one relocation operation of refugees from

Malta. In July 2010, Luxembourg received six Somalian refugees from
Malta. They were composed of a couple and two women each
accompanied by one young child. 17
14
All information extracted from the interview with Mrs Welter (OLAI), 14 May 2012.
15
Rapport dactivit 2009 du Ministre des Affaires trangres du Grand-Duch de Luxembourg, Published in July 2010, p. 60
16
European Refugee Fund, Annual Programme for Luxembourg, 2011, p. 19:

http://www.olai.public.lu/fr/publications/programmes-planactions-campagnes/programme_fer/prog-2011-fer.pdf
In the framework of the 2011 ERF programme, Luxembourg is considering the resettlement and/or relocation of 10
people. Such actions may include: missions to countries of first asylum, the selections of refugees to be resettled,
their transfer to Luxembourg and actions related to their reception and integration.
17
Rapport dactivit de LOffice Luxembourgeois de lAccueil et de lIntgration (OLAI) Luxembourg Office for
Reception and Integration, 2010, p. 6.
193

Refugees resettled
2011
Unknown
2009
28 Iraqis refugees: 25 from Syria and 3 from Jordan 18

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Luxembourg respects the choice made by the UNHCR following its own
criteria.
Additional National
Criteria
However, it favours the resettlement of families with children (young if

possible), including single-parent families. 19
Selection Process 20
1998 Operation:
2009 Operation
Since the early years 2000, two main NGOs were involved in
resettlement in Luxembourg: Luxembourg Red Cross and CaritasLuxembourg
-Resettlement of 25 Christian Iraqis from Turkey:
This operation was almost totally initiated and implemented by a
non-governmental organisation (Caritas-Luxembourg). Luxembourg
government simply endorsed the operation. 21
-Resettlement of 28 Iraqis refugees from Syria and Jordan
This operation was initiated following a request made by the UNHCR
to the Ministry in charge of immigration. The OLAI was also consulted
by the Ministry to assess the feasibility of such an operation.
The OLAI coordinated and organised the transfer as well as the
reception of the refugees.
A convention was signed between the OLAI and the International
Organisation of Migration concerning transport expenses.
Caritas was directly involved in the pre-selection of refugees to be
resettled in partnership with the UNHCR. Collaboration with the UNHCR
in site was very close and lasted about a year. To select refugees to be
resettled, CARITAS exclusively relied on UNHCR criteria, with particular
focus on family criteria. The final selection was entirely the responsibility
of Luxembourg government (Ministry of Foreign Affairs- Immigration
Directorate).
Once they arrive, refugees receive a residence permit within a
month to six weeks. The administrative management of the issuance of
such residence permit entirely falls within the competence of the
Ministry in charge of immigration. 22
18
Rapport dactivit 2009 du Ministre des Affaires trangres du Grand-Duch de Luxembourg, Published in July 2010, p. 60
19
20
Information is available only for the two main resettlement operations carried out by Luxembourg since the late 1990s.
21
22
Interviews with Mrs Welter (OLAI) 14 May 2012 and 23 May 2012. Caritas-Luxembourg, Interview of 14 March 2012
194

2009 Operation:
Pre-departure activities were minimal. The OLAI did not have the
necessary staff in transit country to prepare resettled refugees to their
integration in Luxembourg. However, the OLAI did prepare some
leaflets concerning rights upon arrival, including healthcare and
education. 23
Assistance
documents
with
Medical screening
travel
Procedure Timing
OIM
n/a
The access to refugee status for resettled refugees is extremely quick
and usually does not exceed six weeks. 24

Post-Arrival phase
Status granted
asylum and other forms of
protection)
Refugee Status
Rights granted
asylum and other forms of
protection
Non-refoulement: Article 43
Family unity: Article 45
Residence permit: Article 46
Travel Document: Article 47
Right to work and professional training (on equal basis with

Luxembourg nationals): Article 48
Right to education, diploma recognition: Article 49
Right to social welfare (on equal basis with Luxembourg nationals):

Article 50
Right to healthcare (on equal basis with Luxembourg nationals):

Article 51
Access to integration programme: Article 55
For the 2009 resettlement operation of 28 Iraqi refugees, all the

costs were born by the OLAI (public administration budget). 25
For 2011: 10.091,56 (Priority 3, Action 7 resettlement) 26

Funding
National Level
23
24
25
26
European Refugee Fund, Annual Programme for Luxembourg, 2011:

195
ERF
For 2010: 26.599,30 (Priority 3, Action 6- resettlement) 27
For 2009: 25.000 (Priority 3, Action 7 - resettlement) 28
In the framework of the ERF Annual Programme 2009 for Luxembourg,

the OLAI and the Ministry of Education of Luxembourg both had 50% cofinancing for two projects regarding resettled Iraqi refugees. 29
The first project dealt with the co-financing of transfer expenses of
resettled refugees to Luxembourg.
The second project concerned a programme of cultural mediation in
schools for refugee Iraqi children.
Costs
Comments
n/a
Recently, the flows of asylum seekers to Luxembourg have risen
sharply since 2011 (mainly Roma from Serbia). Given this situation and
the high percentage of foreign residents already present in the country,
Luxembourg is not considering an increase of its capacities for
resettlement. 30
However, following the Arab Spring, Luxembourg made a political
declaration asserting its firm intention to uphold its international
responsibilities with regard to refugees fleeing from the region. 31
27

28

29
30
Interview with Mrs Welter (OLAI), 14 May 2012 and Caritas-Luxembourg, Interview of 14 March 2012
31
http://www.europaforum.public.lu/fr/actualites/2011/03/qp-spautz-monde-arabe/index.html
196



Malta
Report written by
Frank McNamara (EUI)

July, 2013

197
KNOW RESET Country Profile: Malta
Country Profile: MALTA

Maltas situation in the Mediterranean, between the islands of Sicily and Lampedusa, means that it is at the
forefront of migration flows into the European Union. Alongside Greece and Italy, Malta has been
pinpointed as being under particular strain from the numbers of arrivals to the islands, which constitute the
Maltese archipelago. 1 Malta is situated 80 km south of Sicily, 284 km east of Tunisia and 333 km north of
Libya. Asylum seekers make their journey to Malta on oftentimes extremely rudimentary and make-shift
sailing craft over the Mediterranean.
Malta joined the European Union in 2004. The Refugees Act 2000 provided for the establishment of the
Office of the Refugee Commissioner and the Refugee Appeals Board. 2 Initially, cases continued to be
referred to UNHCR for final determination. In December 2001, Malta lifted its geographical reservation to
the 1951 Geneva Convention. On 1st January 2002, the Office of the Refugee Commissioner became fully
operational and started to deal with applications for recognition of refugee status independently. The
Offices main responsibility is to receive, process and determine applications for asylum. 3
When the Office of the Refugee Commissioner began operations the average number of asylum-seekers
in Malta was in the region of 150 per annum. In 2002, more than 1,600 boat-people reached Malta with many
seeking asylum and since then the number of immigrants who entered Malta irregularly and sought
international protection continued to increase steadily. In 2008, 2,775 persons arrived in Malta as compared to
the 1,702 persons who entered Malta in 2007. Thus there has been an increase of 1,082 (63%) persons in
2008 as compared to 2007, of which 98.78% (2,760) applied for asylum. The beginning of 2009 was also
marked by a significant increase in the number of irregular immigrants reaching Maltese territory. 4
On 30 August 2008, Italy and Libya signed a friendship, partnership and co-operation treaty for the
purpose of developing a "special and privileged" bilateral relationship. 5 Part of the agreement involved Libya
strengthening its border controls against irregular migration. The drop in clandestine arrivals to Malta then
occurred at roughly the same time as this Treaty was ratified (by Italy in February 2009 and by Libya in
March). Italy repudiated the Treaty in February 2011, 6 the month in, which the Arab Spring began in Libya.
During the year 2010, 355 asylum seekers applied for refugee status in Malta. Compare this to 2,591 in 2009
and 1,586 in 2011. 7 Numbers of arrivals boomed during the Libyan unrest, the UNHCR put the figure at 1,530
arrivals. 63% of these arrivals came from Somalia, Eritrea or Nigeria with Somalia leading the way on 27%. 8
Irregular arrivals by sea is the single greatest influence on Maltese migration. Any law and policy
changes will be influenced by consideration of the scale of numbers arriving in this way. In view of the
relatively large number of arrivals over the last decade, the UNHCR considers that resettlement and
relocation of refugees can provide Malta with opportunities to make progress also in improving the situation
for those who remain in the country. 9 From the perspective of the authorities: Malta has consistently made
the case for a sharing of responsibilities of persons in need of protection. 10
See for example: http://www.unhcr.org/cgi-bin/texis/vtx/page?page=49e48e726
Available at: http://www.mjha.gov.mt/page.aspx?pageid=160
Key facts, dates and information in this paragraph can be found at:
http://www.mjha.gov.mt/page.aspx?pageid=160#Background
See: http://www.mjha.gov.mt/page.aspx?pageid=160&printonly=true#Staff_Compliment_and_Procedural_Improvements_
Officially known as: The Treaty of Friendship, Partnership and Cooperation between the Italian Republic and Great
Socialist Peoples Libyan Arab Jamahiriya. This text is quoted from Statewatch, available at:
http://www.statewatch.org/news/2008/nov/01italy-libya-treaty.htm
http://www.telegraph.co.uk/news/worldnews/africaandindianocean/libya/8352658/Libya-Italy-repudiates-friendshiptreaty-paving-way-for-future-military-action.html
UNHCR Malta: http://www.unhcr.org.mt/index.php?option=com_content&view=article&id=113&Itemid=110
UNHCR: http://www.unhcr.org.mt/media/com_form2content/documents/c12/a313/f45/libyacrisis_facthseet_last__update.swf
http://www.unhcr.org.mt/index.php?option=com_content&view=article&id=113&Itemid=110
10
Email interview for Know Reset with the Maltese Ministry for Home and Parliamentary Affairs (Nathalie Attard,
Customer Care Coordinator, sent email on behalf of Ministry) conducted on the 16th of March 2012.
198

The EASO was established in Valletta and became operational in 2011. This was largely seen as an act
of solidarity with EU Member States in the south which are under particular pressure from irregular
migration. 11 The office is not set up to assist the Maltese authorities specifically but the work of the Office
does impact on Malta. 12 Added to this is that a potential role for the EASO in evaluating the relocation pilot
project has been mooted in March 2012. 13
Being on the frontline of migration flows to Europe has meant that Malta has called for resettlement, not
as a country which would receive refugees but as a country from which the refugees should be relocated.
Malta already faces specific and disproportionate pressures in view of its geographic and demographical
situation with regard to the number of asylum seekers arriving on its shores, a fact also attested by
comparisons published by the UNHCR and EU bodies, to consider resettlement options to its territory. 14
11
See: http://www.timesofmalta.com/articles/view/20110618/local/Malta-based-EU-asylum-office-opens-tomorrow.371111
12
See: http://ec.europa.eu/home-affairs/policies/asylum/asylum_easo_en.htm
13
See: http://easomonitor.blogspot.com/2012/03/what-role-for-easo-with-intra-eu.html#!/2012/03/what-role-for-easo-withintra-eu.html
For press reaction, see also: http://www.independent.com.mt/news.asp?newsitemid=141100
Also: http://www.timesofmalta.com/articles/view/20110512/local/EU-pressures-members-to-resettle-asylumseekers.364942
And
finally:
http://www.timesofmalta.com/articles/view/20110603/local/EU-report-confirms-lukewarm-reaction-toMalta-s-appeal-for-burden-sharing.368694
14
Email interview with the Maltese Ministry for Home and Parliamentary Affairs, op.cit.
199
Asylum Profile
status granted 15
896 (2011)
72 Refugee Status
223 (2010)
46 Refugee Status
1,862 (2011)
Number of asylum
seekers 16
175 (2010)
Resettlement Scheme
Resettlement Quota

Chapter 420 Refugees Act 1st
October 2001
Provides for a definition of refugee status at Article 2. Humanitarian

Protection is also defined in this article.
Article 8 deals with the application process.
Rights of refugees are contained in Article 11.
Article 13 provides for resettlement. At the written request of the
applicant or a recognised refugee, the Minister and the High
Commissioner will facilitate the resettlement of that person to another
country.
On this point, the Maltese authorities state: The Article in question
specifically makes reference to the term resettlement. However the
Maltese text speaks of persons granted refugee status or subsidiary
protection who leave to reside in another country (persuna biex tmur
tgammar fpajji ieor). 17
Legal Notice 243 of 2008

(amending the Refugees Act,
above)
The title of this regulation is the Procedural Standards in Examining

Applications for Refugee Status Regulations.
Article 2 states that the purpose of the amendment is to transpose the
provisions of the Council Directive 2004/83/EC on minimum standards for
the qualification and status of third country nationals or stateless persons
as refugees or as persons who otherwise need international protection
and the content of the protection granted and the Council Directive
2005/85/EC on minimum standards on procedures in Member States for
granting and withdrawing refugee status.
Article 4 deals with the application process.
Rights of refugees and those who are granted subsidiary protection
status are contained in Article 14.
15
UNHCR Maltese Office..
16
Ibid.
17
Email interview for Know Reset with the Maltese Ministry for Home and Parliamentary Affairs (Nathalie Attard,
Customer Care Coordinator, sent email on behalf of Ministry) conducted on the 16th of March 2012.
200

project/reform
Speculation or calls for legislative reform have not been found.

Maltese refugee law is now seen as being up to date with high
international standards.

Since 2007
c) Temporary
Resettlement:

Governmental Level
experience
From Guantanamo
Intra-EU Relocation
The European Relocation Malta (EUREMA) is the first and foremost

EU run relocation project. EUREMA was first launched in 2009 (EUREMA
I) as a pilot project, and in April 2011 the European Commission decided
on its extension (EUREMA II). The duration of the programme is planned
from the beginning of 2012 till the middle of 2013.
Refugee relocation is jointly implemented by the Ministry of Justice &
Home Affairs, IOM, UNHCR and the Emigrant's Commission. 18
Comments
While resettlement does not occur in Malta, it does participate in

relocation. While an important distinction must be made between
relocation and resettlement, the two often overlap in the eyes of different
Member State authorities and thus Maltas continued contribution to
relocation is of interest. Malta has absolutely no intention of contributing
toward actual resettlement in the near future.

Refugees resettled
Comments
None
It seems certain that any motivation to resettle in Malta would be
linked to the number of irregular arrivals. If arrivals by sea are greatly
reduced then that may influence a decision to resettle. Media coverage,
and consequent public opinion, focuses on this aspect of migration. The
nature of Malta, as two small islands with a small population but high
population density makes this the focus. In light of this, any political
decision to begin resettlement is extremely unlikely unless the numbers
of irregular arrivals by sea drops dramatically 19.
18
http://www.unhcr.org.mt/index.php?option=com_content&view=article&id=476:what-is-the-durable-solutionsregistration-&catid=81:making-a-difference
19
With resettlement, I dont envisage this ever happening. In a situation with no boat arrivals of asylum-seekers Malta
would still maintain that its size, population density and limited resources prevent it from resettlingI dont see any
201

Maltas involvement in resettlement through relocation seems certain
to continue with an appetite for relocation certainly strong in Malta and
being supported by EU partners and hesitantly supported by other
Member States who, in the spirit of solidarity, are allowing relocation to
their territories.
room for advocating for resettlement. Email interview for Know Reset with Dr. Neil Falzon (Founder of Aditus NGO),
conducted on the 1st of February 2012.
202


Poland
Report written by
Magdalena Silska (EUI)

July, 2013

203
KNOW RESET Country Profile: Poland
Country Profile: POLAND

Poland experienced immigration in 1989. Poland had not experienced inward migration since the 2nd World
War. As a result of socio-political changes and the liberalization of the principles for the entry and stay of
foreigners and taking into account the geopolitical location of Poland, it became a transit and target country for
certain categories of migrants. For example, in 1985 the number of people crossing Polish borders was about
3.5 million non-Poles, in 1991 this number reached 37 million and achieved 90 million at the end of the 90s 1.
Taking the geographical position of Poland into account as well as it having with one of the longest EU
external borders, it became a target of migrants coming mainly from the former Soviet republics.
Furthermore, Poland became an important point on routes of smuggling illegal migrants and persons trying
to get to Western Europe, with Poland being a country of transit.
Poland ratified the 1951 Geneva Convention and the 1967 Protocol in 1991. The government decision
for ratification was mainly influenced by a change in the social-political situation, which started in 1989. It
has to be emphasised that until that time there had been almost no refugees and asylum seekers in
Poland. Applications for refugee status have been made since 1989. It became apparent that the necessary
procedures had to be put in place that would bring the Polish asylum system into line with international and
European standards. Taking this into account, several competent national institutions have been created,
i.e.: Office for Foreigners and relevant departments in the Ministries. At present, Department of the
Migration Policy in the Polish Ministry of Interior is responsible for migration policy. The Office for
Foreigners implements that policy.
The scale of migration to Poland is still insignificant. According to the statistics revealed by the
Central Statistical Office as of 31 December 2011, 100,298 foreigners had valid residence permits 2
(about 3,218 more than in 2010, and 7,724 more than in 2009). In 2011 there were 6,887 applications
submitted for refugee status (an increase of 5% in comparison to 2010); in 2009 this number amounted
to 10,587 applications.
However, in the opinion of some experts, in spite of the fact that the migratory movements do not play a
great role in the Polish society, their importance increased on the Polish labour market. It is then possible to
assume that this tendency will become more established taking into consideration some social, economic
and demographic changes in Poland 3.
Polish asylum policy has its legal basis in the Constitution of Poland adopted on 2 April 1997. The legal
provisions regulating the asylum and refugee status proceedings have a statutory rank and are formulated
in the Act on granting protection to foreigners in the territory of the Republic of Poland.
The resettlement concept is a very new idea in Poland and has been recently introduced by the 2011
amendments to the Act of 13 June 2003 on granting protection to foreigners within the territory of the
Republic of Poland, which entered into force on 1 January 2012. The Council of Ministers will be able to
decide, in a form of regulation, the number of foreigners who can be resettled to Poland in a year, the
countries from where they will be arriving, the amount of funds to be made available, which cover the
envisaged costs, etc. However since the new legal provisions entered into force there has been no
resettlement of foreigners in Poland.
The Study on Polish Migration Policy - State of Play and Proposed Actions drafted by the Inter-ministerial Team for
Migration, recent version published on 18 March 2012.
The data collection does not include citizens of the EU Member States and members of their families, illegal migrants,
and foreigners with visas.
The Study on Polish Migration Policy - State of Play and Proposed Actions (), op.cit.
204
Asylum Profile
status granted 4
368 (2011)
157 Refugee Status
37 Other Protection
448 (2010)
84 Refugee Status
6,887 (2011)
6,534 (2010)
Resettlement Scheme
Ad hoc
Resettlement Quota

Act of 13 June 2003 on
granting
protection
to
foreigners within the territory
of the Republic of Poland
New provisions related to the resettlement and relocation have been

introduced by the Act of 28 July 2011 on the legalisation of stay of some
foreigners in the territory of the Republic of Poland and on amendments
to the Act on granting protection to foreigners within the territory of the
Republic of Poland and to the Act on Foreigners.
Chapter 5a:
Resettlement and relocation

Foreigners
Lays down the principles and conditions governing entry, transit,

residence and departure of aliens from the territory of the Republic of
Poland, as well as procedures and authorities competent in these
matters.
Other basis of
resettlement:
The
Study
on
Polish
Migration Policy - State of
Play and Proposed Actions
drafted by the Inter-ministerial
Team for Migration - recent
version published on 18
March 2012 6.
project/reform
Describes in general the possibility to resettle/relocate migrants in EU

Member States. The role of Poland in this area is considered with the
main motivation being solidarity with other EU Member States.
None
http://www.stat.gov.pl/cps/rde/xbcr/gus/sy_demographic_yearbook_2012.pdf
Ibid.
This document is planned to be supplemented by the action plan, which will insert the proposals of solutions aiming at
realization of accepted assumptions, along with a description of entities responsible for their implementation and
determination of costs and sources of financing.
205

There is no formal resettlement organised by the Polish Ministry of

Foreign Affairs (before the new legal provisions entered into force):
On his way back from the visit in Tunisia on 16 June 2011 the Polish
Minister of Foreign Affairs took on board of his plane a group of refugees,
who after fleeing Libya, had sought temporary shelter in Tunisia 7.
c) Temporary
Resettlement:
None
During Balkan wars, Poland twice received 1,000 persons and provided
them with protection till the end of conflict 8.

Governmental Level
n/a
experience
1946 - 1949
After collapse of the authoritarian regime in Greece, Poland received a

group of people with Greek nationality (quasi resettlement). 9
From Guantanamo
n/a
Intra-EU Relocation
Poland is a participant of an on-going pilot programme of the European

Commission, i.e. "Relocation of foreigners, beneficiaries of the
international protection, staying in Malta (EUREMA). The first action
is in a preparatory stage; an official of UNHCR in Malta has recently
visited Poland with the aim of collecting information on the potential for
relocation; this planned relocation concerns migrants from Somalia. 10
2010
However, up to this point no refugees have been accepted and

transferred to the territory of Poland. 11

June 2011
16 resettled persons:
3 Christian families - 6 adults and 10 children; country of origin: Eritrea
and Nigeria
Sources: 1) Polish Ministry of Foreign Affairs - note available on the Ministry of Foreign Affairs website:
http://www.msz.gov.pl/en/news/foreign_minister_radoslaw_sikorski_brings_home_north_african_refugees and in the
press and radio: http://www.polskieradio.pl/5/3/Artykul/387167,Sikorski-wroci-do-Polski-z-uchodzcami-z-Libii; 2)
Interview with Mrs Agnieszka Kunicka, Head of the Refugee and Repatriates Counselling Centre, Polish
Humanitarian Action, and Mr Maciej Fagasiski, Amnesty International (Poland), May 2012.
Interview with Mr Marek Szonert, Director of the Office of International Cooperation, Office for Foreigners, May 2012.
Interview with Mrs Agnieszka Kosowicz, Head of Polish Migration Forum, May 2012.
10
ibid.
11
Sources: 1. Study on Polish Migration Policy - State of Play and Proposed Actions, op.cit.; 2) Interviews with: a) Mr
Marek Szonert, op.cit. ; b) Mr Maciej Fagasiski, op.cit.
12
http://www.msz.gov.pl/en/news/foreign_minister_radoslaw_sikorski_brings_home_north_african_refugees
206

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Not mentioned.
Additional National
Criteria
According to the new legal provisions, the Polish government is

authorized to issue a specific regulation relating to resettlement.
The Council of Ministers may determine, in a form of an ordinance:
1. A number of foreigners, who can be resettled or relocated in the
given year;
2. Countries from which they will be arriving;
3. The funds that are to be allocated for the costs covering
resettlement or relocation, including costs associated with
activities undertaken by relevant authorities outside the
Republic of Poland, costs of assistance provided for resettled or
relocated foreigners and costs associated with their integration,
as well as the sources of covering these costs.
In the ordinance, the Council of Ministers considers the humanitarian
aspects of a decision regarding resettlement or relocation, the necessity
to satisfy the essential needs of resettled or relocated foreigners in the
course of granting refugee status or subsidiary protection, as well as
actual costs of individual programmes of integration.
Selection Process
Deploying Staff
n/a

An application for granting refugee status is submitted to the Head of

the Office for Foreigners via the officer of the Border Guard delegated
to do this task outside of Poland.
The above-mentioned Officer of the Border Guard:
1. immediately delivers the application for further examination to
the Head of the Office for Foreigners;
2. issues an attestation of identity valid for 30 days starting on the
day of the foreigners entry into Poland;
3. notifies a relevant national health inspector about the refusal of
the foreigner, or person on behalf of who a foreigner is acting to
undergo medical examinations and sanitary treatments.
Dossiers
In principle, no.
Missions
Interrogation of a foreigner, in order to explain relevant facts for settling

the matter, is held in a place of his/her stay.
After arrival in Poland, the resettled or relocated refugee gives his
travel documents to the Head of the Office for Foreigners. A resettled or
relocated refugee is obliged to appear at the centre within 2 days of the
day of his/her entry into Poland.
S/he has to apply for refugee status once s/he is in Poland.
207

n/a
Assistance
documents
n/a
Medical screening
with
travel
Procedure Timing
n/a
Issue of a decision in the case of granting refugee status for a foreigner
entitled to resettlement or relocation comes in a period of 30 days from
the day of his/her entry into Poland.
Social and medical care is provided for a period of 6 months from
the day the decision on refugee status is made.
Comments
Effective resettlement was not possible to organise until now mainly due
to the absence of the adequate legal provisions regulating the
procedure and steps of the process.
Furthermore, migrants did not have much interest in being resettled
to Poland who considered it rather as a transit country rather than a
more permanent home.

Post-Arrival phase
Status granted
granting
protection
to
foreigners within the territory of
the Republic of Poland
Refugee Status or Subsidiary Protection.

Right of Residence.
Social and Medical Care.

Foreigners
Funding
National Level
ERF
Costs
13
The Council of Ministers may determine, in a form of a regulation, the

amount of money to be allocated to cover resettlement or relocation,
including costs associated with activities undertaken by relevant
authorities outside Poland, costs of assistance provided for resettled or
relocated foreigners and costs associated with their integration as well
as the sources of covering these costs.
It seems probable that additional resources (e.g. for public institutions
and non-governmental organizations) will be made available in the
framework of the European Refugee Fund. A call for applications in the
framework of this project was made at the end of 2011 and beginning of
2012. However, the projects associated with the voluntary resettlement
were not one of Polish priorities. Therefore, it was not possible to
present the projects related to resettlements. 13
n/a
Interview with Mr Maciej Fagasiski, op.cit.

More details available at:
http://www.wwpe.gov.pl/index.php?params[section_id]=9&params[category_id]=39
208

Comments
According to the latest examinations of the Polish Institute of Public

Affairs, 30% of refugees in Poland are homeless. They are struggling
with immense problems in the labour market. Resettlement of a new
group of refugees without a fundamental change of integration policy
and an increase of public assistance is not an appropriate movement.
Resettled foreigners are very likely to be contending with poverty,
unemployment and homelessness.
As regards the actual tendency, the majority of refugees in Poland
are wishing to leave Poland. Unfortunately, it is very likely that the
resettled refugees will do likewise. 14
Polish participation in the resettlement and relocation projects is
hoped to express solidarity with other Member States of the EU.
Considering the fact that Poland has the longest external border of the
EU, it is likely to occur in the future that Poland will need the
assistance and support of other EU Member States in solving similar
migratory challenges. Moreover, an experience gained from the
cooperation based on the organisation of resettlement and relocation
can turn out to be useful in the successful integration of all foreign
nationals resident in Poland. 15
14
Interview with Mrs Agnieszka Kosowicz, op.cit.
15
Study on Polish Migration Policy - State of Play and Proposed Actions, op.cit.
209


Portugal
Report written by
Ana Rita Campino (EUI)

Joo Crte Real Vasconcelos (ECRE)
December, 2012

210
KNOW RESET Country Profile: Portugal
Country Profile: Portugal

The concerns of the migration policies in Portugal have been mainly twofold: respond to new migratory
flows and the need to comply with EU legislation 1. The influx of immigrants in Portugal has changed over
the years: in the mid-1980s, it was mostly constituted of citizens from former African Portuguese colonies;
from the 1990s onwards, influxes from Eastern European countries, as well as Brazil, were observed. The
growing number of immigrants in irregular situations in Portugal around the same period led to the
implementation of special legalisation programmes in 1992, 1996 and then again in 1998 2.
Law 23/2007, of 4 July, establishes the legal framework for the entry, stay, exit and removal of foreign
citizens from the national territory. Since 2008, the annual quota of visas to be issued for reason of a
subordinated professional activity has significantly decreased, which has been justified by the scenario of
economic crisis 3. In 2010 the foreigners living in Portugal were in number of 445 262, representing a
decrease when compared to the previous year. The prevailing countries of nationality were, in this period,
Brazil, Ukraine, Cape Vert, Romania (the EU Member State with more citizens living in Portugal), Angola
and Guinea-Bissau 4.
The responsible body in Portugal for implementing the immigration and asylum policies 5 is the Ministry
of Internal Affairs. The Aliens and Borders Service 6 (Servio de Estrangeiros e Fronteiras - SEF), under the
tutelage of this Ministry, has the responsibility of controlling persons movements across the borders (entry
and stay), of preventing and restraining any criminal activities related with illegal immigration and human
trafficking and of issuing assessments regarding applications for granting visas.
Portugal has signed and ratified the 1951 Geneva Convention relating to the Status of Refugees in 1951
and in 1976 accessed to the 1967 Protocol. The 1976 Constitution of the Portuguese Republic was the first
Portuguese Constitutional text mentioning the right of asylum 7. Although not being one of the European
countries receiving more asylum applications, Portugal has been aware of the importance of having
measures that ensure a degree of care to asylum seekers in conditions of human dignity 8. The conditions
and procedures for granting asylum, as well as subsidiary protection and the statuses of asylum applicant,
refugee and of subsidiary protection are nowadays established in the new Asylum Law, which has also
transposed EU directives into the Portuguese internal legal order 9. One of the main changes introduced by
this Law was the clear and direct reference to the principle of non-refoulement (in art. 47).
The role of the Portuguese Refugee Council (Conselho Portugus para os Refugiados - CPR), a nongovernmental development organization, which is also representing the United Nations High Commission
for Refugees (UNHCR) in Portugal 10, is certainly to highlight when it comes to asylum related-matters,
having as a main purpose that of promoting a more human and liberal asylum policy, both at national and
international levels.
1
SEF/European Migration Network, The Organisation of Asylum and Immigration Policies in Portugal, 2008, p. 3,
available at http://www.sef.pt/documentos/56/PTHowpolicieareorganized.pdf [accessed 13 May 2012].
Ibid.
Ibid, pp. 7 and 17.
Ibid.
Decree-Law No. 126-B/2011, of 29 December (Organic Law of the Ministry of Internal Affairs), article 2, available at
http://www.portugal.gov.pt/media/381580/lo_mai.pdf.
It is also common to see the translation of Servio de Estrangeiros e Fronteiras to Portuguese Immigration Service.
OLIVEIRA, Andreia Sofia Pinto, O Direito de Asilo na Constituio Portuguesa: mbito de Proteco de um Direito
Fundamental, Coimbra Editora, 2009, p. 74.
Commission Decision C(2008) 6432 final, Annex I, p. 3.
Law 27/2008 of 30 June 2008, Establishes the conditions and procedures for granting asylum and subsidiary protection
and the statuses of asylum applicant, refugee and of subsidiary protection, transposing into internal juridical order
Council Directives ns 2004/83/CE, of 29th April and 2005/85/CE, of 1st December [Portugal], 27/2008, 30 June 2008.
10
This organization is a UNHCR partner since July 1993 and in December 1998 it began also to represent the latter in
Portugal (due to the fact that UNHCR ceased to have its own representation in Portugal), by means of a cooperation
agreement. - CPR, Apresentao, http://www.refugiados.net/_novosite/apresentacao.html [accessed 13 May 2012];
Commission Decision C (2008) 6432 final, Annex I p. 19.
211
CARIM Country Profile: Portugal

The number of asylum applications increased significantly and suddenly from 2010 (160 applications 11)
to 2011 (275 applications 12). This increase on the number of applications caused a serious humanitarian
situation of refugees in Portugal, since the capacity of the Reception Centre for Refugees (Centro de
Acolhimento para Refugiados - CAR) 13 was exceeded. Resettled refugees are, in like manner,
accommodated in reception centers.
In 2006, in a strong link with the UNHCR, and following its appeals on these matters 14, Portugal started
resettling on an ad hoc basis. In 2007, the resettlement of at least 30 people per year had proved to be
essential, giving origin to the Resolution of the Council of Ministers No. 110/2007, of 12 July 2007, which
defined a quota of at least 30 refugees per year, namely to face refugee resettlement requests (recital 7).
11
12
13
14
The Aliens and Borders Service. Available at http://www.cpr.pt/ under Estatsticas.

Ibid.
Information on this Centre can be found at http://www.cpr.pt/.
The Organisation of Asylum and Immigration Policies in Portugal,op.cit., pp. 8 and 18; and Cabinet of the Secretary
of State for Internal Affairs, e-mail interview for Know Reset, 24 February 2012.
212
Asylum Profile
status granted 15
50 (2011)
Number of asylum
seekers 16
275 (2011)
57 (2010)
160 (2010)
Resettlement Scheme
Resettlement Quota
30 persons/year (since 2007)

Asylum Law 27/2008, 30th
June 2008.
Establishes the conditions and procedures for granting asylum and

subsidiary protection and the statuses of asylum applicant, refugee and of
subsidiary protection, transposing into internal juridical order Council
Directives numbers 2004/83 EC, of 29th April and 2005/85 EC, of 1st
December hereafter Asylum Law.
Specific provision on Resettlement: in Chapter III (Procedure), Section V
(Resettlement of Refugees) of the Asylum Law.

Resolution of the Council
of Ministers No. 110/2007,
12 July 2007 hereafter
Resolution 110/2007;
European
Commission
Decision C(2008) 6432final,
from 06/11/2008, approving,
for Portugal, the multi-annual
programme for the period
2008-2013, the 2008 annual
programme for the European
Refugee Fund and the cofinancing for 2008 from that
Fund.
project/reform
Defines a quota of at least 30 refugees per year.
Launches a multi-annual programme
Continuity in resettlement (following the ad hoc resettlement in 2006

and 2007);
Privilege to citizens coming from the African continent and from

Eastern Europe, but not excluding other situations of citizens coming
from other places, if these justify their priority selection, mainly for
serious humanitarian reasons;
Reference to a minimum quota of 30 resettled refugees per year (as

defined in the Resolution 110/2007).
There is no on-going specific project/reform. Notwithstanding, Portugal is
committed to develop, in an annual basis, a pro-active planning of
activities in particular as regards the reception and integration of resettled
refugees 17.
15
The Aliens and Borders Service. Available at http://www.cpr.pt/ under Estatsticas.
16
Ibid.
17
Cabinet of the Secretary of State for Internal Affairs, e-mail interview for Know Reset, 24 February 2012.
213

2006 18
17
Country of Origin: 4 DR of Congo, 1 Congo, 5 Ivory Coast, 2 Liberia, 4
Eritrea, 1 Ethiopia.
Country of First Asylum: 17 Morocco.
Since 2007
A minimum quota of 30 refugees/year.
c) Temporary
Resettlement:
n/a

Governmental Level
n/a
n/a
experience
From Guantanamo
Intra-EU Relocation
n/a
In 2010, Portugal received 6 persons coming from Malta, where they had
previously been recognised with the international protection status.
In 2007 Portugal had already received persons coming from Malta. If
these people had been granted international protection in Malta, they
would have fell under the category of relocation. Since they had not
been granted the mentioned protection status, they could not be eligible
for relocation in Portugal. Only the UNHCR had recognised them as
refugees. Therefore, they were considered resettled refugees. 19
18
19
Sources: The Aliens and Borders Service, Reinstalao em Portugal, 2006-2009, table available at
http://www.cpr.pt/reinstalacao/ [accessed 13 May 2012].
Cabinet of the Secretary of State for Internal Affairs, op.cit.
214

Refugees resettled
2011 20
30
Country of Origin: 23 Eritrea, 5 Iraq, 2 Mauritania
Country of First Asylum: 2 Senegal, 4 Syria, 23 Tunisia, 1 Ukraine
Age:12 in 0-15, 2 in 16-20, 9 in 21-40, 6 in over 40 age brackets.
Religion:15 Christian, 14 Muslim, 1 Orthodox
2010 21
33
Country of Origin: 6 Afghanistan, 7 DR of Congo, 1 Ethiopia, 1 Iran, 13
Iraq, 3 Somalia, 2 Uganda
Country of First Asylum: 1 Belarus, 1 Libya, 9 Mozambique, 13 Syria, 9
Ukraine
Age:10 in 0-15, 5 in 16-20, 9 in 21-40, 9 in over 40 age brackets
2009 22
30
Country of Origin: 10 Afghanistan, 12 DR of Congo, 3 Ethiopia, 4 Iraq, 1
Somalia
Country of First Asylum: 4 Syria, 12 Tanzania, 14 Ukraine
Age:15 in 0-15, 5 in 16-20, 3 in 21-40, 7 in over 40 age brackets.
Religion: 12 Christian, 15 Muslim, 3 Orthodox
2008 23
11
Country of Origin: 6 Eritrea, 5 Iraq
Country of First Asylum: 6 Angola, 5 Syria
20
Sources: The Aliens and Borders Service /Departamento de Planeamento e Formao (Ncleo de
Planeamento), Coordenao Joo Atade e Pedro Dias, Relatrio de Imigrao, Fronteiras e Asilo 2011,
Oeiras, Portugal, p. 52; SEF.
21
22
23
Source: The Aliens and Borders Service, Reinstalao em Portugal, 2006-2009, table available at
http://www.cpr.pt/reinstalacao/ [accessed 13 May 2012].
215

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
Portugal follows the same criteria as UNHCR, as well as the ones

resulting from the multiannual programme (2008-2013) 24, namely in the
categories identified in paragraph 3 of Article 13 of FERIII 25:
persons from a country or region designated for the
implementation of a Regional Protection Programme (par. 3, (a));
unaccompanied minors (par. 3, (b));
children and women at risk, particularly from psychological,
physical or sexual violence or exploitation (par. 3, (c));
persons with serious medical needs that can only be addressed
through resettlement (par. 3, (d)).
In 2011, however, priority was not anymore given to persons with serious
medical needs 26.
Additional National
Criteria
There have been some criteria considered to be of preferential or priority

relevance in each year. More specifically, in 2008 privilege was to be
given to citizens coming from the African continent and from Eastern
Europe 27; in 2009 the selection of Iraqi refugees coming from Syria and
Jordan, particularly children and women at risk, were subject to
preferential selection 28; and in 2010 privilege was to be given to people
from countries subject to a Regional Protection Programme, emphasizing
the categories of people who are in situations of obvious vulnerability, as
women alone or with children and individuals from ethnic minorities 29. In
any of these years it was, however, always recognised that these
preferential or priority criteria would not exclude citizens from other
countries or in different situations that would justify the priority selection,
mainly for serious humanitarian reasons.
24
Commission Decision C(2008) 6432 final, of 06/11/2008, Annex 1.
26
UNHCR, Division of International Protection, Resettlement handbook- Country Chapters - Portugal, July 2011, p. 4.
28
Commission Decision C(2009) 3330 final, from 05.05.2009, Annex, p. 17.
25
Cabinet of the Secretary of State for Internal Affairs, interview, op.cit..
27
Commission Decision C(2008), Annex II, p. 8 and Annex II, p. 18.
29
Commission Decision C(2010) 2656, of 27/04/2010, Annex, p. 17.

216

Selection Process
Deploying Staff
n/a

Processing of resettlement cases shall be carried out by the Immigration

Service in practice by its Refugee and Asylum Cabinet (Servio de
Estrangeiros e Fronteiras/Gabinete de Asilo e Refugiados).
According to art. 35 of the Asylum Law, the stakeholders involved in the
procedure are the Ministry of Internal Affairs, the Portuguese Aliens and
Borders Service and the Portuguese Refugee Council. The Immigration
Service/Refugee and Asylum Cabinet relies on UNHCRs prior refugee
status determination when considering an individual application for
resettlement. The requests for the resettlement of refugees under the
mandate of the UNHCR shall be presented to the Government member
responsible for the internal affairs area.
Dossiers
Missions
The selection process on a dossier or mission basis is not specifically

provided for in Portuguese legislation. Portugal has been carrying out the
resettlement decisions only on a dossier review basis 30.
To underline is the position of the CPR on this issue, which has already
alerted for the difficulties inherent to this selection method, supporting an
eventual choice of the selection on a mission basis 31.
Pre-Departure
Activities
(Non systematic) distribution of a Cultural Orientation Leaflet for Resettled

Refugees in Portugal, prepared in 2008 by the CPR and the Immigration
Service with the support of the ERF 32.
The CPR has already considered of great importance to have specific
programmes of awareness before the departure, in order to better inform
refugees on what is expecting them in Portugal 33.
Assistance
documents
with
travel
No cooperation agreement with the IOM to date on travel arrangements,

hence all travel arrangements are organised by the
Immigration Services in cooperation with the Ministry of Foreign
Medical screening
Affairs/Directorate-General for Consular Affairs and UNHCR.

No agreement with IOM.
Procedure Timing
The time frame for the procedure is legally defined in Article 35 of the
Asylum Law:
2. The Portuguese Immigration Service shall ensure the necessary
proceedings for the course and the decision on applications
within a period of ten days.
30
Cabinet of the Secretary of State for Internal Affairs, interview, op.cit; UNHCR, op.cit.
32
UNHCR, op.cit.
31
CPR, Programa Nacional de Reinstalao: reflexes sobre a sua operacionalizao, August 2008, p. 4.
33
CPR, Programa Nacional de Reinstalao: reflexes sobre a sua operacionalizao, August 2008, p. 4, p. 5.
217

3. The Portuguese Refugee Council shall be informed on the
lodged applications and may render an opinion upon said
applications within five days.
4. The Government member responsible for the internal affairs
area shall decide on the acceptance of the resettlement request
within 15 days.
However, the average period for processing the requests is 4 months 34.
Comments
Another issue herewith related is the timing of arrival of resettled refugees

(and whether they arrive in groups or alone). The President of the CPR,
Dr. Maria Teresa Tito Morais, has shared the desire to see the minimum
quota being filled gradually along the year, instead of receiving many
people simultaneously 35.

Post-Arrival phase
Status granted
Asylum Law, article 35, pars.
1, 4 and 5, the latter referring
to Chapter VII of the same
Law
(Refugee
and
subsidiary protection status)
Refugee or subsidiary protection - It is the Minister of Internal Affairs

who determines (based on legal provisions) which of the two statuses
to grant 36.
The respective status is granted with the acceptance of the resettlement
request (Asylum Law, art. 35, par. 5) and is therefore not dependant on a
specific and separate application for that purpose.
Rights granted
Article 65 of the Asylum Law
Articles 66 to 76 of the
Asylum Law
Beneficiaries of the refugee status and subsidiary protection are entitled

to the rights and must comply with the obligations of aliens living in
Portugal.
Specific provisions on rights of the refugee status and subsidiary
protection beneficiaries:
Information, residence permits, maintain family unit, travel documents,
access to education, access to employment, social welfare, healthcare,
access to housing, freedom of movement within Portuguese territory,
Integration programmes.
The CPR is the NGO responsible for providing independent legal
counselling to asylum seekers and refugees at all stages of the asylum
procedure (article 49 (4) of Asylum Law 27/2008)
34
UNHCR, op.cit.
35
Portugal recebeu apenas trs refugiados ao abrigo do Programa de Reinstalao [Portugal has only received three
refugees under the Resettlement Programme], article in the newspaper Pblico, 20.06.2010,
http://www.publico.pt/Sociedade/portugal-recebeu-apenas-tres-refugiados-ao-abrigo-do-programa-de-reinstalacao1442781.
36

218

Airport Arrival
Resettled refugees are met by a member of the CPR staff accompanied by

a translator. They receive basic information on transfer and reception
arrangements. Transportation to the Reception Centre located in Bobadela,
located circa 10 Km from the airport.
Info upon arrival
At the Reception Centre, resettled refugees are provided with initial

information on its functioning rules, staff composition, rights and duties
during their stay, and service provision. The pre-departure information
pamphlet prepared by the CPR and the Immigration Service is distributed.
Provided by the CPR.
Programme
(Housing, health, education)
Accommodation in the reception centre for up to 6 months, with all the

services. The transition of resettled refugees into private housing is
prepared by the CPR in cooperation with local social security services.
Financial assistance granted to resettled refugees by social security
services covers accommodation, food and other private expenses,
transportation, education and health care.
At the reception centre.
Counselling
Provided by NGO members of theRede Alargada, notably the

Associao Portuguesa de Apoio Vtima APAV and the Centro de
Apoio Vtima de Tortura em Portugal CAVITOP.
Comments
In the reception centre. Assistance provided by the CPR.

In accordance to Article 68 of Asylum Law 27/2008 refugees are entitled
to the extension of their status to family members residing either in
Portugal or abroad.
Provided by the CPR in the reception centre. Upon his accommodation in
individual housing, a social worker of the Institute of Social Security (ISS)
is designated to follow-up on the refugees integration.
The tripartite (State, UNHCR, NGO) nature of the resettlement programme

from the onset in particular NGO involvement in planning and
implementation as core reception and integration service providers - is
highlighted as a positive feature. Despite instances of insufficient
coordination and duplications in service provision, role setting at
operational level between relevant stakeholders seems quite well
established. For post arrival this setting stems from the structure that was
already in place for the reception and integration of spontaneous asylum
seekers. It is rooted in both legal attributions, particularly in the case of
international organisations (e.g. UNHCR) and public services (immigration
service, social support services, health services, education, employment
and training); partnership and funding agreements (e.g. European Refugee
Fund) between the government and the main service provider (CPR); as
well as on operational coordination among relevant stakeholders in the
framework of existing coordination structures (e.g. Rede Alargada).
219

Funding
National Level
25% of the national budget 38
ERF
75% of the ERF contribution 39
Overall Resettlement
Budget 37
2008
ERF
National
Funding
% ERF
Contribution
2009
2010
2011
120,000.0
0
120,000.00
120,000.00
120,000.00
40,000.00
40,000.00
40,000.00
40,000.00
75%
75%
75%
75%
Costs
n/a
Comments
The institute of resettlement is, for the Portuguese State, an essential

element of the common asylum policy, which is based on solidarity
among Member States 40. Recognising this importance, Portugal is now 41
(...) promoting a wider debate, identifying all the institutions that could
play a role in various stages of a resettlement program, including local
authorities in order to articulate and frame all the activities concerning
resettlement within a broader policy. At this moment, it is not, however,
desirable to increase the minimum quota of resettled refugees 42.
37
Commission Decision C(2008) 6432 final, from 06/11/2008, Annex I, p. 24, table 7.2.1.
38
Ibid, and Annex II, pp. 17 and 18, C(2009) 3330 final, from 05.05.2009, pp. 18 and 20, C(2010) 2656, of 27/04/2010, p.
19, and C(2011) 2745 final, of 18/04/2011, pp. 17 and 18.
39
Ibid.
40
Resolution 110/2007, preamble.
42
Ibid.
41
220


Romania
Report written by
Madalina Moraru (EUI)

Andrea Mocanu (ECRE)
June, 2013

221
KNOW RESET Country Profile: Romania
Country Profile: ROMANIA

In 1991 Romania ratified the UN Convention (1951) and Protocol Relating to the Status of Refugees
(1967). 1 In June 1995 it presented its official application for EU membership, thus starting a process of
significant modifications of its asylum system with a view to harmonising it with EU standards. On 27
February 2003, the Emergency Government Ordinance no. 194/2002 on the legal status of aliens in
Romania entered into force.
Approximately half of Romania's borders are with non-EU countries: Moldova, Ukraine, and Serbia. In
addition, Romania is sharing borders with two EU countries: Hungary and Bulgaria. The number of asylum
applications has fluctuated from year to year, with 15,605 applications being received between 1991 and
the end of 2006. 2 On May 4th 2006, Romania adopted its main law governing the asylum procedure, Law
no. 122/2006 on Asylum in Romania. This was done as part of the process of Romanias alignment with EU
legally binding norms on asylum policy.
On January 1st 2007, Romania became a member of the EU and consequently part of EU common
asylum policy. Approximation/transposition of the EU acquis in the field of migration and asylum became
one of the priorities of the Romanian authorities. Thus Law no. 122/2006 on asylum in Romania was further
amended in 2007 in order to update that legislation with EU directives related to asylum. Access to the
Schengen Area has been postponed, officially because of gaps in the border security system.
In 2008, 931 people applied for asylum in Romania, an increase of 45% from 2007 when 657 asylum
requests were submitted. 87 people obtained refugee status and 7 were granted subsidiary protection. In
court, 15 people obtained refugee status and 28 were given subsidiary protection. 3 In the first 11 months of
2011, a total of 1,862 asylum applications were submitted, out of which some 306 had already applied for
refugee status. This number of asylum applications is almost double in comparison with the same period for
2010. During 2011 a new challenged raised, following the impact of the geopolitically context coming with
the Arab Spring. If in the last 20 years (1991-2010), Romania had registered only 65 asylum applications
from Algeria, during 2011 Algeria represented the first country of origin present in the official statistics
having a number of 431 asylum applications registered by the Romanian authorities.
The overall political, social and economic situation in Romania remains challenging. In 2011, the general
economic situation was characterized by a reduction of public sector employees, reduction of some of the
social benefits, and in general a high level of social insecurity. In spite of the austerity measures taken by
the government, none of the financial benefits of persons of concern were affected.
However, some measures taken in the reception/accommodation centres to reduce the costs of utilities,
prompted reactions among the beneficiaries. The general staff reduction in the Romanian Immigration
Office - Directorate of Asylum and Integration, as a result of the budgetary constraints is also problematic.
In terms of legislative improvements, in 2011 specific provisions were adopted in the Aliens Law,
allowing persons with tolerated status (most of them finally rejected asylum-seekers) to legally work in
Romania.
In 2006, six Regional Centres for Accommodation and Asylum Procedures were operating, offering
shelter for 1,312 asylum applicants and another two such centres were due to open. 4 The Regional Centres
for Accommodation and Asylum Procedures run by the Romanian Government, are currently located in
Bucharest, Giurgiu, Galati, Radauti, Maramures, and Timisoara.
The first Tripartite Agreement (UNHCR, IOM and the State) establishing an Emergency Transit Centre
(ETC) was concluded by Romania in November 2008. With the help of the Romanian Government and the
International Organization for Migration, UNHCR is running the ETC for the temporary evacuation of people
in need of international protection and their onward resettlement to their future home countries. The ETC
Law no. 46/1991 on Romania's accession to the Refugee Convention and Protocol on the Status of Refugees.
See Focus Migration Romania, available at http://focus-migration.hwwi.de/Romania.2515.0.html?&L=1
JRS web site, at http://www.jrseurope.org/countries/romania.htm
http://www.bpb.de/themen/C6FB7C,0,Refuge_and_Asylum.html
222

Timisoara was opened on March 12th, 2009. From the entry into force of the trilateral Agreement until
present, the evacuated refugees who were located in the ETC have been resettled in the USA, Canada,
Sweden, the UK, Norway and Germany. The Netherlands have pioneered the use of videoconferencing for
resettlement interviews at the ETC in Timisoara, Romania.
Refugees are located in the same camp as asylum seekers who are awaiting proceedings and those
persons who have already received refugee status from Romania. The capacity of the accommodation is
200. With regard to transfers to ETCs in Romania, the length of stay should normally not exceed six months
as provided in the Agreement, although there is the option to extend the period of stay under exceptional
circumstances. 5 More than 600 refugees have transited the Centre. 6
Romania had a resettlement programme for 3 years, from 2008 until 2010. That programme planned for
the resettlement of 40 refugees per year for a 3 years period. Yet, only 38 refugees were resettled during
the first year of the programme. The programme has not been implemented the following years. In 2012, a
new Government Decision on resettlement was adopted to launch a resettlement programme for the
second part of 2013.
Asylum Profile
status granted 7
108 (2011)
123 (2010)
2,064 (2011)
1,038 (2010)
Resettlement Scheme
Resettlement Quota
40/2 years (2012-2013)

Law
no.
122/2006
Asylum in Romania
on
Regulates the asylum procedure in Romania as well as the rights and

obligations of refugees. Art. 3(5): The Ministry of Administration and the
Interior, through the Romanian Office for Immigration, can propose that
Romania accepts refugees that are in other states, who have been
recognized according to the Geneva Convention. The number and
conditions of acceptance of these people will be established through a
Government decision. These people will have the same rights and
obligations in Romania as the refugees recognized by the Romanian State.
In the absence of a specific Government Decision on resettlement, as
the Government Decision 1596/2008, Art. 3(5) of Law 122/2006 applies
as lex generalis. Other Articles of relevance for the resettlement
procedure in Romania are: Arts.2, 3, 17 and 18 (rights of asylum
seekers), 19 (obligations of asylum seekers), 20 (rights of refugees), 22
(obligations of refugees), 23, 26.
According to the Tripartite Agreement.
For an evaluation of their stay, see Machiel Salomons, UNHCR's representative in Romania, declaration of June 8th,
2010. See http://www.unhcr.org/4c0e76e29.html
And 2010 Participatory Assessment Report of UNHCR Being a refugee How refugees and asylum-seekers
experience life in Central Europe, available online at http://reliefweb.int/report/bulgaria/being-refugee-how-refugeesand-asylum-seekers-experience-life-central-europe
Source: Romanian Office for Immigration.
Ibid.
223

Other basis of
resettlement:
Agreement
between
the
Government of Romania and
the Office of the United
Nations High Commissioner
for
Refugees
and
the
International
Organization
for
Migration
Regarding
Temporary
Evacuation
to
Romania of Persons in Urgent
Need
of
International
Protection and their Onward
Resettlement with UNHCR,
signed on May 8, 2008
Established an Emergency Transit Centre in Timisoara. The ETC, the first

of its kind in Europe, hosts refugees in urgent need of evacuation from
their first asylum countries due to life threatening conditions, for a
maximum period of 6 months, during which they are resettled to third
countries.
Under the Agreement, the UNHCR covers all the costs resulting from
the refugees stay in the Romanian ETC. The Ministry of Interior, through
the Romanian Office of Immigration (ROI), provides the UNHCR with the
accommodation spaces necessary for the persons covered by this
Agreement and workspaces necessary to the UNHCR, its partners and
the IOM. The ROI bears the costs of the accommodation and
workspaces.
Government Decision no.

1596 of 4 December 2008 on
Resettlement of Refugees in
Romania
Defines a resettlement quota (120 refugees/3 years) and a procedure to

be implemented from 2008 to 2010.

810/2012
concerning
the
amendment of Government
Decision 1596/2008 on the
Resettlement of Refugees in
Romania, published in the
Official Journal of 10.08.2012
Revises the quota (40 refugees/2 years) and improves the resettlement
procedures to be implemented in 2012-2013.
project/reform
UNHCR Protection priorities for the year 2012 aim at reducing the
shortcomings in the Romanian asylum system, implementation of the
newly adopted regulations in this field having as a priority for 2012 the
new provisions of the Governmental decision regarding the resettlement
in Romania - and ensuring that the protection offered by Romania is in
conformity with the 1951 Convention and other international and regional
standards in refugee protection, including good practice at international
and European level.

n/a
On the basis of the Government Decision no 1596/2008, Romania

promised to resettle a maximum of 120 refugees for the duration of the
Programme (3 years), in annual quotas of 40 refugees.
Between 2008-2010
2012-2013
Committed to resettling 40 refugees over 2 years (2012 and 2013), in

annual quota of 20 refugees.
c) Temporary
Resettlement:
1999
Relocation of 4,000 Bosnian refugees for resettlement to the USA.
July 2005
Romania's agreement to temporarily shelter 439 Uzbek refugees airlifted

from Kyrgyzstan and eventually resettled to other EU member states, to
224

Canada and the USA. The operation helped to pave the way for the
establishment of the ETC in 2008.
ETC Timisoara
Since its establishment in 2008, the Evacuation Transit Centre Timioara

had processed 851 refugees. So far, 525 refugees found a new home in
the USA, 122 in the UK, 75 were received by the Netherlands, 65 by
Canada and 45 by Sweden. Other 19 refugees went to Finland (8),
Australia (7) Norway (3) and Germany (1). Most of refugees hosted at the
ETC were of Palestinian (354), Eritrean (203) and Sudanese (138) origin.
In April 2011, 30 Eritrean refugees arrived in the Timisoara ETC from a
camp in Tunisia after having fled from Libya. 9

Governmental Level
2012
Twining project established between Romania and Australian authorities.
2008
Dutch selection mission to Jordan with the Netherlands in order to watch

and learn from the Dutch selection missions. In the framework of Durable
Solutions in Practice, Representatives from Belgium, the Czech Republic
and Romania also visited the Netherlands, where they were given a
general overview of Dutch resettlement policy, including quota and
reception.
n/a
experience
From Guantanamo
None
Intra-EU Relocation
Romania was among 12 European Union states, together with another

three countries not in the EU, which pledged to resettle 323 refugees who
arrived in Malta as migrants in May 2011. The announcement was made
at a special pledging conference convened by Home Affairs
Commissioner Cecilia Maelmstrm as part of an intra-EU migrants
relocation pilot project. 10
Comments
The quotas due for 2008 and 2010 (80 refugees) have not been
fulfilled due to the delayed approval of Government Decision no.
1596/2008 on resettlement of refugees in Romania, as well as due to
the economic and social situation resulting from the global economic
crisis. 11 The Government Decision no. 1596/2008 expired at the end of
2010 and the Government of Romania adopted another Government
Decision to address future resettlement quotas and operations
undertaken by Romania. 12
Information available at http://www.ziare.com/articole/centrul+refugiati+timisoara
10
No specific information was provided by the Romania Office for Immigration on this aspect.
11
Official reply of the ROI to the KNOW RESET questionnaire (unofficial translation in English by the author of this
Report), 20 February 2012.
12
According to ROI and UNHCR Romania.

225

Refugees resettled
2008 13
No refugees have been resettled in Romania since 2011. The

resettlement programme based on Government 1596/2008 ended in
2010. Romania has not resettled any refugees, except in 2008.
38
Country of Origin: Burma (38) (Kachin origin)
Country of first asylum: Malaysia (38)
Gender: Male (14), Female (16), Children (8) (The group consisted of 14
families (14 women, 14 men and 8 children) and two single women.).
Age: Adult age was between 23 and 60 years.
Religion: Christian (38)

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
In order to have been considered for resettlement to Romania (based on

the 2012 Government Decision), an individual must have met the
following requirements:
a) He or she has been recognized as a refugee in accordance with
Article 1A of the 1951 Geneva Refugee Convention and its
Protocol by a State or by UNHCR;
b) He or she does not benefit from effective protection on the territory
of the country of asylum;
c) He or she does not have integration perspectives in the country of
asylum;
d) He or she does not have any prospects for voluntary repatriation to
the country of origin under conditions of safety and dignity;
e) He or she does not present a threat to public order, national
security, health or public moral;
f) He or she has expressly accepted to be resettled to Romania.
Additional National
Criteria
These conditions were already required under the Government Decision,

which expired at the end of 2010. The 2012 Government Decision on
resettlement of refugees in Romania has eliminated the criterion relating to
the potential of integration of refugees within Romanian society. This
amendment was made at the express request of the UNHCR, which
accords great importance to the selection criteria of the refugees and which
believes that the potential of integration is not an acceptable criterion. 14
The 2012 Decision also stipulates that The resettlement operations are
established taking into account the following criteria:
a) international requirements set by the UNHCR for refugee
resettlement;
b) the foreign policy of Romania;
c) relocation requirements set at the EU level.
13
Source: Romanian Office for Immigration.
14
Romanian Office of Immigration formal reply to the KNOW RESET questionnaire, op.cit.
226

Selection Process
Deploying Staff
ROI

UNHCR, Minister of Administration and Interior, Minister of Foreign

Affairs, Romanian Office for Immigration (ROI)
Dossiers
According to the previous Emergency Government Decision 1596/2008,

there were two ways of selecting refugees for resettlement, namely a)
dossier based selections and b) in-country selection missions.
Whilst selection missions to countries of asylum is considered the
main method, dossier based selections may be used if a selection
mission to an asylum country cannot be organised, based on a reasoned
decision of the Director General of ROI. 15
The selection procedure done by both dossier and mission method is
included in the new decision adopted in 2012.
Missions
Even in the case of a selection mission, a pre-selection of possible

candidates (refugees in need of resettlement) is undertaken, based on
the files received from UNHCR, before interviewing the refugees in the
asylum country.
Upon the decision of the Resettlement Committee on the countries of
origin and the countries of first asylum of refugees to be resettled to
Romania, and following the authorization by the Minister of Administration
and Interior and by the Minister of Foreign Affairs, ROI proceeds to draft
and forward to UNHCR a request proposing possible candidates for
resettlement to Romania (accompanied by the request for resettlement).
Upon receipt of the refugees' case (the Resettlement Referral Form RRF) from UNHCR, ROI carries out the following activities:
a. Receives and registers the resettlement files submitted by
UNHCR. The files must contain the information note on the
resettlement proposal together with the identification data of the
refugees proposed for resettlement and their individual files;
b. Verifies and analyses the data contained in the files submitted by
UNHCR according to the competencies of services within ROI.
The purpose of this verification and analysis is to establish whether
there are reasons to exclude any of the refugees submitted by UNHCR
from being interviewed and to identify aspects that shall be kept in mind
during the future interview proceeding in the country of asylum.
The results of the verifications and data analysis are included in a
Report listing the refugees that are to be interviewed in the country of
asylum. A brief explanation is provided when there is a decision not to
interview a particular refugee. UNHCR is informed of the names of the
refugees pre-selected for interview, or where appropriate, of those
approved for resettlement upon examination of a dossier submission.
After forwarding the list with the pre-selected refugees to be
interviewed in country of asylum, the ROI establishes contact with the
UNHCR Representation in Romania or directly with the competent
authorities from the country of asylum in order to agree the practical
details of the selection mission.
15
According to the UNHCR Report on resettlement in Romania and Law 122/2006 and H.G. 1596/2008. The
aforementioned
UNHCR
Report
is
available
at
http://www.unhcr.org/cgibin/texis/vtx/refworld/rwmain?page=search&docid=4ecb9c00d&skip=0&advsearch=y&process=y
&allwords=&exactphrase=&atleastone=&without=&title=resettlement handbook country
chapter&monthfrom=&yearfrom=&monthto=&yearto=&coa=&language=&citation=
227

The purpose of the interviews with the refugees is to evaluate their
situation in accordance with the resettlement selection criteria. Based on
the results of the evaluation, the selection mission will propose the
refugees to be accepted for resettlement in Romania.
The family members of the Principal Applicant are also interviewed by
the selection mission. At the beginning of the interview, the refugees are
explained the purpose of the interview and the selection procedure. The
medical evaluation is carried out on each refugee by a medical doctor.
The officer conducting the interview with the refugee, assisted by the
integration officer, counsels the interpreters prior to the interview on the
rules which they must observe when interpreting.
A report is drafted for each individual refugee case which contains the
conclusions of the evaluation with respect to each of the selection criteria.
Upon return to Romania, the Head of the selection mission will propose the
list of refugees to be accepted for resettlement. The list of accepted
refugees must be approved by the Director General of the ROI. Once this
16
approval is obtained, the acceptance decisions are shared with UNHCR.
Possible cultural orientation and counselling services provided by ROI.

In order to inform refugees on integration activities in Romania and
preparing integration programs, NGOs engaged in projects on the
integration of refugees in Romania, financed by the ERF, participate in
selection missions by ROI.

documents
ROI, in partnership with an organisation to be determined.
Medical screening
Red Cross and ROI, for travel safety purpose.
Procedure Timing
The Government Decision on resettlement in Romania no 1596/2008

came into force on December 2008. The decision approving the
resettlement of the 40 Burmese refugees was adopted in mid-2009 and
the refugees arrived in Romania (Bucharest) on May 31st, 2010).
Comments
Within the framework of the first resettlement programme run by

Romania, one of the criteria used for the selection of the refugees for the
purpose of their resettlement was their potential for integration. The 2012
Decision which regulates the conditions for accepting refugees from other
countries by Romania for the period of 2012-2013 no longer provides
potential integration as a selection criterion because resettlement is
considered primarily as a tool for ensuring protection of refugees. 17
Refugee still have to expressly accept to be resettled to Romania as it
appears that the refugees who were previously resettled in Romania did
not want to be received there left the country after getting their
documents 18.
The involvement of NGOs during the selection process (to provide
preparation for integration) is to be noted.
16
Report on resettlement in Romania written by the Romanian Office for Immigration based on information available until
July 2011, see UNHCR Handbook on resettlement, Chapter on Romania, available online at
http://www.unhcr.org/refworld/country,,,,ROM,,,10.html
17
According to the Romanian Office for Immigration reply to the KNOW RESET questionnaire, op.cit.
18
2010 Participatory Assessment Report of UNHCR Being a refugee How refugees and asylum-seekers experience life
in Central Europe, op.cit.
228

Post-Arrival phase
Status granted
810/2012
After entering Romania, ROI shall issue, within 30 days, decisions

whereby the transferred persons are recognized as refugees in Romania
and they will be issued documents according to the law.
Rights granted
Programme (Housing,
health, education)
All persons granted refugee status or subsidiary protection can register

for the ROI integration programme. This programme is 6 months long with
a possible supplementary 6 months, and includes: Romanian language
courses, cultural accommodation sessions, counselling and support in
order to have access to rights in Romania, financial support (similar to the
one granted to asylum seekers). 50% of the rent for accommodation for a
maximum 12 month period which dependant on the refugee having
finalized the integration programme.
Held in the Regional Reception / Accommodation Centres in Bucharest,

Timisoara, Galati, Radauti and Maramures and carried out by RIO
counselors twice a week. These sessions are organized in modules:
History and Geography, Romania - democratic state, The
human/individual and society and EU Values.
Counselling
Within the Integration Programme, the refugee will be explained how a job
may be obtained. The refugee will be registered at the state institution,
which assists with searching for employment. The refugee will be assisted
in obtaining social support if he/she does not have the means to earn a
living. The refugee will be assisted in benefiting from medical care.
For adults and children.
Employment
If the National Agency for Employment identifies a job for a specific refugee
in Romania, the refugee is obliged to go to that locality for attending an
interview with the employer. If the employer agrees to offer the refugee a
job, that refugee is obliged to take up residency in the locality in which the
job is located. The local City Hall will try to offer social housing. If there is
no social housing available in that locality, the refugee will have to rent a
house and RIO will contribute 50% of the rent for one year.
Comments
Save the Children Romania and the Jesuit Refugee Service Romania
were the NGOs that run integration programmes for the refugees
resettled in Romania and accommodated in the Regional Centre for
Accommodation and Asylum Procedures in Galati.
According to a UNHCR Report The group [of 38 refugees resettled in
Romania] were extremely unhappy about their current situation and what
they felt was a dire socio-economic condition compared to their lives in
Malaysia, where there were plenty of jobs and good wages. They claimed
that the financial assistance and in-kind donations in Romania were not
enough to sustain a decent living, and that they could not afford even to
buy milk and diapers for the children. Some rejected the financial
assistance eventually provided by the Government on the grounds that it
was too low.
As some of them had assessed that the initial salaries they might earn
in Romania would not cover all their needs, most did not want to actively
participate in the integration process any longer. At the time of the
interviews, only three families were making an effort to learn Romanian
and seeking jobs in local businesses. Most families even refused to enroll
229

their children in schools and kindergartens. The refugees claimed they
had been given confusing information about their new home country by
the Romanian authorities and UNHCR during the cultural orientation
course prior to their departure. They criticized Romania for not being a
good resettlement country and demanded that the UNHCR send them to
the USA or a Nordic country.
Group leaders emerged who influenced others to actually oppose
integration and persuaded them not to bother learning the Romanian
language. They were convinced that the best option open to them was to
leave Romania as soon as possible. 19 They were made to believe the
best option was to leave Romania as soon as possible. Most of them
decided to leave Romania, after they received the documents as resettled
refugees and started to apply for asylum, requesting protection to other
EU countries. At the end of December 2011 they were sent back in
Romania from several countries and even at the present time they had
been accommodated in a centre of the Baptist Church, with the rent paid
by the Jesuit Refugee Service in Romania, under the ERF national
integration program.
Funding
The transfer to Romania and the cultural orientation sessions for Myanmar
refugees selected in 2009 was implemented by RIO and the Romanian
Red Cross and financed through the European Refugee Fund. 20
Costs
n/a
Comments
Motivation: The Governments decision to get involved in the resettlement

of refugees process was influenced by the political will of strengthening
Romania's status as an important global partner by undertaking efforts and
responsibilities incumbent upon the international community in the area of
refugee protection. Since the resettlement of refugees plays an important
role in the EUs external policies on asylum, the involvement of Romania in
the resettlement programme was driven also by the desire to assume more
responsibility as an EU Member State. 21
Possible evolution and capacity to increase: Initially Romania had a
programme of resettlement established for the duration of 3 years (2008
2010). Government Decision no. 1596/2008 on resettlement of refugees
in Romania was drafted on the basis of public policies and resulted from
the consultation of all governmental and non-governmental factors
involved in the resettlement process.
The Government decision adopted in 2012 to launch a new
resettlement programme followed the organization of a Meeting in March
2012 between the ROI and all the relevant stakeholders (Minister of
Labour, Minister of health, Minister of Education, Minister for Social
Protection) and the other partners involved in the integration process
(including UNHCR and NGOs).
Romanian NGOs and governmental authorities are all eager to continue
resettlement activities and enhance capacity for resettlement; the UNHCR
Representative in Romania stated during the meeting that UNHCR is
concerned about the Romanian potential for assistance and integration of
19
ibid.
20
Report on resettlement in Romania written by the Romanian Office for Immigration based on information available until
July 2011, see UNHCR Handbook on resettlement, Chapter on Romania, available online at
http://www.unhcr.org/refworld/country,,,,ROM,,,10.html
21
Information provided by the Romanian Office of Immigration formal reply to the KNOW RESET questionnaire, op.cit.
230

the future resettled refugees taking into consideration also the impact of the
economic crisis and if in the near future no progress will be in place,
UNHCR is going to recommend that all the resettlement programmes to be
postponed until the moment in which Romania will be enough prepared to
receive this persons in urgent need of international protection.
Opinion of the Romanian Office for Immigration on the one and only
operation of resettlement by Romania: The ROI argued that this first
resettlement of refugees in Romania was successful. The ROI, in
collaboration with the UNHCR, have made a number of changes to the
programme, which seeks to improve the experience for all parties.
These are:
Establishing, for the period 2012-2013, an annual quota which is

reduced in comparison with the first programme on resettlement;
Dispensing the criterion for selection which is based upon the
potential of refugee to integrate into Romanian society;
The children of the refugees accepted to be resettled in Romania
that have been born in the state of first asylum should be
considered refugees and accepted for resettlement in Romania
and transferred together with their parents;
The transfer of refugees accepted for resettlement in Romania is to
be conducted by the ROI in partnership with an organization
specialized in this field of activity. 22
The NGOs that were consulted for this profile expressed no concern
with regard to the situation of migrants in general including resettled
refugees and asylum-seekers. NGOs all felt they did not have the
capacity to take on more resettled refugees unless new capacity building
with the government took place. It was felt that some concrete steps
needed to be taken by the government ministry with responsibility for
integration.
The only resettlement programme carried out in Romania is
considered as a successful one by all the actors involved, with the
exception of the resettled refugees.
All the actors highlighted several practical issues that need to be
addressed to improve the resettlement experience for refugees and
NGOs. Repeatedly, interviewees expressed hope that by establishing an
annual programme these practical issues could be resolved.
The view and influence of public opinion on refugee resettlement:
In April 2011, the Foundation Soros - Romania and the Romanian
Association for the Promotion of Health presented the findings of a public
survey, according to which 39% of the Romanians said they feel good
and very good or at least neutral about aliens in Romania. So far, the
media has been positive with regard to refugee issues in Romania. 23
22
ibid.
23
Ibid.
231


Slovakia
Report written by
Veronika Misovska (EUI)

July, 2013

232
KNOW RESET Country Profile: Slovakia
Country Profile: SLOVAKIA

Due to its geographical location Slovakia was often perceived by asylum seekers as well as the asylum
authorities as a transit country rather than as a final destination. Added to this is the past experience of
Slovakia as a former socialist country and it is clear that the trend is that Slovakia is more a source of
emigration than a destination for immigrants. However, the situation has changed, and Slovakia has quite
recently become a country of net immigration. This relatively new state of affairs accelerated after
Slovakias admission to the EU in 2004 and after joining the Schengen area in 2007.
The harmonisation of Slovak asylum legislation with Community law was a complex process starting
with the adoption of the new Asylum Law 480/2002 which entered into force on 1 January 2003. This law
has been further amended to comply with accession requirements as well as to facilitate the
implementation of EU asylum measures into the national legal order.
While the highest number of asylum applications documented in Slovakia peaked in 2004 at 11,395,
only 15 people were granted asylum. This figure decreased in 2005 to 3,549 submitted applications out of
which 25 asylums were granted. Several factors contributed to this sharp decrease - the overall
improvement of the situation in some regions which were the source of asylum seekers (the Balkans,
Afghanistan and parts of Africa) 1 resulting in a general decrease in the number of asylum seekers within the
whole EU; as well as stricter asylum measures due to enforcement of the Dublin Regulation and improved
effectiveness of the state border protection; and also an absence of large foreigners communities in
Slovakia and a less-developed economic environment compared to more developed EU countries. 2 This
declining trend was kept until recently when in 2011 only 491 people were seeking asylum in the territory of
the Slovak Republic, which is the smallest number since 1996. 3 In 2010 there were 541 asylum seekers
and during the year before there was 822 applications. This number has therefore decreased annually over
the past few years.
The Slovak Republic joined the EU activities connected with resettlement of aliens from third countries
through humanitarian transfers, based on trilateral treaties between the government, the UNHCR and IOM.
In July 2009 and subsequently in December 2010 the government, UNHCR, and IOM signed agreements
on the transfer of refugees in need of protection and temporarily house them in the Emergency Transit
Centre (ETC) at Humenn where they are provided with accommodation, food, and medical care until they
are further resettled.
The ECT 4 was set up in 2009 as a small-scale resettlement scheme promoted by the UNHCR office in
Slovakia and specifically hoping to help a group of Palestinian refugees from Iraq. It has a capacity of 550
places on its three-building premises. It provides temporary placement for up to six months for those
refugees who are in urgent need of evacuation from their country of their first asylum and whose
resettlement procedure with their future new home country is still under way. After that period they are
resettled to their new home country.
At the ETC, refugees can consult with social workers and the UNHCR supports the authorities with a
Field Assistant. The Regional Representation for Central Europe has also produced a leaflet in several
languages to inform the new arrivals about the purpose of the Centre and about practical aspects of
everyday life including about the community nearby.
Slovakia also participates in another burden-sharing mechanism the EU pilot project on the relocation
refugees from Malta (EUREMA) that was launched in 2009. It should be noted that Slovakia does not
clearly distinguish in its language between resettlement and relocation. It often refers to both terms by using
its Slovak equivalent presdovanie or presdlenie (both meaning resettlement) while for relocation it
would be preferable to use term relokcia. This confusion is confirmed once again by the Ministry of
1
According to the UNHCRs view, available only in Slovak: http://www.unhcr-centraleurope.org/sk/novinky/2006/pocetziadatelov-o-azyl-od-roku-2001-poklesol-na-polovicu.html
2007 EMN annual report on asylum and migration statistics in the Slovak Republic
See Statistics of the Ministry of Interior for respective years, available at: http://www.minv.sk/?statistiky-20
Based on information of the UNHCR, available at: http://www.unhcr-centraleurope.org/en/where-we-work/operations-incentral-europe/slovakia.html

233

Interior when on its website it refers to EUREMA project as to a project of internal resettlement of persons
within the EU. On the contrary, in its Migration Policy with perspective until 2020 5 it uses the term relocation
when addressing migration burden-sharing with other EU countries.
Based on its experience with migration burden-sharing during humanitarian crises in the Balkans (BosniaHerzegovina and Kosovo) as well as with humanitarian aid to citizens of Ukraine with Slovak origin affected by
the nuclear accident at Chernobyl in the form of resettlement to Slovakia in the years 1991-1999, Slovakia
also reviewed the possibility of resettlement for 2010. This intention was evident from the migration policy
report 6 as well as from the 2008-2013 ERF multi-annual programme 7. As potential partners in resettlement it
considered Ukraine 8 or Malta. Due to its socio-economic conditions Slovakia proposed to resettle about ten
people over a period of two years (2010-2011), with a focus on vulnerable groups (single women with
children) from countries according to Governments decision (e.g. Ukraine, Malta or other countries).
Although resettlement action was planned under the 2010 ERF annual programme due to the
involvement of the Slovak Republic in the pilot project of relocation from Malta, co-funded by the EU, it was
postponed under the annual programme of 2011. Indeed the 2011 ERF annual programme actually
revealed that there was no intention to resettle or relocate 9. This policy decision was made on the basis that
of the current situation in Slovakia.
Slovakia is of an opinion that resettlement should be voluntary-based and it should not be the only tool
of responsibility and burden-sharing among respective countries. It does not resettle. This is a result of the
lack of political will as well as the unfavourable social and economic situation, which does not attract
refugees. The final decision to resettle is purely political. Moreover, Slovak legislation has not been fully
prepared to resettlement process.
Migration Policy of the Slovak Republic- Perspective until the year 2020, 31 August 2011.
Ibid.
2008-2013 ERF multi-annual programme, issued July 2008 (SK version only)
Reasons: neighbouring country, strategic partner, experience with the resettlement of people from Ukraine.
This confirms also the interview conducted with Mr. tefan id from the Ministry of Interior on 19 January 2012.
234
Asylum Profile
status granted 10
103 (2011)
12 Refugee Status
72 (2010)
15 Refugee Status
72 Other Protection
Number of asylum
seekers 11
491 (2011)
541 (2010)
Resettlement Scheme
No resettlement
Resettlement Quota

Asylum and Amendment of
Some Acts (last amended in
2008)
Act of 21 October 2011 on
Residence of Aliens and
and
Amendment
Supplementation of Certain
Acts (entered into force
1.1.2012)
Other basis of
resettlement:
project/reform
Nothing in the recent law indicates any possibility of resettlement as

such. The term resettlement is used in the Asylum law in relation to
displaced persons (de facto refugees) who have been granted
temporary shelter in Slovakia under the framework of the Directive
2001/55/EC on temporary protection 12.
/
According to the new political resolution, 13 resettlement is foreseen in
the future.
However, the document mentions resettlement activities in general
terms; specifics will be defined in the Action Plans which are being
developed.
However, Slovak legislation has not been fully prepared for
resettlement, legislative amendments are necessary. 14
10
Source: Ministry of Interior..
11
Source: Ministry of Interior.
12
Council Directive 2001/55/EC of 20 July 2001 on minimum standards of provision of temporary protection in case of
massive influx of displaced persons and on measures to support burden sharing among Member States in reception
of these persons and bearing consequences resulting thereof
13
Migration Policy of the Slovak Republic, op.cit.
14
Interview with Mr. tefan id, op.cit.

235

None
None
c) Temporary
Resettlement:
Humanitarian Evacuation 15
Slovakia offers a humanitarian transfer through its territory. It admits

refugees selected for resettlement for 6 months in the ETC Humenn
before they will be resettled to third countries (often the USA or
Canada).
August 2009
March 2010
98 Palestinian refugees from Iraq (refugee camp Al Waleed), mainly

families with children (the oldest person was 77 year old and the
youngest was a baby of 4 months). After 6 months, they were resettled
to the USA.
May 2011 - January 2012
46 Afghani refugees from Iran (24 women and 22 children, the oldest
woman was 55 years old and the youngest child was 7 months old).
They were placed in Humenn and resettled to the USA (last family in
January 2012).
December 2011June 2012
40 Somali refugees from Eritrea (refugee camp Emkulu), mostly

families with children (26 adults, 14 children) of whom the youngest was
only one year old and the oldest refugee was 70 year old woman.
Resettled to the USA.
January 2012June 2012
35 refugees from Egypt (31 adults and 4 children from Somalia,

Eritrea, Ethiopia and Iraq), mostly young people; oldest is 49 year-old
man and the youngest was a two month old boy. Resettled to Canada.
This is a continuation of the Agreement concluded between the
Government and the UNHCR in 2010 according to which the number
of refugees will not exceed 100 at any point.

Governmental Level
- PHARE project: Improving
the administrative structure in
the field of migration and
asylum in the light of the
Slovak
Republics
EU
membership
Twinning
arrangement between Slovakia
and Sweden (GDISC)
completed in 2005 16
- Temporary Desk on Iraq
(TDI) - an 18-month ERFfunded
intergovernmental
project
(established
in
Brussels in March 2009)
aimed to improve the existing administrative structure in the field of

migration and asylum,
involved Swedish Migration Board and the Slovak Migration Office.
to determine how asylum and immigration services can improve

their practical cooperation on protection/asylum, resettlement and
return with regard to the Iraqi caseload and develop generic tools
and mechanisms for dealing with other caseloads
Regarding resettlement:
-
Exchange of information and practice on resettlement of Iraqi

refugees.
Coordination of submissions for resettlement, joint EU Member

State missions and mixed EU selection teams.
15
Source: Slovakian Migration Office.
16
The project does not appear any more in the database of GDISC (http://www.gdisc.org/), but it is mentioned here:
https://wcd.coe.int/ViewDoc.jsp?id=983969&Site=COE
236

-
Pilot resettlement for interested EU Member States.
Slovakia participated as an observer in the Dutch mission to Syria

in October/November 2009.
- Joint IOM, UNHCR and

ICMC project: Promotion of
resettlement in the EU through
practical cooperation by EU
Member States and other
stakeholders (18 months in
2010/2011)
intended to promote refugee resettlement in Europe

strengthening the engagement of the EU Member States
Slovakia was present as an observer at international conferences,

represented by the Migration Office
n/a
by
experience
From Guantanamo
Slovakia accepted three detainees (from Egypt, Azerbaijan, and

Tunisia) held at the U.S. military prison at Guantanamo Bay, for
resettlement in January 2010. They were placed in a detention facility
for foreigners and asylum seekers in Medveov, Slovakia. According to
the UNHCR report they were held here in isolation under poor
conditions and subsequently following their hunger strike in mid-June,
they were awarded residency permits in July and placed in an
integration centre in Zvolen, Slovakia. As of July 2011 two of them
already left Slovakia for their countries of origin, Egypt and Tunisia. The
detainee from Azerbaijan has remained on Slovakian territory.
Intra-EU Relocation
As part of migration burden- sharing with other EU Member States, the

Slovak Republic implements aid programs aimed at the relocation of
aliens with international protection from the most burdened countries. It
is involved in the EU relocation project from Malta (EUREMA) under
which it promised to relocate 10 refugees from African countries. The
project is financed by the ERF.

Refugees resettled
None
Comments
There is no real intention to resettle at the moment.

Nevertheless, there are hopes based on the political resolution 17
that, after the creation of required legislation and resettlement
integration mechanisms, Slovakia would be able to resettle on an adhoc basis and even on basis of quota in the future. However, the
creation of a resettlement mechanism is rather complex and requires
some reforms in law and policies as well as sufficient funding 18.
Based on a proposal of the UNHCR Regional Representative Office
in Budapest, new discussions on continuing the ETC in Humenn have
begun (new trilateral agreement needed). This has been under
examination and debate at national level but no official details are
currently available. 19
17
Migration Policy of the Slovak Republic, op.cit.
18
Interview with Mr tefan id, op.cit.
19
Ibid (follow-up received on 2 February 2012)

237


Slovenia
Report written by
Samo Bardutzky (EUI)

July, 2013

238
KNOW RESET Country Profile: Slovenia
Country Profile: SLOVENIA

Slovenia was one of the six constituent republics of the formal Socialist Federal Republic of Yugoslavia
(SFRY) until 1991 when it declared independence. That declaration was followed by a short armed conflict
with the Yugoslav federal armed forces. In 2004, Slovenia became a member of the European Union.
Slovenia became part of the Schengen area on 21 December 2007. 1
According to the 2002 census, when the total population of Slovenia was 1,964,036, approximately 83%
of the population declared themselves to be ethnic Slovenians. The three largest minority ethnic groups are
Bosniaks (21,542), Serbs (38,964), Croatians (35,642). A tiny proportion of the population declared
themselves to be non-Europeans (in an ethnic sense). That number was in fact too small to be statistically
processed in 2002. 2 There are several thousands Hungarian and Italian people whom enjoy strong political,
cultural and linguistic rights in the territories, and Roma enjoy special rights pursuant to the Constitution. No
other ethnic groups have been officially recognized or given any collective rights.
In the beginning of 2010, 12.4% of Slovenias population 3 and 15.1% of the active population
(population in employment) was born abroad. 4 According to the Ministry of Interior, there were 100,910
foreigners in possession of a valid residence permit in the Republic of Slovenia on 31 December 2011. 5
Since the start of the economic crisis, migrants have been more vulnerable than the local population for
several reasons (27.8% of the migrant workers were employed in the construction sector which was
particularly affected by the crisis). In 2010, 25% of foreign born persons aged 25-54 lived below the poverty
line or were socially excluded, compared to 14% of the same population that was born in Slovenia. 6
Slovenias legislation on international protection has been evolving steadily since the country has
achieved independence and written a Constitution which lays emphasis on the respect for human rights.
The legislation currently in force provides a legal basis for both resettlement from third countries as well as
intra-EU relocation. However, only a pilot project of refugee relocation has so far been implemented.
The past 20 years the first two decades of Slovenias independence have been characterized by
several key moments for migration in which legislation has been enacted or migration policy has changed
significantly.
Migration to Slovenia in the 1990s was to a large extent a consequence of the wars in the territory of
former Socialist Federative Republic of Yugoslavia. Persons coming to Slovenia were mostly in need of
protection from armed conflicts in Croatia, Bosnia and Herzegovina and Kosovo. The end of large scale
hostilities in the region coincides with the adoption of a new system of international protection. The period
of 2000-2001 saw what was referred to as illegal immigration crisis. Large numbers of migrants (mostly
from Iran, Iraq, Syria, China, Bangladesh, Pakistan and Sierra Leone) entered Slovenia. This was met with
a negative response in the public debate and lead to several changes in Slovenias migration laws. 7
The preparation for entry to the EU and the entry itself in 2004 brought several amendments to the
Asylum Act in order to transpose the EU asylum acquis. On that basis, the 2007 International Protection Act
http://praga.veleposlanistvo.si/index.php?L=1&id=1737
Statistical Office of the Republic of Slovenia, http://www.stat.si/popis2002/si/rezultati/rezultati_red.asp?ter=SLO&st=15
Source: Statistical Office of the Republic of Slovenia, http://www.stat.si/eng/novica_prikazi.aspx?id=3632
Source: Statistical Office of the Republic of Slovenia, http://www.stat.si/novica_prikazi.aspx?id=4415
Source: Ministry of Interior, Directorate of Migration and Integration, 2011 Statistical Report, p. 12-13,
http://www.mnz.gov.si/fileadmin/mnz.gov.si/pageuploads/DMI/Statisticno_porocilo_-_SLO_zadnja_verzija__popravljena.pdf
Source: Statistical Office of the Republic of Slovenia, http://www.stat.si/novica_prikazi.aspx?id=4415
Zavratnik, Simona: Contemporary Immigration and Asylum Policies in Slovenia: Rethinking Questions of Entrance and
Integration, Annales 16 (2006) 2, p. 348.
239

was adopted. Migration to Slovenia from other EU member states has remained at a low level (more than
90% of foreigners residing in Slovenia come from outside the EU). 8
The 1991 Aliens Act, 9 adopted on the same day as the declaration of independence, included basic
provisions on the status and rights of refugees. The first Asylum Act established a much more complex
system in 1999. 10 It was amended several times and finally replaced by the International Protection Act 11
(hereinafter: ZMZ). The new act reflects the changes brought about by the accession to the European
Union and responds to the need to bring the Slovenian system in line with the asylum acquis. In addition, it
also introduced the legal basis for resettlement.
The number of applications for international protection peaked in 2000 and was disproportionately high
in the period of 2000-2005. Between 1995 and end of 2011, 233 persons were granted a form of
international protection in Slovenia. Many of them came from the ex republics of SFRY. Other important
countries of origin were Kazakhstan, Russia, Somalia and Iran. 12
Slovenias approach to resettlement can be described as one of principal commitment that has so far
lacked practical implementation. The 2007 reform of law of international protection saw the establishment of
a clear (statutory) legal basis for resettlement as well as relocation and even led to the adoption of an
executive regulation which regulated the matter in more detail. However, so far, only a small scale pilot
project of intra EU relocation has been implemented and there has been no resettlement at all.
Source: Ministry of Interior, Directorate of Migration and Integration, 2011 Statistical Report, p. 13,
Zakon o tujcih, Official Gazzette 1/1991.
10
Zakon o azilu, Official Gazzette 61/1999.
11
Zakon o mednarodni zaiti, Official Gazzette 111/2007.
12
Source: Ministry of Interior, Directorate of Migration and Integration, 2011 Statistical Report, p. 41-42,
240
Asylum Profile
status granted 13
Number of asylum
seekers 14
24 (2011)
23 (2010)
307 (2011)
211 (2010)
Resettlement Scheme
No resettlement
Resettlement Quota

International Protection Act
(Zakon o mednarodni zaiti)
Specific provision on Resettlement
Adopted in the original text on

the 21st November 2007
Chapter VIII
Published in the Official

Gazzette (Uradni list) no.
11/2011 (official consolidated
text).
Third Country Citizens and Stateless Persons that Fulfil the

Requirements for the Recognition of Refugee Status and are Accepted
to the Republic of Slovenia on the Basis of Yearly Quota
Other basis of
resettlement:
(Government) Decree on the
manner of implementation
of resettlement of persons
admitted to Republic of
Slovenia based on a yearly
quota (Uredba o nainu
izvedbe preselitve oseb, ki so
v Republiko Slovenijo sprejete
na podlagi letne kvote)
Regulates the manner in which the resettlement of persons that have

been admitted to the Republic of Slovenia on the basis of Chapter VIII
of the International Protection Act (Official Gazzette of the Republic of
Slovenia, no. 11/11, hereinafter: the Act), will be implemented.
Adopted by the Government

of the Republic of Slovenia
on the 20th July 2011.
project/reform
At the moment, projects and/or reforms are not foreseen. The reason
for this is the economic situation of the country (high public spending
and consequentially, debt, and low economic growth and employment).
As a result of this, the country is unlikely to spend money on any new
programmes; in addition, there is low demand in the labour market,
which reflects negatively on attitudes toward immigration.
13
Source: Annual Report of the Ministry (see link above, footnote 12).
14
Ibid, p. 32
241

None
None
c) Temporary
Resettlement:
n/a

Governmental Level
Slovenia participated as an observer in a trans-national project funded

under the Community Actions Strand of the ERF, Transnational
Resettlement UK and Ireland (TRUKI), conducted jointly by the UK and
Ireland, with Belgium and Bulgaria also observing. 15
n/a
experience
From Guantanamo
n/a
Intra-EU Relocation
In its 2011 Work Programme, 16 the Slovenian Ministry of Interior reports

that end of November 2010, 8 persons to whom international protection
has been granted were accepted to the Republic of Slovenia. This was
within the framework of the pilot project involving the relocation of
persons from Malta (EUREMA).
According to the Ministry representative, the quota was originally set
at 10 persons. This number was determined taking into account the
financial assistance obtained from the EU, as the pilot project was
wholly financed by the European Commission. What also played a role
in determining the number was the support in integration that the
relocated persons would require.
The relocated refugees were accommodated in the Maribor
integration centre. The Ministry reports that immediately after arrival all of
the necessary documentation for the integration of these persons into the
systems of health insurance, social care and employment, was provided.
The abovementioned persons participated in an orientation programme
(210 hours) and basic Slovenian language course (90 hours).

Refugees resettled
None

Process Pre-Arrival Phase
Selection criteria
No resettlement has taken place in Slovenia.
UNHCR Criteria
The formal requirements to be accepted for resettlement are laid down

in Article 71 ZMZ: a person has to fulfil the requirements for refugee
status pursuant to this Act and be located in a country where they are
safe from persecution and the living conditions are not appropriate for
refugee integration.
15
International Catholic Migration Commission, Welcome to Europe! A Comparative Review of Resettlement in Europe,
http://www.icmc.net/system/files/publication/welcome_to_europe_a_guide_to_resettlement_a_comp_64641.pdf, p. 37,
16
http://www.mnz.gov.si/fileadmin/mnz.gov.si/pageuploads/KM/Programdela2011_02.doc
242
Additional National
Criteria
The details of the yearly quota, including the country from which the
refugees would be resettled, etc., would be laid down by the
Government (acting upon a proposal of the Ministry of interior), as
foreseen by Article 70 ZMZ and Article 2/III Decree on the manner of
implementation of resettlement of persons admitted to Republic of
Slovenia based on a yearly quota. This has not yet happened.
Selection Process
Deploying Staff
n/a

n/a
Dossiers
n/a
Missions
n/a
The Decree foresees the following pre-departure activities:
Informative lecture - general information on the Republic of

Slovenia, cultural characteristics and habits, information on the
prohibition of polygamy and gender equality, rights and obligations
of persons enjoying international protection in the Republic of
Slovenia (see Article 7)
Assistance
documents
Issuing of a travel document (see Article 9)
Medical screening
Medical examination (see Article 6)
with
travel
Procedure Timing
n/a
Comments
The minor role played by certain stakeholders in the relocation project

was perceived as problematic 17. Also, scepticism was expressed with
regard to the support for refugees in general in the general public. This
perhaps calls for a wider strategic approach of interaction with the
general public regarding refugees that would among other things, i.e.
influencing the perception of refugees in Slovenia, also result in
identifying interested stakeholders in the civil societies that might take
part in resettlement/relocation activities in the future, but also local
communities appropriate and willing to accept resettled refugees.

Post-Arrival phase
Status granted
Article 71 International
Protection Act
17
A person can only be accepted to the Republic of Slovenia on the basis

of a yearly quota (resettled), if s/he fulfills the requirements for the
recognition of refugee status (not subsidiary protection) as laid down by
the International Protection Act. This means that the question as to
whether the person fulfils the Convention requirements will be assessed
before the person is even allowed to enter the territory of Slovenia.
Pursuant to Article 2 of the Decree mentioned above, the decision
granting international protection shall also be served to the person prior
to arrival. Pursuant to Article 89 in conjunction with Article 91 of the
abovementioned Act, refugee status entitles the refugee to permanent
residence (stalno prebivanje) in the Republic of Slovenia).
Email Interview with the Director of the NGO Pravno-informacijski center nevladnih organizacij PIC, 30 March 2012.
243

Rights granted
Article 89 ZMZ
A refugee is entitled to:
information with regard to his/her status, rights and obligations

as a beneficiary of international obligation;
residence in the Republic of Slovenia;
accomodation in the facilities of the Ministry of the Interior;
accomodation subsidy;
health care;
social care;
education;
employment and work;
integration assistance.
International protection beneficiaries are entitled to live in the Ministry's

facilities for one year from the granting of protection and are entitled to
receive an accomodation subsidy for three years from the granting of
the status. For a single person, the monthly accomodation subsidy
equals a minimum monthly income, which is currently 230,61 EUR. The
sum of the subsidy is increased with every family member. 18
Legally, refugees have the right to free access to the labour market
as do EEA citizens. 19 The refugees' family members need a work permit
as do subsidiary protection beneficiaries. Both can apply for a personal
work permit (osebno delovno dovoljenje), which does not require a
preexisting agreement with the employer.
Beneficiaries of international protection enjoy status equal to citizens
of Slovenia regarding all levels of education, also cost of the procedure
to recognise a foreign diploma shall be borne by the Ministry of Interior.
Pursuant to the Decree on conditions for ensuring the rights of persons
with international protection (Article 14), the personal integration plan
takes into account the needs, knowledge, capabilities, potentials and
skills of the international protection beneficiary and can be, in
cooperation with the beneficiary, changed or complemented. It includes
various activities regarding education, employment, accomodation,
arranging documents and participation in Slovenian language classes
as well as classes on Slovenian history, culture and constitutional
settlement. The decree provides a legal basis for cooperation of NGOs
and/or representatives of local communities.
Comments
In 2010, the UNHCR - Regional Representation for Central Europe

conducted a participatory assessment study which covered Slovenia
and was presented in a 2011 report entitled ''Being a refugee: How
refugees and asylum-seekers experience life in Central Europe'' to
evaluate the living conditions and integration of the beneficiaries of
international protection. 20 Several integration challenges were
mentioned in the report.
Firstly, social or non-profit housing is not available to refugees and
others with international protection in Slovenia. 21
Refugees who cannot find work are excluded from receiving
unemployment benefits in Slovenia as they have not had jobs before.
Others complained they did not have enough information on how to find
18
Articles 9 11 Decree on conditions for ensuring the rights of persons with international protection (Uredba o nainih
in pogojih za zagotavljanje pravic osebam z mednarodno zaito, Official Gazzette no. 55/2011).
Minimum income data available from the Ministry of Labour, Family and Social Affairs:
http://www.mddsz.gov.si/si/delovna_podrocja/sociala/denarna_socialna_pomoc/
19
Zakon o zaposlovanju in delu tujcev, Official Gazzette no. 26/2011 (ZZDT-1).
20
UN High Commissioner for Refugees, Being a refugee: How refugees and asylum-seekers experience life in Central
Europe, 3 January 2012, available at: http://www.unhcr.org/refworld/docid/4f02fa252.html [accessed 7 April 2012], p. 62.
21
Ibid, p.63.
244

work. Despite having the right to work, many of the refugees in Slovenia
who took part in this study were not confident of their prospects in
finding stable employment. 22
A majority of the refugees who answered to the study reported they
had individual integration plans. 23 The vast majority of respondents
praised the living conditions and the fact that they were able to preserve
and practice their own culture, traditions and religion in this European
country. On the other hand, some asylum seekers have reported
frequent permit checks by the police which made them feel
unwelcome. 24
With regard to refugee protection, the following was recommended
by the High Commissioner:
The current integration plan for individual beneficiaries of

international protection should be evaluated and revised to
better accommodate the needs of refugees.
All relevant stakeholders should support and promote selfreliance and self-employment initiatives.
Beneficiaries of international protection should have access to
social housing.
Elderly refugees, particularly those who are not able to earn a
living, need to benefit from a support mechanism.
Instead of reimbursing the cost for health insurance to refugees,
it should be paid directly and automatically by the Ministry of
Interior. This would ensure patients with no money can still
access health insurance. 25
The problems of integration of refugees in Slovenia are not issues of

inadequate normative coverage. Statutory provisions confer unto the
refugee, rights that are equal to those of a citizen of Slovenia. What is
more problematic is the issue of material equality. Factual
circumstances prevent the refugees from making use of the rights and
benefits provided by the legal instruments. The issue mentioned by the
UNHCR regarding unemployment benefits is a good example of how
formal equality of refugees and citizens can be inadequate in terms of
refugees welfare and integration.
Employment and integration counsellors should take a persons
specific situation more into account when providing information and
advice and looking for creative ways to provide the refugees with an
opportunity to enter the job market. The demand for flexible
approaches to integration counselling and some thinking outside the
box calls for analysis of possible role of NGOs and local communities
in the process, as well as perhaps input by foreign NGOs with more
experience in the field.
Funding
Costs
22
Ibid.
23
Ibid.
24
Ibid. p. 64.
25
Being a refugee, p. 67.

245

Comments
The overall impression is that it is unlikely that the country will resettle in
the future despite establishing a clear legal basis for it. This is mainly for
economic reasons. If Slovenia was to resettle in the future, this would
only be possible by obtaining funds from the European Refugee Fund 26.
This corresponds to the assertion that Slovenia does not resettle, to a
large extent, due to its attempts to reduce public spending.
However, it is doubtful that even if (hypothetically) all costs of a
possible resettlement were borne by outside actors (ERF), Slovenia
would start resettling. Asylum recognition rates so far (since the
establishment of a modern asylum system after independence and
democratization) have not been high, which can be probably linked
back to political wariness with regard to migration and its possible
consequences.
In choosing between intra-EU relocation and third country resettlement,
Slovenia is likely to bend towards the former. As solidarity has been
exposed as the motivation for accepting refugees from countries of first
asylum by the Ministry, it is a valid assumption that Slovenia will prefer
to display solidarity with countries with which it shares common interest
in the economic and political union. Slovenia can also expect more
recognition in exchange for participation in intra-EU burden sharing.
We can assume that this is not a negligible factor given that high level
political decision is required to set the resettlement processes in
motion. On the other hand, it is noteworthy that the authorities
emphasize
how
both
of
Slovenias
experiences
with
resettlement/relocation were opportunities to build the knowledge base
which can come in useful once the circumstances permit more
relocation or resettlement. This attitude is promising. Slovenias public
service is small and further relocation - but even more so resettlement will represent a demanding project for the responsible authorities. Such
a project would need other Member States know-how and previous
experience to be implemented.
26
Interview with the Director General of the Directorate of Migration and Integration at the Ministry of Interior of the
Republic of Slovenia, 14 March 2012.
246


Spain
Report written by
Niamh Aine Ni Bhriain (EUI)

Reyes Castillo (ECRE)
May, 2013

247
KNOW RESET Country Profile: Spain
Country Profile: Spain

Immigration became part of the Spanish government's agenda in 1985. With Spain's admission to the
European Community in 1986, the country had to conform to EC legislation. In 1985, Spain's first piece of
immigration legislation, the Ley de Extranjera, or the Law on the Rights and Freedoms of Foreigners in
Spain, considered immigration as a temporary phenomenon and focused primarily on control over migrants
already in the country. That 1985 legislation was more restrictive towards immigration and did not award
any considerable rights to immigrants. A 1996 regulatory development (reglamento) to the 1985 law
awarded migrants a set of subjective rights (access to education, equality, legal counsel, and an interpreter
when dealing with authorities). That law strengthened the power of the regional governments to protect the
rights of immigrant minors and formally established a quota system for temporary workers. Finally, the
amendment established a permanent resident category and formally included family reunification within its
framework. A special regularisation procedure on grounds of family reunification took place in 1994. 1
The Law 8/2000 was the starting point for the emergence of the Global Programme to Regulate and
Coordinate Foreign Residents' Affairs and Immigration in Spain. In addition to regularisation programmes,
the country has experimented with a labour quota system to respond to short and long-term shortages in
the labour market. Since 2002 the government is required to establish annual quotas for foreign workers.
Between 2000 and 2010 the population of foreign nationals living in Spain increased significantly.
In general, over the previous decade or so, the Spanish Government has recorded a decrease in the
number of persons arriving in Spain by boat having departed from different points along the North African
coast. The number of arrivals through other frontiers (i.e. airport and land borders) continues to be higher
than arrivals by sea. Increased efforts have been made to monitor and control Spains sea borders with
African States in order to prevent boats of migrants from North and Sub-Saharan Africa gaining access to
Spanish territory. 2 This practice has been to the fore within the Spanish media, reinforcing the perception of
the issue of irregular migration as being very topical in Spain.
Since 2007, the number of persons seeking asylum in Spain has dropped considerably. 3 In 2011, 3,422
persons sought asylum in Spain, a 20 percent increase from the previous year. However, it should be
highlighted that from 2007 to 2009, there was a decrease year-on-year. This coincided with increased
attention being given by the Spanish Government to the issue of border control. It is becoming increasingly
difficult for persons to reach Spains shores as a result of Government policies concerning the protection of
its sea borders. 4 In 2011, in response to the number of Syrian refugees who began to seek asylum in
Spain, the Spanish Government made changes which would prevent Syrians from landing in Barajas
Airport, Madrid and seeking asylum there. Notwithstanding at least four rulings by the Andalusia High Court
of Justice recognising the right of asylum-seekers to move freely throughout Spanish territory, the Ministry
of the Interior continued to prevent asylum-seekers in Ceuta and Melilla from moving to the mainland. 5
Spain has a long history of involvement in resettlement, with the first refugees being resettled in 1979. 6
Yet, it had no official resettlement programmes in place until 2012. Spain did not have any fixed
resettlement quotas but it resettled on numerous occasions on an ad hoc basis when requested to do so by
the UNHCR. In the 1980s, Spain participated in resettlement and humanitarian reception of persons and
groups with international protection needs. The first cases of resettlement included Vietnamese and
1
2
3
4
5
6
http://legislationline.org/topics/subtopic/33/topic/10/country/2
Further information available at: http://www.lamoncloa.gob.es/IDIOMAS/9/Gobierno/News/2012/20120202_Immigration2011.htm and
http://www.lamoncloa.gob.es/idiomas/9/gobierno/news/2011/19012011immigrants2010.htm
The following two links contain statistics on asylum in Spain from 2006 to 2010: http://www.mir.es/publicaciones-17/extranjeria-y-asilo967/asilo-en-cifras-968
http://www.mir.es/publicaciones-17/extranjeria-y-asilo-967/memoria-de-la-oficina-de-asilo-y-refugio-970?locale=es
Further
information is also available in the following link:
http://www.accem.es/refugiados/inmigrantes/index.php?pag=Refugio_2009&colleft=Col_Izq_Refugio&colright=Col_Der_Refugio_Es
pana_2009
For further information please see the following CEAR report: http://cear.es/files/pdf2011/Informe%202011%20de%20CEAR.pdf
Ibid.
ACCEM Report, p.37: http://www.accem.es/ficheros/documentos/pdf_publicaciones/Estudio_Reasentamiento.pdf
248

Laotians in 1979/80. One of the final acts of ad hoc resettlement was the operation developed in 1999 by
which 31 countries took part in the humanitarian evacuation of Alvano-Kosovars. During this operation,
Spain received more than 1000 people and families, in coordination with national NGOs.
In 2004, a platform of four NGOs, Cear, Rescate, the Spanish Red Cross and Accem, together with the
UNHCR Office in Spain, wrote a common proposal (September 2004). This proposal suggested a National
Resettlement Programme for Spain. These NGOs have had an active role in a variety of advocacy and
lobbying activities, which have led to the setting up of the National Resettlement Programme.
More recently, in October 2009, a new asylum law came into force, which for the first time made specific
reference to establishing a resettlement programme in Spain. 7 Although the new asylum law mentions
resettlement, and in 2010 and 2011 the Spanish Council of Ministers approved the implementation of a
resettlement programme, 8 the approval did not take place until 2012. Despite an official willingness to
resettle, especially after the formal approval of the resettlement programme in the Council of Ministers,
Spain has failed to carry out such resettlement. Recent financial constraints have influenced the political
climate such that politicians now fear a negative backlash from the Spanish population If resettlement
should proceed.
On the 17th of July 2012, Spain resettled 80 refugees following the UNHCR Global Resettlement
Solidarity Initiative in 2011. That initiative called on States to pledge resettlement places for refugees
stranded at the Libyan-Tunisian border, and to implement an emergency resettlement programme for them.
This resettlement took place under the 2009 asylum law and according to the quota approved by the
Council of Ministers in October 2011. It is understood that in the European and international context,
political agreements and social contexts on the Mediterranean region led Spain to this decision.
For the media and the general public, resettlement remains relatively unkown. The public perception of
refugees and asylum seekers stands out as a delicate issue. This is especially true in light of the
unfavourable media coverage.
The continuing problems in the Spanish economy have led to severe cuts to social services.
Unemployment remains a serious issue for the Spanish government. The refugees who have resettled in
Spain as part of this new programme are likely to experience serious challenges to their integration.
Nonetheless, resettlement to Spain from a camp situation as harsh and insecure as Shousha in Tunisia, is
a positive step for the people concerned. 9
More recently, the communication of the Council of Ministries on 28th December 2012 10, provided that
the Council approved the new Resettlement Programme in accordance with the Asylum Act. That
programme authorizes the resettlement of up to 30 refugees per year for 2013 and 2014.
7
8
9
Spains new asylum law, in force since October 2009, see First Additional Provision for reference to resettlement. Resettlement is also
mentioned in the preamble: http://www.boe.es/boe/dias/2009/10/31/pdfs/BOE-A-2009-17242.pdf
http://www.lamoncloa.gob.es/ConsejodeMinistros/Referencias/_2011/refc20111007.htm#Reasentamiento and
http://www.lamoncloa.gob.es/consejodeministros/referencias/_2010/refc20100129.htm#Refugiados
http://www.resettlement.eu/news/80-refugees-resettled-spain-under-new-asylum-law
10
http://www.lamoncloa.gob.es/ConsejodeMinistros/Referencias/_2012/refc20121228.htm#Refugiados
249
Asylum Profile
status granted
988 (2011) 12
o 337 (Refugee protection)
o 651 (Other protection)
610 (2010) 13
o 245 (Refugee protection)
o 365 (Other protection)
Number of asylum
seekers 11
Resettlement Scheme
Resettlement Quota
3,422 (2011)
2,744 (2010)
Programme to start in 2013
30/year

Law 12/2009, of 30 October,
regulating the right to asylum
and subsidiary protection
The new asylum law regulates the right to asylum and subsidiary
protection as well as making a specific reference to the possibility of
establishing a resettlement programme. This law replaced the previous
asylum law, which had been in place since 1984 and did not make any
reference to resettlement. 14
The preamble of Law 12/2009 makes reference to the European
framework governing refugee and asylum issues. The preamble of this
law refers to the introduction of a legal framework for the adoption of
resettlement programmes in solidarity with the international community
and in search for durable solutions for refugees. The first additional
disposition makes specific reference to establishing resettlement
programmes in conjunction with the UNHCR and other relevant bodies.
Law 4/2000, of 11 January,

regarding the rights and
freedoms of foreign nationals
in Spain and their social
integration.
Law 4/2000 regulates the rights of foreign nationals in Spain. Article 36 of

Law 12/2009 makes reference to Law 4/2000. 15
Other basis of
resettlement:
Agreement between the
Kingdom of Spain and the
UNHCR, 9 December 2002
11
12
13
14
15
The Spanish Government shows its support for UNHCR programmes and
activities. No specific reference was made to UNHCRs resettlement
programmes.
Ibid, and most recent Government report on asylum dated 2010: http://www.interior.gob.es/file/52/52992/52992.pdf
Available at: http://www.interior.gob.es/file/58/58075/58075.pdf
Available at: http://www.interior.gob.es/file/55/55779/55779.pdf
Ley 5/1984, de 26 de marzo, regulador del derecho del asilo y de la condicin de refugiado:
http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOE-A-1984-7250 This law is no longer in force
http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOE-A-2000-544
250

Royal Decree 203/1995, of
10 of February 1995
Article 4.2 makes specific reference to requests received from the

UNHCR representative in Spain to the Spanish Government to urgently
admit refugees recognised under its mandate, who are in a situation of
high risk in a third country.
Plurianual Plan 2008-2013
Mentions the possibility of resettling a total of 350 people between 2010

and 2013. The plan states that 50 people would be resettled in 2010, 75 in
2011, 100 in 2012, and 125 in 2013.
Decisions by Council of
Ministers
approving
the
resettlement
programmes
2010 and 2011
In 2010 and 2011 the Council of Ministers approved the establishment of

resettlement programmes. The announcement by the Council of Ministers
in 2010 made reference to the possibility of resettling 75 people, while a
similar announcement in 2011 mentioned resettling 100 people.
Communication of the
Council of Ministers, 28 July
2012 16
Approval of a new Resettlement Programme to resettle up to 30 refugees

during 2013 and 2014.
project/reform
On 17 July 2012, the country responded to a UNHCR resettlement

request to pledge resettlement places for refugees stranded at the
Libyan-Tunisian border. The resettlement of 80 refugees was made under
the new Spanish asylum law and the quota approved by the Council of
Ministers in October 2011.
28 July 2012 marked another commitment by Spanish Government to
resettle around 30 refugees/year for the coming years: 2013-2014. The
programme will pay special attention to refugees with particular
vulnerable profiles such as families, women and minors.

1979-1980
1,000 refugees from Vietnam and Laos.
1980
500 Cuban refugees were resettled in Spain following the processing of

applications, which were presented at the Spanish embassy in Peru.
1987 -1995
Spain responded positively to requests made by UNHCR to resettle

people from a number of different countries including:
1987
1990
Early 1990s
1992
16
17
Spain has been involved in resettling on an ad hoc basis since 1978. 17 As

such, resettlements were not conducted as part of resettlement
programmes and no strict, well-defined selection criteria existed. The
Government responded to requests from the UNHCR and resettled
people from a myriad of nationalities.
Kurds from the Iraqi camps. Kurdish -Iranians, Iraqis who were
victims of the Gulf War and their resettlements were arranged
mostly from Jordan, Saudi Arabia and Kuwait.
50 Vietnamese refugees were resettled in Spain
Refugees from the former Yugoslavia were resettled in Spain:
154 Bosnian refugees of Sefardi origin
http://www.lamoncloa.gob.es/ConsejodeMinistros/Referencias/_2012/refc20121228.htm#Refugiados
ACCEM report which shows the resettlements, which have taken place in Spain since 1979. (page
http://www.accem.es/ficheros/documentos/pdf_publicaciones/Estudio_Reasentamiento.pdf
See also the following link which details the resettlement of Cubans who had fled Cuba and were held in Guantanamo Bay
http://www.lamoncloa.gob.es/consejodeministros/referencias/_1998/c1303980.htm
251
37):

1992-1994
Governmental approval of 1,000 ex convicted persons from Bosnia, as

well as 700 ex-detainees from Bosnia Herzegovina.
Resettlement: Medical Evacuation. Ex Yugoslavs. 16 cases. Spanish Red
Cross
1993
20 Vietnamese refugees
1994
135 Balseros Cubans, without UNHCR:
1994-1995
2012
c) Temporary
Resettlement:
1999
21
80 refugees, stranded in the Shousha camp in Tunisia for almost a year,

in response to UNHCRs request.
In response to a request from UNHCR, Spain took part in a UNHCR

humanitarian evacuation programme by resettling 1,426 KosovarAlbanians 21.
These resettlements were due to be temporary in nature. The first of
those to arrive landed at Torrejn de Ardoz base, Madrid. From there
they were taken to a reception centre (Centro de Acogida y Derivacin)
in Sigenza, Guadalajara. They were then placed in various provinces
throughout Spain.
20
20 Cubans resettled from Guantanamo 18
Spain resettled 23 persons from various countries including Colombia

and Palestine. 20
19
Spain received roughly 50 families from Georgia, in which one family

member was Spanish. 19
2003-2008
18
110 Cubans resettled in Spain from Guantanamo
17 Afghan refugees from Uzbekistan
1999
Governmental
and
Governmental Level
Non-
At the national level different initiatives developed in 2007 and 2008 in the
form of two reports. One done by CEAR under the title of Estudio
prospectivo para la bsqueda de alternativas al reasentamiento en
Espaa, and other by Accem Informe Prospective para el Desarrollo de
un Programa Espaol de Reasentamiento Accem 2009 with the
objective of studying alternative solutions for the implementation of a
Spanish Resettlement programme and the creation and development of a
national network interested in promoting a resettlement programme
where apart from the traditionally mentioned NGOs, there was
representation from IOM, the Ministries of Employment and Interior, the
local councils and other NGOs such as Save the Children, and Amnesty
International among others.
Interview with the advisor of the Ministry for Employment and Social Security
See report for figures, p.12. Nationality was verified through correspondence with a member of staff of the Ministry of Employment
and Social Security.
http://www.unrefugees.org/atf/cf/%7BD2F991C5-A4FB-4767-921F-A9452B12D742%7D/2008StatisticalReport.pdf
The following are a number of links to Government decisions and press releases regarding the resettlement of Kosovar Albanians in
Spain under the aforementioned humanitarian evacuation programme.
This link makes reference to Spain helping to set up camps in Albania to welcome and care for Kosovar Albanians who may
eventually be transferred to Spanish civil organisations:
This link is to a Government press release which makes reference to the funding which was to be allocated for the relocation of
Kosovar-Albanians to Spain, among other aspects of the relocation:
http://www.lamoncloa.gob.es/consejodeministros/ruedas/_1999/r2805990.htm
Agreement to resettle, temporarily, Kosovar-Albanians in Spain:
252

As a result of the collaboration with other European NGOs in the field, the
Spanish NGO Accem took part in different European projects 22 of the
ERF (European Refugee Fund). All these projects were aiming at
enhancing knowledge and political will in EU member states to engage in
resettlement. One of these projects was the MOST (Modelling of
Orientation, Services and Training related to the Resettlement and
Reception of Refugees) project funded by ERF.
experience
From Guantanamo
The Cuban case
In 2010, Spain received three ex-prisoners who had been detained in

Guantanamo on suspicion of being terrorists. Those resettled were of
Palestinian, Yemeni, and Afghan origin and were settled in February,
May, and July 2009, respectively. 23
As a last example of a political measure that could be and has been
named by certain stakeholders as resettlement, it is worth mentioning the
case of the Cuban nationals that under the framework of the agreements
between the Spanish Government, the Catholic Church in Cuba and the
Cuban government signed in July 2010, where it was decided to give
protection and reception in Spain to a group of dissidents released from
prison, with and their families to Spain 24.
Accem, together with other two NGOs Spanish Red Cross and CEARwere called to assume and organize jointly and in a coordinated way with
the Ministry of Foreign affairs and the previous Ministry of Labour and
Immigration MTIN (current Ministry of Employment and Social Affairs MEYSS) an intervention plan that would include the reception and
integration of these families in the Spanish Society.
April 2011 a second group of the released prison dissidents to Spain. In
total, Spain has received 770 relatives of Cuban political prisoners
following a petition from the Catholic Church in Cuba. 25
Intra-EU Relocation
Comments
22
23
24
25
26
In December 2011 a selection mission composed by representative

members of the General Directorate of Interior Policy and the General
Directorate of Integration of the Immigrants from the previous Ministry of
Labour and Immigration (current Ministry of Employment and Social
Affairs) travelled to Malta. On that occasion it was decided that there
would be no relocation. The government representatives in charge stated
that the potential beneficiaries were not willing to travel to Spain as they
were waiting for the opportunity to relocate to another State.
Under the previous Government, the Council of Ministers approved the
establishment of two resettlement programmes. No one was actually
resettled under these programmes. The Government did not issue any
formal position about its failure to carry out resettlements under law
12/2009. While on the one hand it seemed that Spain was anxious to be
seen to participate in EU and UN initiatives with regard to refugee
issues, it appears that Spain also feared a negative response from the
Spanish public. 26
http://www.ecre.org/files/CCME_project_description.pdf
http://www.mostproject.fi/english/
CCME Resettlement broadening the basis in Europe
ICMC. European Network for Practical Cooperation in Resettlement
Welcome to Europe. A guide to Resettlement http://www.icmc.net/pdf/welcome_to_europe.pdf
http://www.accem.es/ficheros/documentos/pdf_publicaciones/BienvenidoEuropa.
http://www.lamoncloa.gob.es/ServiciosdePrensa/NotasPrensa/MIR/_2010/ntpr20100504_Guatanamo.htm
http://www.lamoncloa.gob.es/ServiciosdePrensa/NotasPrensa/MIR/_2010/ntpr20100722_Guantanamo.htm
Suite101: Moratinos y la liberacin de presos polticos en Cuba. http://carlosperez.suite101.net/liberacion-de-presos-politicos-encuba-a20701; http://www.elmundo.es/america/2010/07/07/cuba/1278525697.html
This was the opinion offered by a member of staff of the Ministry for Employment and Social Security during an exchange of emails in
January 2012.
253

In July 2012 the Government in place pledged to resettle 80 refugees and
in December 2012 it committed again to resettle on a programme-basis.

Refugees resettled
80 refugees of Eritrean, Sudanese and Somalia origin: 22 men, 25
women and 33 children originally coming from Eritrea, Ethiopia and
Sudan.
2012
- 4 of them were granted refugee status

- 74 of them were granted subsidiary protection
- 2 of them were granted family reunification
Country of first asylum: Tunisia
Process Pre-Arrival
Phase
Selection criteria
27
UNHCR Criteria
UNHCR Global Resettlement Solidarity Initiative
Additional National
Criteria
The criteria for the selection and profile covered by the programme will be
defined on a yearly basis according to UNHCR recommendations in
conjunction with EU policies.
The quota and number of beneficiaries will be decided on a yearly basis

very much linked to the financial resources available and the political
priorities, which exist at that moment.
Selection Process
Deploying Staff
n/a

Previously the selection of the cases was done through the presentation of
the cases by UNHCR to the correspondent competent national authorities.
The acceptation process was coordinated by the Ministry of Interior.
Dossiers
UNHCR prepared refugees dossiers, which were sent to the OAR

Oficina de Asilo y Refugio Asylum and Refugee Office for examination
and consideration.
Missions
2011: Selection interviews were carried out in the first semester 2011 by
OAR representatives on a selection mission to Syria after revising the
dossiers sent to Spain by the UNHCR.
2012: Representative of the Ministry of the Interior conducted a selection
mission in Shousha in June 2012, leaded by the General Director of
Interior Policy.
It is generally understood that the cases will be chosen from the dossiers
forwarded by UNHCR in the future.
The departure procedures were implemented in close coordination with
the International Organisation for Migration (IOM) and the UNHCR. The
refugees were documented with a salvoconducto (safe conduct) issued
by the Spanish Embassy in Tunisia, which was used to move them from
the refugee camp into Spain.
27
http://www.unhcr.org/4e11735e6.html
254

2011: Cultural Orientation was provided. Information sessions

implemented by IOM covering important information about Spain took
place.
Assistance
documents
IOM in close collaboration with the Spanish embassy, has assisted the 80
refugees with their travel from Shousha camp to Madrid including the
facilitation of departure and arrival procedures.
Medical screening
with
travel
Procedure Timing
Comments
So far and considering the experience in 2012 with the 80 persons

resettled from Tunisia, no medical screenings were done. All the
screening took place once they were in Spain.
The resettlement process - from selection to arrival - took
approximately 3 months.
Putting in place a cultural orientation programme was brought up by all
stakeholders at a very early stage. The Ministries in charge consulted
each other on existing comparative practices. It seems that this may be
developed more broadly, with a detailed contents outline for the next
programmes in place. During the 2012 resettlement process, this has
been implemented by IOM.

Post-Arrival phase
Status granted
Law 12/2009, of 30 October,
regulating the right to asylum
and subsidiary protection
Law 12/2009 states that those resettled will receive the same refugee
status as other refugees in Spain.
The 80 refugees resettled in 2012 were granted refugee status or
subsidiary protection depending on the different profiles.
Rights granted
Legal source
Refugees accepted for resettlement are granted rights according to

Article 36 of Law 12/2009 as well Law 4/2000.
Article 36 of Asylum Law

12/2009 and Law 4/2000.
These two laws guarantee basic rights such as health, education, the
right to seek employment, family reunification etc.
Residence
The resettled refugees have the right to reside and work permanently
under the terms established by the Organic Law 4/2000 of 11 January on
the rights and freedoms of foreigners in Spain and their social integration.
Airport Arrival
Government entities: representative members of the Ministry of

Employment, and Ministry of Interior will meet refugees at the airport. In
2011, NGOs were also present (Accem, CEAR and the Spanish Red
Cross). They are then accompanied to different reception centres for
period of 6 months minimum depending on the situation.
Info upon arrival
Information is given in reception centre.
No
Programme
(Housing, health,
education)
The programme conducted was for all asylum seekers or refugees

staying on any reception centre in Spain. After leaving the centre,
refugees benefit from any other general service addressed to regular
migrants as well as the Spanish general society. This is facilitated by the
NGOs involved who were also in charge of managing the reception
centres as they are experienced in the field of integration. Once the
resettled refugees are in Spain, they will be supported by the government
for a period of two years.
255

Social integration has been divided into 3 stages. The first is within the
reception centre, the second is called autonomy in which financial
support, guidance and follow up will be carried out by NGOs such as
Accem, Cear and the Spanish Red Cross. For the third stage, it will be
decided on a case by case basis whether any additional financial or
guidance will be required.
As with all asylum seekers, initial accommodation is available for 6
months and up to 12 months. This depends upon the level of vulnerability
and profile of every case in reception centres (Centros de Acogida a
Refugiados), which are directly managed by the Ministry of Employment
& Social Security or run by NGOs such as ACCEM, CEAR and Cruz Roja
under contract with the same Ministry.
They will benefit from the same conditions and financial support as any
other asylum seeker and/or refugee covered under the Spanish reception
and accommodation services. Once they leave the reception centre and
pass the second phase of the programme they will be connected with the
municipalities. In most cases this will be the same municipalities in which
the reception centres are located.
Counselling
A social orientation class is offered in the reception centre. The contents

include information on schooling, expenses, food, housing,
transportation, environment etc.
Spanish classes are offered upon arrival within every reception centre.
Once refugees and/or beneficiaries of international protection are in
private housing, NGOs will help to provide language classes depending
on and the relevant profiles as well as the existing budget at that time.
Employment
NGOs assist refugees in finding employment. Every refugee case

presented by NGOs should go through a formal process carried out by
the employment services. This process would involve advisory
consultations on the development and implementation of skills and tools
for job seeking, as well as the facilitation of employers contacts.
Advice of Accessing
Services
Mentoring
providers
In Spain, people with a refugee protection status (for 5 years), and/or

subsidiary protection (1 year) can apply for family reunification.
Nevertheless for resettled refugees it is possible to apply for family
reunification, to which the procedure is easier and shorter with fewer
requirements for documentation to support it.
There is no formal programme as such, although support or assistance
could always be provided in a medium and long term by the NGOs
addressed if demanded by the beneficiaries.
No formal or specific training for resettlement is offered.
Volunteer support
None mentioned.
Housing
Housing is organized by NGOs organizations (Accem, Cear, and Spanish

Red Cross) and/or by the Ministry of Employment. The resettled persons
stay in reception centres for the first 6 months and for up to 18 months (in
exceptional cases). After the resettled person leaves the centre,
information about the possible existing services within the local and
regional territories will be provided and refer to: education and contacts,
access to public assistance and health care, managing household
budgets, etc.
Medical screening
256
All resettled persons were sent to the General Health Services.

Comments
Considering that only recently 80 refugees have been resettled under

Law 12/2009, it is not possible to evaluate how successful it is at
integrating the resettled refugees into Spanish society. No formal
evaluation research has been done, this makes it very difficult to evaluate
whether previous resettlements have been successful or not. 28
Though a very recent programme was carried out, few
gaps/recommendations have been highlighted by all the stakeholders
interviewed during 2012:
- The development of a detailed programme for the resettlement
(i.e., stakeholders roles, administrative procedures...) where all the
elements should be defined for each time the programme will be
implemented.
-
Design and Development of awareness raising and training

addressed to all stakeholders involved.
The different stakeholders involved in the resettlement process

should have specific training on resettlement as a necessary tool
to better understand the process.
Determination of the resettled refugees through the same

institution, the CIAR.
The involvement of NGOs during the pre- departure and postarrival activities of the resettlement programme must be
considered as being a key element in the integration process.
Final reception and integration should be formally coordinated by

local and regional authorities (the Autonomous Communities
CCAA). While all the stakeholders recognised the importance of
CCAA role, their competences seems to be centralized both during
the process.

Funding
National Level
Resettlement is funded by the budget allocated to the Secretary General

of Immigration and Emigration, as part of the annual presupuestos
generals del Estado, general State budgets following agreements made
with the UNHCR and NGOs, and other subsidies agreements.
The Ministry of Labour and Immigration, which is now the Ministry for
Employment and Social Security published a communication dated 4
October 2011, in which the Ministry outlines its draft immigration budget
for 2011. 29 The Ministry earmarked a budgetary figure of 268 million for
the development of immigration and emigration policies in 2011, 7,5
million of which was to be spent on immigration and 141,4 million on the
integration of immigrants. It is likely that some of this funding would have
gone to resettlement projects had they occurred. The text of the
communication did not however make specific reference to resettlement.
It stated that the Departments priorities with regard to immigration
continues to be: the orderly management of migration flows; cooperation
and international dialogue with the countries of origin; and the fight
against illegal immigration and integration policies that favour coexistence
and social cohesion.
28
29
30
ERF
At present ERF can co-finance resettlement efforts and actions, if such a

necessity arises. 30
When information was requested from a member of staff at the Ministry for Employment and Social Security regarding this point, the
researcher was informed that the staff member did not have such information.
http://extranjeros.meyss.es/es/Actualidad/documentos/NOTA_PRESUPUESTOS_2011.pdf
257

In the ERF Pluriannual Plan 2008-2013 31, funding is to be allocated for
resettlement. Between 2008 and 2013, the Pluriannual Plan foresaw a
spending total of 1.997.013, 00 on resettlement initiatives for the
resettlement of 350 persons. The resettlement mentioned in this plan has
not happened. It remains to be seen whether those due to take place in
2012 and 2013 will go ahead.
Costs
The ERF mentions allocating funding for related projects run by NGOs in
Spain. A refugee resettlement programme by ACCEM is listed as one of
the projects chosen to receive financial assistance, 102,094.31. 32
Using the aforementioned approval of the establishment of a resettlement
programme for reference, the primary source of funding would have been
the Ministry for Labour and Immigration which is now the Ministry for
Employment and Social Security.
The approval mentions that 23,353.18 is the estimated cost of the
selection mission for this particular programme undertaken by officers from
the Office of Asylum and Refugee, funded by the Ministry of the Interior.
In short, taking this approval as an example, the funding would be split
between the Ministry for Labour and Immigration, now the Ministry for
Employment and Social Security and the Ministry of the Interior. In the
approval there is no mention of using funds from the ERF.
There are no official government figures available regarding the funding
allocated for previous ad hoc resettlement programmes. Official State
reports do not provide details on government expenditure allocated to
resettlement specifically and only provide general figures for ministries,
government bodies, etc. 33
The new Resettlement Programme to be embarked will be mainly
implemented by Home Affairs and Labour and Social Security Ministries
and its costs are estimated to be 894,655,17 euros.
Comments
Due to Spains geographical location, it historically has had strong ties

with the north of Africa. In recent years Spain has sought to control and
monitor Spanish sea borders in order to curb the flow of migrants who
often arrive to Spanish shores. It seems that much of Spains time and
energy with regard to immigrants, has been spent developing tactics
designed to keep immigrants out rather than letting them in. In recent
years the number of persons seeking asylum has dropped, as has the
number of persons gaining access to Spain by crossing the Straits of
Gibraltar by boat or travelling to the Canary Islands.
Although Spain committed to embark a new resettlement programme for
2013 and 2014, it still remains to be seen if Spain will resettle refugees in
the future. It seems that the focus of the Spanish Government is towards
bringing Spain out of the economic crisis and therefore, resettlement in
the future will most likely depend on Spains economic performance.
From the interviews with stakeholders, the importance of a successful
implementation of the resettlement programme during 2012-2013 was
stressed on many occasions. This reasoning is linked with choosing a
certain group of refugees seen as having a lower degree of vulnerability
in comparison with special case such as medical cases or elderly people
who could be seen as bring more of an economic burden.
31
http://extranjeros.meyss.es/es/Fondos_comunitarios/programa_solidaridad/refugiados/pdf/FER_Plan_Plurianual_2008_2013_MTIN.p
df The following is a link to the Government resolution regarding proposals presented by NGOs etc, applying for funding.
Resettlement projects are listed as one area that may be financed: http://www.boe.es/boe/dias/2008/11/18/pdfs/A45909-45925.pdf
Another link is being included here to a resolution made by the Directorate General for the Integration of Immigrants which makes
reference to financing programmes using the ERF. There is a specific reference made to resettlement programmes at the end of
this document in Anexo A: http://www.boe.es/aeboe/consultas/bases_datos/doc.php?id=BOE-A-2009-15165
32
33
http://extranjeros.meyss.es/en/Fondos_comunitarios/programa_solidaridad/refugiado/
This point was communicated to the researcher through correspondence with a member of staff of the ministry of Employment and
Social Security
258

Questions regarding the European Union are seen as being too distant
from the issues affecting Spain. The EASO for example was considered as
having an important role regarding resettlement but with limitations due to
the lack of funds and human resources. It appears that no European
policies or any other European institutions address the Spanish issues.
259


Sweden
Report written by
Alina Ostling (EUI)

George Joseph (ECRE)
June, 2013

260
KNOW RESET Country Profile: Sweden
Country Profile: SWEDEN

The Swedish Government officially aims for Sweden to have a humane asylum policy and to be a haven for
those fleeing from persecution and oppression. This policy has strong support in the parliament. 1 Sweden
together with France and Germany receives the largest numbers of asylum-seekers into Europe. 2 In
2001, Sweden became a full member of Schengen and its borders became much more open thereafter.
These opened borders, together with the new (resund) bridge connection to Denmark, resulted in an
increase of the number of asylum seekers in Sweden in the early part of the new millennium.
In terms of party politics, the Swedish immigration policy is characterized by a broad political consensus.
All parties in parliament, except the Swedish Democrats (Sverigedemokraterna), describe their immigration
policies as "generous." Curiously, the far-right party the Swedish Democrats is positive towards
resettlement; basically they want to restrict the reception of refugees only to Convention refugees and
quota refugees.
Turning to the Swedish medias perspective, immigration and asylum issues are high on the agenda,
while resettlement is not. The Swedish Migration Board would like to raise awareness of quota refugees
among the public because resettlement is seen as being an important part of Sweden's humanitarian
responsibility and as being relevant to its development aid and UN activities. However, there is a risk that
the good-will gained by focusing on quota refugees may reduce the general publics acceptance of
spontaneous asylum seekers arriving in Sweden. 3 There is an opinion among the general public that quota
refugees are the only real refugees. 4 Overall, Swedes attitudes toward immigrants have never been as
accepting as they are now. According to a recent survey from Gothenburg University, Swedish people have
become less xenophobic in the past 15 years. In 1993, 52 % agreed with the statement "There are too
many foreigners in Sweden", while in 2009 only 36 % did. 5
Resettlement in Sweden started in 1950 when the first annual refugee quota was set. It is a supplement to
the asylum system and is unaffected by the number of people who apply for asylum in Sweden each year. To
begin with, the Swedish refugee quota was a contribution to emptying the refugee camps in Europe after the
Second World War. At the time, Sweden also suffered a labour shortage. In fact, nine out of ten of the
collective transferred refugees between 1950 and until mid-1970's was of working age and able-bodied.
Sweden's resettlement activities have since then taken a completely different direction. Sweden was one of
the first countries in the world that received tuberculosis and disabled refugees for resettlement. In the 1980s,
resettlement acquired a humanitarian focus. Sweden is not only the "oldest" European resettlement country 6
but also the country that offers most resettlement places in Europe. 7 What is more, Sweden is also one of the
largest resettlement countries (per capita) in the world. 8 This generous resettlement practice is in line with
Swedens liberal refugee policy. It is also at one with the overall approach to resettlement in the Nordic
countries which consider it as a vital tool for international protection of refugees. 9
The Government Offices website at: http://www.regeringen.se/sb/d/9688
UNHCR website: http://www.unhcr.org/pages/49e48f056.html
Migration Board presentation at the seminar Swedens refugee quota in Haparanda, dated April 2009.
Migration Board webpage "Quota refugees - the only real refugees"(Kvotflyktingar det r bara de som r riktiga
flyktingar): http://www.migrationsverket.se/info/4414.html
One of the main Swedish newspapers: Dagens Nyheter (2010). Art. Svenskarna blir alltmer positiva till invandrare.
Dated 2010-05-24 at: http://www.dn.se/debatt/svenskarna-blir-alltmer-positiva-till-invandrare
Migration Board, Resettlement to another life (Vidarebosttning till ett annat liv), Thematic Report 3:2010:
http://www.migrationsverket.se/info/495.html
The Government Offices of Sweden website at: http://www.regeringen.se/sb/d/9688/a/90410
Migration Board presentation at the seminar Swedens refugee quota in Haparanda, dated April 2009, op.cit.
Resettlement in the Nordic Countries, Mette Honor, Danish Refugee Council, September 2003, at:
http://www.migrationinformation.org/Feature/display.cfm?ID=159
261

The legal basis for resettlement is contained in the Aliens Act, which came into force on 31 March 2006
and replaced the 1989 Aliens Act. The reform was aimed at strengthening the rule of law in the field of
migration. 10 The current Act offers a better distinction between the various grounds for residence permit
and emphasises the need for protection. The definition of protection has been extended to cover those
who, because of severe conflicts in their home country, feel a well-founded fear of persecution. 11 In
particular, the Act clarifies that persons accepted for resettlement must be granted a residence permit 12.
Since the current Act came into force, the proportion of persons in need of protection granted residence
permits has increased with respect to the total number of residence permits issued. 13
10
Migration Board (2010).Migration 20002010. Report 2:2010. www.migrationsverket.se
11
Parliamentary protocol 2004/05:130, Debate, Speaker: (at the time Minister of Migration and Asylum Policy) Barbro
Holmberg (social democrat), 31 May 2004:
http://beta.riksdagen.se/sv/Dokument-Lagar/Dokument/Protokoll/Riksdagens-protokoll-200405130-Tisdagen-den-31maj_GS09130/
12
Government bill (2004/05:170) New instance and process order in the Aliens and citizenship issues handed over to
the Parliament on May 26, 2005: www.regeringen.se/content/1/c6/04/55/68/018827d5.pdf
13
Government communication to the Parliament (2010/11:29), Migration and asylum policy, 28 October 2010:
http://www.riksdagen.se/webbnav/index.aspx?nid=37&dok_id=GY0329
262
Asylum Profile
status granted 14
10,830 (2011)
2,870 (Refugee protection)
7,960 (Other Protection)
10,344 (2010)
2,304 (Refugee protection)
8,040 (Other Protection)
29,648 (2011)
Number of asylum
seekers 15
31,819 (2010)
Resettlement Scheme
Resettlement Quota
1,900/year

The Aliens Act, 2005 with
latest amendments in 2012
Specific provision on Resettlement:

The Aliens Act (2005:716), Chapter 5. Residence permit for persons
otherwise in need of protection, Section 2:
A residence permit shall be given to an alien who has been received in
Sweden within the framework of a decision that the Government has
issued on the transfer to Sweden of persons in need of protection
(resettlement).
Other basis of
resettlement:
Decision: Spending
authorization for year 2012
regarding the Migration
Board 16, Ministry of Justice,
dated 2011-12-22 17
Decision: Resettlement 2012
- Distribution of places,
strategic and operational
assessments for fiscal year
2012, Migration Board
decision N GDA 6/2012,
dated 2012-01-23
project/reform
Defines quota: 1,900 persons
Shapes the resettlement quota and Shapes the resettlement quota and
from which countries refugees are resettled.
No planned reform. No change is expected regarding the annual

resettlement quota, which had been increased by 200 between 2006
and 2008. The annual resettlement programme has worked out very
well and the Swedish government does not see any reason for
changing this. 18
14
Source: Migration Board, permit statistics.
15
Available at: http://www.migrationsverket.se/download/18.78fcf371269cd4cda980004204/tabs2.pdf
16
Spending authorization is an official document placing appropriations at the disposal of the authorities concerned.
17
18
The website of the Swedish National Financial Management Authority at: http://www.esv.se/Verktyg-stod/Statsliggaren/Regleringsbrev/?RBID=13902
Interview with the Swedish Ministry of Justice, 30 March 2012.
263

Sweden has always resettled on a programme basis.
Yearly Quota
2000
1380
2001
1285
2002
1000
2003
1000
2004
1700
2005
1700
2006
1700
2007
1800
2008
1900
2009
1900
2010
1900
2011
1900
2012
1900
19
2012 Countries from which refugees are resettled (country of origin) :
Kenya (Somali citizens)
350
Sudan (Eritrean citizens, etc.)
150
Djibouti (Somali citizens, etc.)
100
Iran (Afghan citizens)
400
Tunisia (mixed nationalities)
200
Ecuador (Colombian citizens) 100

Pool for flexible use (mixed nationalities) 250
Acute cases (mixed nationalities) 350
Sweden does not apply any specific sub-quota.
The Swedish programme allocates a significant number of places for
urgent and emergency cases each year. For 2008, this number was set
at 300 and subsequently increased to 350 places in 2009.
c) Temporary
Resettlement:
19
n/a
Resettlement 2012 - Distribution of places, strategic and operational assessments for fiscal year 2012, Migration
Board decision N GDA 6/2012, dated 2012-01-23
264

Governmental Level
MOST Project
In the framework of the MOST project, Spain took part in the Swedish
selection missions in order to find out how the resettlement process
could be organised. Representatives of the Spanish government from
the Ministry of Labour and Social Affairs participated in selection
missions to Jordan with the Swedish partner in June 2007. The related
fact-finding missions created a model that can be used for organising
similar twinning activities in the future.
Colombian Project (20002002)

UNHCR Trust Fund for
Enhancing
Resettlement
Activities
Mexico Plan of Action
In the past, Sweden has used part of its resettlement funding for
projects aimed at supporting refugees and promoting resettlement in
third countries through Regional Resettlement initiatives, e.g. the
Colombian Project (2000-2002); and the UNHCR Trust Fund for
Enhancing Resettlement Activities (a Nordic initiative piloting regional
resettlement in Burkina Faso and Benin). 20 Moreover, Sweden was part
of a project called the Mexico Plan of Action (2006) aimed at the
resettlement of mainly Colombian refugees in Latin America.
Spending authorization
for year 2012 regarding
the Migration Board,
Ministry of Justice, dated
2011-12-22
Until 2009, the yearly spending authorization from the Ministry of

Justice contained the following wording (translated from Swedish by the
author): The Migration Board, in consultation with UNHCR, shall
explore the possibility of taking measures to facilitate alternative
resettlement primarily in third countries." This wording was dropped in
the 2010-spending authorization and currently there seems to be no
funding of resettlement in third countries.
n/a
experience
From Guantanamo
None.
Intra-EU Relocation
Sweden is very doubtful towards relocation. Institutional stakeholders

would prefer other instruments than relocation to help EU Member
States that have limited capacity for receiving refugees 21.
Comments
When Sweden was chairing the ATCR and WGR (2009-2010), they
selected the theme Increased Global Commitment and Capability for
Resettlement. 22

Refugees resettled
20
21
22
2012
1,853
2011
1,896
2010
1,786
2009
1,936
2008
2,209
Source: International Catholic Migration Commission (ICMC). Welcome to Europe! A Guide to Resettlement: A
Comparative Review of Resettlement in Europe.
Interview with the Swedish Ministry of Justice, 16 May 2012.
Migration Board (2010). Reporting of completed chairmanship of UNHCRs Annual Tripartite Consultations on
Resettlement (ATCR) and Working Group on Resettlement (WGR). Final report. 2010-10-04. (on file)
265

Process Pre-Arrival
Phase
Selection criteria
UNHCR Criteria
The yearly resettlement planning is carried out through a dialogue with

UNHCR. Usually, UNHCR makes concrete suggestions, giving specific
weight to strategic resettlement and efforts to resolve protracted
refugee situations. Also of influence is the availability of Swedish
dossier selection places and other resettlement countries' allocations. 23
An applicant must meet the criteria of the Geneva Convention or meet the
criteria for subsidiary protection to be offered resettlement in Sweden.
Additional National
Criteria
The Swedish programme does not specify resettlement criteria or

special categories. However, the quota for resettlement and the
countries from which the refugees are drawn was shaped by the
following considerations:
1. UNHCR requests for destinations and target groups in accordance
with UNHCR Projected Global Resettlement Needs 2012;
2. Sweden's willingness to contribute to solving protracted refugee
situations and the desire to use resettlement strategically;
3. Sweden's ability to act quickly to resettle people with urgent needs;
4. Sweden's ability to use the dossier selection method extensively.
Sweden offers resettlement also to Tribunal witnesses and their family
members. 24
Sweden does not require any other assessments (of medical needs,
integration potential, or else) to be made before decision or
departure. 25
While there is no specified sub-quota, Sweden accepts limited
numbers of unaccompanied minors within the resettlement
programme. 26
In accordance with the principle of family unity, resettlement is
generally offered to all family members even if the need for protection
only applies to one or a few. This applies to the core family - that is
married or unmarried spouses and their children (under 18 years of
age). The Migration Board may in exceptional cases decide to offer
resettlement to only one or some of the family members. 27
Moreover, Sweden uses the Emergency Transit Centre (ETC) in
Romania in cases when they cannot find places in the Swedish
municipalities fast enough for the resettling persons. It occurs only in a
few cases per year. The MB has no agreement with UNHCR on
receiving a particular number of refugees from the centre.
23
Annual program of the European Refugee Fund 2010: Sweden. (rligt program Europeiska flyktingfonden
2010).(2010): www.migrationsverket.se
24
UNHCR Resettlement Handbook, Country Chapter: Sweden, July 2011.
25
Ibid.
26
Ibid.
27
Ibid.
266

Selection Process
Deploying Staff

No
The Swedish Migration Board (Migrationsverket), acting on behalf of the
Government, is the main actor responsible for resettlement to Sweden.
In accordance with the annual government decision, the Migration
Board draws up the guidelines for the resettlement program and defines
the proposed composition and any regional focus. 28
Cases should be submitted by UNHCR; a Swedish diplomatic mission
can make submissions only in exceptional cases.
The Migration Board decides on composition of resettled persons i.e.
which refugee groups, nationalities and from which countries - in close
cooperation with UNHCR. 29 UNHCR suggests a composition annually
and the Migration Board makes the final decision after a consultation
UNHCR
and
the
Swedish
Government
Offices
with
(Regeringskansliet). 30 To further prepare the resettlement programme
decision, the Migration Board contacts Swedens foreign missions in
the countries from which the resettled refugees are to be taken. They
are given an opportunity to comment on issues such as security,
support for Swedish personnel in mission selection and issuance of
travel documents to the selected refugees. Different units within the
Migration Board are also asked for input. Finally, the Swedish Security
Police (SPO) is contacted regarding safety-related aspects. 31
Dossiers
Missions
The resettlement quota is divided almost equally between processing

via in-country selection and dossier selection. In contrast to other
resettlement countries, the slight majority of Sweden's quota is selected
through dossier selection.
The trade-off between mission vs. dossier selection is mainly based on
the following reasons:
1. The security situations in the countries of first asylum do not
always permit missions (in particular, in-country travels of
refugees coming to selections are deemed as dangerous), e.g.
in 2012, missions were not judged possible in Eritrea.
2. In some cases, dossier selection is not sufficient because there
is a need for in-depth investigations, e.g. in 2012; in-depth
investigations were judged necessary in the case of Somali
refugees in Eritrea and Yemen.
3. Sweden has carried out selection missions in Sudan in 2009
and 2010. In 2011, dossier selection was applied and had high
granting frequency of status (98% for Eritrean refugees). On the
basis of this result, the Migration Board judged that dossier
selection is both possible and effective in Sudan. Another factor
that contributed to the choice of dossier selection were previous
logistical difficulties of missions in Sudan.
28
Migration Board webpage "Quota refugees - the only real refugees"(Kvotflyktingar det r bara de som r riktiga
flyktingar): http://www.migrationsverket.se/info/4414.html
29
Migration Board homepage: http://www.migrationsverket.se/info/495.html
30
Migration Board presentation at the seminar Swedens refugee quota in Haparanda, dated April 2009
31
Migration board website: Annual program of the European Refugee Fund 2010: Sweden. (rligt program Europeiska
flyktingfonden 2010).(2010): www.migrationsverket.se
267

Each year the Swedish Migration Board undertakes 4-5 in-country
selection missions. 32 The Migration Boards annual resettlement
programme defines what kind of selection missions are planned for the
year, when, to which countries, what groups of refugees they should
select and how many. However, the programme also leaves room for
flexibility: an unexpected conflict or political complications in any part of
the world can impede planned selection missions. Hence, priorities can
be changed in order not to leave unused resettlement places. 33
To facilitate preparations, the Migration Board uses the Pre-Mission
Questionnaire for Resettlement Interview Missions and Pre-Mission
Checklist for Resettlement Interview Missions supplied by UNHCR.
Pre-missions are also used to meet with partners on site and to jointly
discuss timelines, risks and objectives concerning the selection.
All documentation i.e. by Resettlement Registration Form (RRF)
and all possible supplementary documentation should be provided by
UNHCR and made available at least one month before the planned
date of departure. To ensure sufficient scope for selection and avoid
no-shows, presentations should envisage about 25% more persons
than will be selected.
The Migration Board emphasizes that information on special
medical or other needs or treatment should be mentioned in the RRF in
order to be better prepared for the refugees reception and integration.
Interviews are carried out on an individual basis and the aim is to
supplement the information provided in the RRF, hence to provide a
sufficient base for the assessment of refugee status and final decision
by the Migration Board.
Grounds for rejection are given orally and in writing.
Up until 2009, Swedish cultural orientation and other pre-departure

preparations were limited. Refugees selected by missions received
limited information about Swedish society and what resettlement
means at the time of their interview. Only a few of those subsequently
selected have had the opportunity to participate in a cultural orientation
programme. Reasons for a lack of preparatory initiatives include
funding issues and insufficient organization.
Sweden has now developed and included pre-departure cultural
orientation into the resettlement programme. The scope and length of
the cultural orientation varies depending on the needs of each target
group, but generally two types of sessions are used: full cultural
orientation programmes, ranging between one to two weeks, and
shorter workshops on a few days. Each refugee is offered between 5
10 hours of information within these programs.
The programmes are carried out by officers from the Migration
Board together with officials from some of the receiving municipalities
and officers from the Swedish Employment Service.
32

documents
The Migration Board engages the IOM for travel arrangements, e.g.
ticket purchase, helping the refugees with the purchase of warm clothing,
and check-in at the airport. The refugees who are travelling in large
groups are escorted by a person from the IOM all the way to Sweden. 34
Ibid.
33
34
Migration Board. Annual program of the European Refugee Fund 2010: Sweden. (rligt program Europeiska
flyktingfonden 2010).(2010): www.migrationsverket.se
268
Medical screening
Procedure Timing
Sweden does not require UNHCR or IOM to carry out a medical

examination of refugees entitled to resettlement in Sweden. However
Swedish Migration Board considers it is important to clearly indicate the
individuals state of health and to include relevant medical
documentation in the submission from the UNHCR. This will be a
valuable source of information both for the refugee and for the
municipal authorities charged with his or her care.
The whole process, from selection to the arrival of the refugees to
Sweden, should not take more than 3 months:
a) The selection process lasts 2-3 weeks.
b) After this, a resettlement municipality in Sweden is identified
(circa 6 weeks).
c) The Cultural Orientation (Sverigeprogram) is carried out in 7-10
days.
d) Departure takes place maximum 2-4 weeks after the
orientation. The Migration Board has diminished the average
decision time in resettlement cases from 124 to 87 days
between 2006 and 2009. 35
Emergency cases can take up to 5 days 36 from the receipt of the
dossier to arrival in Sweden. Urgent cases should not take more than
10 days. Both emergency and urgent cases are usually dealt with on a
dossier basis.
Comments
Sweden has recently emphasized the need to (i) improve the

information for persons selected for resettlement and (ii) to increase
the participation of resettled persons in resettlement procedures and
activities (i.e. develop methods that will allow this). 37

Post-Arrival phase
Status granted
People who are resettled to Sweden are not automatically granted

refugee status. Those who are resettled are either Convention refugees
or persons in need of subsidiary protection. Refugees have a somewhat
stronger legal standing, e.g. they can apply for Swedish citizenship after
4 years stay in Sweden, while others have to wait for 5 years. Persons
in need of protection and refugees also have different eligibility for
passport documentation, support for family reunification and pensions. 38
However, both these categories are granted a permanent residence
permit before arriving in Sweden 39. The decision on status is based on
either interview during selection mission or on a UNHCR dossier.
Rights granted
Residence
Residence permit granted.

The system of refugee reception is based on the voluntary participation
of the majority of municipalities in Sweden.
35
36
Ibidem
37
ERF. Multiannual programme: Sweden (20082013). Annex I. # 111-2008-1744. www.migrationsverket.se
38
Migration Board webpage To Sweden as a quota refugee at: http://www.migrationsverket.se/info/601_en.html
39
Interview with the Swedish Migration Board, 2 March 2012.

269

Airport Arrival
Refugees are received by Swedish Migration Board Staff and Staff

from the receiving municipality at the airport and transferred directly to
respective municipalities.
Info upon arrival
The municipality is required to provide an individual introduction

programme for each refugee resettled (This applies to all refugees and
immigrants). The Introduction program is drawn up in close cooperation
with the individual concerned, and the Swedish Public Employment
Service.
Before the arrival the receiving municipality normally holds information

meetings with the support of NGOs and Churches.
Programme (Housing,
health, education)
A residence permit gives the right to childcare, education, healthcare,

social security, etc. to the resettled person. The resettled persons also
have the same obligations as all people who live in Sweden, e.g. to try to
work and support themselves, ensuring that children arrive at school and
complying with laws. Like other immigrants, quota refugees are allowed
to vote in county and municipal elections after three years in Sweden. 40
A resettled person receives accommodation, as well as financial
support from the state during the first two years (provided they follow
the established plan they agreed upon with the Employment Service).
During that time, they are given language courses, information about
society and help to find a job. 41
The Migration Board is responsible for the cultural orientation and predeparture preparations. The programmes are carried out by Board
officers together with officials from some of the receiving municipalities.
Recently, the Employment Service has also started to participate in the
orientation. 42
Counselling
Part of the introduction programme. In some municipalities, NGOs and

Churches provide supplementary social and legal counselling.
All municipalities ought to offer language training within three months

after the individual's arrival in the municipality. All school-age children
are entitled to tuition in their native language at school.
Employment
Persons with refugee status or holding a residence permit on similar

grounds are permitted to take up employment on equal terms with
Swedish citizens. The Swedish Employment Service is responsible for
mapping and supporting new arrivals in becoming attractive on the
labour market.
The resettled persons have a right to receive allocations for family
reunification. The categories of family members entitled to a residence
permit on the grounds of family reunification are the following: 43
i.
a spouse/cohabiting partner of someone who is either resident in

Sweden, or has been granted a residence permit to settle in
Sweden;
ii.
a child who is under the age of 18 and unmarried, if the child has
a parent who is resident in or has been granted a residence
permit to settle in Sweden, alternatively, has a parent who is
married to or a cohabiting partner with a person resident in
Sweden or granted a residence permit.
40
Migration Board website: http://www.migrationsverket.se/info/601.html
41
Ibid.
42
Migration Board. Guidelines for participation in Sweden Program. (Riktlinjer fr medverkan i Sverigeprogram). 201112-06.
www.migrationsverket.se/download/18.46b604a812cbcdd7dba800022610/Riktlinjer+f%C3%B6r+medverkande+i+Sv
erigeprogram+2011-2.doc
43

270

Furthermore, a residence permit is given to an alien who is a parent of
an unmarried alien child under the age of 18 who is a refugee or a
person otherwise in need of protection, if the child arrived in Sweden
separately from both parents or from another adult who may be
regarded as having taken the place of the parents, or if the child has
been left unaccompanied after arrival.
A close relative outside the immediate circle of the nuclear family may
be given residence permit if he or she was a member of the same
household as the relative in Sweden.
Advice of Accessing
Services
Included in the introduction programme.
Mentoring
In some municipalities.

providers
No formalised training for local service providers in the whole country,

but in many places local municipalities started to organise cultural
training programmes for the service providers.
Volunteer support
Comments
In many part of Sweden, local NGOs and Churches organise volunteer

support for refugees.
There is a strong tradition of municipal responsibility for refugee
reception in Sweden and municipal refugee coordinators organise a
large number of initiatives to support newly arrived refugees. This
strong municipal responsibility, together with the central governments
responsibility in the area of integration, has tended to limit the
involvement of the civil society, such as NGOs and Churches.
NGOs currently have a limited role in relation to resettlement in
Sweden, but could play a more active role with regard to advocacy,
reception and first phases of integration.
NGOs conduct alternative or supplementary initiatives for newly
arrived refugees. Swedish NGOs would like to get more involved in the
resettlement process particularly in the pre- and post- cultural
orientation programs. In order to better facilitate integration.
Resettlement provides the opportunity to meet and prepare the
refugees for their encounter with the new society before arrival.
Potentially the opportunity exists to impart a sense of security and
understanding to the refugees, and to ensure that reception can be
adjusted to individual needs. In order to assume responsibility and
make active choices, the refugee must have access to knowledge and
an understanding of what resettlement entails for themselves and for
their families. By discussing the impact and consequences of
resettlement with those selected, the refugees are not only given the
opportunity to change their mind, but to start the transformation from
the place where they have lived to their new and unknown future. This
implies both mental preparation and practical issues. NGOs can and
should play a crucial role in this process.
The expression managing of expectations has turned up in all
interviews with stakeholders. This concept sums up the need to
prevent unrealistic expectations connected to resettlement, which may
cause problems after arrival. False expectations may be due to
inadequate knowledge or the spreading of rumours and
misconceptions and may result in disappointments that could block the
refugees capacity to learn and participate in their introduction
programs. This in turn can create problems both for the individual and
the receiving community. The catch-phrase managing expectations
271

applies not only to refugees but also to the receiving society. Host
municipalities need to know about the individuals and groups they
encounter, about their situation prior to arrival, and about the
information that refugees have received before arriving.
Funding
National
budget:
The
Swedish parliament allots
funds to the resettlement
yearly.
Each year, the Swedish parliament (Riksdag) allocates funds to

resettlement of refugees to Sweden. Thereafter, the Ministry of Justice
(Justitiedepartement) issues the general guidelines for the Swedish
resettlement programme, which have to be approved by the parliament. 44
The total resettlement budget for 2012 is SEK 391,590,000. 45 The
cost of each resettled person grew with about 700 SEK in 2010 with
respect to 2009 and fewer people were resettled in 2010 compared to
2009. The cost increase was a result of difficulties in obtaining exit
permits and the cancellation of flights. 46
The Migration Board distributes financial resources to the
municipalities who are then responsible for the organisation and
implementation of introduction programmes. Once the quota refugees
have arrived, the municipality is fully responsible for their resettlement
and integration.
Total resettlement budget 2012 47:
ERF contribution
Costs
SEK 391,590,000
n/a
Budget lines 2012:
1. SEK 375,440,000 (SEK 197,600 per refugee*1,900 quota
persons) for flat-rate payments to municipalities. 48 The
Migration Board distributes financial resources to the
municipalities, who are then responsible for the organisation
and implementation of introduction programmes;
2. SEK 16,150,000 for (i) travel and travel-related expenses for
resettled persons; (ii) pre-departure information and preparatory
work for the resettled; and (iii) travel, subsistence and other
expenses for the personnel involved in resettlement missions. 49
44
45
Spending authorization45 for year 2012 regarding the Migration Board, (Regleringsbrev fr budgetret 2012
avseende
Migrationsverket).
Ministry
of
Justice,
dated
2011-12-22:
http://www.esv.se/Verktyg-stod/Statsliggaren/Regleringsbrev/?RBID=13902
46
Governments budget bill for 2012 (2011/12:1), budget category 8: migration, Frslag till statens budget fr 2012:
data.riksdagen.se/fil/230a145e-a40b-4cca-808b-c5be4360e4fd
47
Spending authorization47 for year 2012 regarding the Migration Board, (Regleringsbrev fr budgetret 2012
avseende
Migrationsverket).
Ministry
of
Justice,
dated
2011-12-22:
http://www.esv.se/Verktyg-stod/Statsliggaren/Regleringsbrev/?RBID=13902
48
Ibidem.
49
Ibidem.
272

The amount per refugee may vary on the basis of refugee category.
In 2009, municipalities received a state grant of SEK 189.400 (around
EUR 17.200) for each adult refugee, SEK 116.300 (around EUR
10.550) for a refugee child (under the age of 16) and SEK 69.900 (EUR
6.450) for adults 65 and older, for the entire introductory period. 50
The Migration Board has a resource efficient administration of the
resettlement process with just a handful of employees. Other Board
departments lend their employees to the selection missions abroad. 51
Comments
There is a need for a continuing awareness of resettlement issues in all

resettlement countries including Sweden.
There is wide support of the principle of accepting resettlement
cases and they are even portrayed by anti-immigrant political
groupings as the really genuine refugees. Spontaneous asylumseekers are often portrayed as bogus refugees in these circles, which
would probably wish a refugee policy to be fully oriented towards
reception of resettlement cases. All the interviewed NGOs voiced
concern regarding how resettlement of refugees can be used by antiimmigrant groups against the spontaneous asylum.
The European Refugee Fund has been used in Sweden to operate a
Swedish Resettlement Network, aimed at a collaboration among the
Swedish Migration Board, municipalities, county administrative boards and
NGOs. This network focuses on the dissemination of knowledge and the
exchange of experiences through seminars, newsletters and lobbying work.
50
International Catholic Migration Commission (ICMC). Welcome to Europe! A Guide to Resettlement: A Comparative
Review of Resettlement in Europe.
51
Migration Board presentation at the seminar Swedens refugee quota in Haparanda, dated April 2009
273



The Netherlands
Report written by
Fenya Fischler (EUI)

Jasminka Rogic (ECRE)
July, 2013

274
KNOW RESET Country Profile: The Netherlands
Country Profile: The Netherlands

In October 2010 a new government was elected after a political crisis that saw several Ministers resign.
This election race resulted in a renewed discussion on migration and asylum policy and in particular, it led
to strengthened measures to curb immigration and asylum and to promote integration.
Between 2003 and 2007 the Netherlands saw a decrease in immigration. The reasons lay mostly in a
decrease in work opportunities, a decline in the number of asylum seekers and a decrease in the number of
Turkish and Moroccan immigrants, probably caused by strengthened conditions for family reunification.
Immigration subsequently rose again, growing from 101,000 in 2006 to 154,000 in 2010. This was largely
due to increasing numbers of migrant workers from within the EU and from Asia. Asylum applications rose
slightly in the period 2005-2009, and in 2008/2009 an increase could be observed in asylum seekers from
Somalia in particular, due to the categorical protection policy in place concerning Southern Somalia. 1
The 2010 Rutte-Verhagen Government Agreement established a more restrictive immigration and
asylum policy framework. In practice the current government is indeed placing a more pronounced
emphasis on effective integration and participation in society, which can also be observed in its selection of
refugees eligible for resettlement. All migrants would be expected to actively participate in society through
the knowledge of the Dutch language, in education and at work. Furthermore the government felt that the
examination requirements in the integration law should be raised.
In terms of asylum policy the 2010 Agreement stated a preference for the reception of asylum seekers in
the country or region of origin. Categorized protection (i.e. for asylum seekers from Iraq, Somalia) was
terminated including its legal basis. In September 2011 the Cabinet approved five proposals made by the
Minister for Immigration and Asylum Policy (Gerd Leers), aimed at achieving the more restrictive asylum
and migration policy framework set out in the Government Agreement.
This collection of measures is designed to achieve a more selective approach toward migration and the
harmonisation of asylum grounds. The Modern Migration Policy Bill was adopted on the 7th of July 2010,
and was meant to come into force on the 1st of January 2011. The government has stated that the starting
point for this modern asylum policy is selectivity, with the policy being favourable to those migrants who
are economically required and who are held to have made valuable contributions to make to the Dutch
economy or its culture. Since the 1st of July 2010 a new asylum procedure has been in place. The aim of
the new procedure is to achieve a faster and more careful completion of asylum applications.
The Netherlands has taken part in the resettlement of refugees for almost 40 years. A resettlement
programme has been in place since 1977. A specific quota appeared in 1984, which was increased from
250 to maximum 500 resettled refugees per year from 1987.
This number remains unaffected, with the current quota being set at 2000 resettled refugees for a fouryear period. Selection of refugees takes place both through selection missions and dossier selection. The
criteria for selection are generally consistent with those set down in article 29 of the Aliens Act, while
medical cases are also included. Furthermore the prospect of integration into Dutch society of the particular
refugee also plays a role in the selection process.
A new decentralized system for the reception of resettled refugees in the Netherlands became
operational in 2011. Refugees are now placed with various municipalities across the Netherlands
immediately upon their arrival without an initial reception centre as had been the case in the pre-2011
centralized reception system. Local authorities have taken over from the Central Organisation for the
Reception of Asylum Seekers (COA) the responsibility for meeting the reception and integration needs of
resettled refugees.
http://www.nationaalkompas.nl/bevolking/migratie/verleden/
275
Asylum Profile
status granted 2
6,828 (2011)
8,003 (2010)
14,631 (2011)
15,148 (2010)
Resettlement Scheme
Resettlement Quota
2000/4 years

Aliens Act 2000
(Vreemdelingenwet 2000)
Other basis of
resettlement:
Decree of the Minister of
Justice of 24 June 2010,
number WBV 2010/10,
amending
Vreemdelingencirculaire
2000, (under CY: 2.1.4.
Invited Refugees) 4
Decree of 19 May 2000,
concerning the transfer of
responsibility for the quota
policy for invited refugees 5
Letter of the Minister for
Immigration and Asylum
(19637, nr. 1390), 10
January 2011 6
Decision 07/02/2012, Policy
Framework
Resettlement
2012-2015 7
project/reform
No specific provisions concerning resettlement.
Sets out Dutch resettlement policy, including quota, selection procedure,

arrival and status given to resettled refugees.
Transfers responsibility for resettled refugees to the Minister of Justice
Sets out changes in the reception policy for resettled refugees. Resettled
refugees will henceforth be placed directly in the municipalities and will
no longer initially be placed in the central reception centre in Amersfoort.
The quota is established on a 4-yearly basis by the Minister for
Immigration, Integration and Asylum. The quota of 2000 resettled
refugees will be maintained for the period 2012 2015. Of these 400 will
be selected through selection missions and 100 will be selected through
individual UNHCR dossiers.
The Netherlands will continue to participate in resettlement, the quota
for 2012-2015 has maintained the same number as in 2008-2011. An
expansion of the current quota is unlikely to take place in the
foreseeable future.
Source: IND Information and Analysis Center (INDIAC), Immigration and Naturalisation Service.
Ibid.
https://zoek.officielebekendmakingen.nl/stcrt-2010-10228.html
http://wetten.overheid.nl/BWBR0011364/geldigheidsdatum_07-12-2009
https://zoek.officielebekendmakingen.nl/kst-19637-1390.html
http://tinyurl.com/78hvzz7
276

1977 1980
750 invited refugees and asylum seekers/year (approximately 200

asylum seekers expected and 550 refugees to be invited).
Since 1984 onwards
250 refugees/year
Subquotas:
Contingents: 200 (big groups from refugee camps)
Disabled persons: 40
Single persons in emergency situations: 10
1987 - 1998
Quota increased to 500 refugees/year

Subquotas:
Contingents: 200
1999 - 2007
Quota: Three-yearly quota of 1500 refugees (approximately 500 per year)

Subquotas:
Contingents and family reunification: 1200
2008 2011
Quota: Four-yearly quota of 2000 refugees

Subquota: 30 medical cases Refugees with medical needs and women at
risk are resettled through the Twenty or More programme.
2012 - 2015
Quota: Four-yearly quota of 2000 refugees
c) Temporary
Resettlement:
1999
4,062 ethnic Albanian refugees from Kosovo evacuated from camps in

Macedonia. 8

Governmental Level
Temporary Desk for Iraq
(2009)
Joint selection mission to Syria with Belgium in May 2009. Five

representatives from the Belgian CGRS and FEDASIL joined the Dutch
delegation. The mission was organised jointly between the Netherlands
and Belgium. A Dutch medic was responsible for the medical examination
of refugees that were being resettled in Belgium. In October 2009,
representatives from Bulgaria and Slovakia participated in a Dutch
mission to Syria as observers.
Mission with Belgium and

Luxembourg (2008)
Selection mission to Thailand. Belgium and Luxembourg were invited to

join the Netherlands on this mission in order to promote resettlement.
Durable Solutions in
Practice (2007/2008)
Belgium, Czech Republic,
Romania
Dutch selection mission to Thailand (with Belgium and Czech Republic,

2007) and Jordan (with Romania, 2008). Delegations from the three
countries joined the mission in order to watch and learn from the Dutch
selection missions. In the framework of Durable Solutions in Practice,
representatives from Belgium, the Czech Republic and Romania also
visited the Netherlands, where they were given a general overview of
Dutch resettlement policy, including quota and reception.
http://www.unhcr.org/refworld/country,,USCRI,,NLD,,3ae6a8cf4c,0.html
277

Transnational projects in which the Dutch Council for Refugees (DCfR) is

participating include Practical Cooperation for a European Resettlement
Network, ICMC Europe; ASPIRE project CCME (Assessing and
Strengthening Participation in Refugee Resettlement to Europe);
Promotion of resettlement in the EU through practical cooperation by EU
Member States and other stakeholders' and Linking-In EU resettlement',
both were IOM, UNHCR and ICMC projects.
University Assistance Fund (UAF) has recently implemented a three-year
pilot project Resettlement of Refugee Students, funded by the national
ERF programme, in partnership with the COA, Dutch Council for
Refugees, the UNHCR Bureau for Europe, and the Resettlement Unit at
the Immigration and Naturalisation Department (IND) of the Dutch
Ministry of Internal and Kingdom Affairs. The objective of this project was
to develop and test new approaches towards the integration of resettled
refugee students and develop a methodology for the integration of
refugee students. That methodology would be developed on the basis of
the experience of a pilot group of sixty resettled refugees arriving to the
Netherlands from 2009. UAF was in discussion with the IND on
possibilities to establish a private-public sponsorship scheme for resettled
refugees (inspired by the Canadian refugee sponsorship programme by
the World University Service), and increase the quota, but due to the
change of Government in early 2011, this was put on hold. The UAF also
started to engage with the ECRE core group on resettlement.
experience
From Guantanamo
The Netherlands accepted ex-detainee Shamil Khazhiev in 2007. He

sought political asylum in the Netherlands after having been transferred
back to Russia where he suffered harassment and abuse.
Intra-EU Relocation
Spain 2006: a Spanish boat picked up 51 migrants who were at sea

between Libya and Malta in July 2006. The Dutch resettlement quota is
generally not used for intra-Community transfer of refugees from other
EU countries, but in this case an emergency acute humanitarian situation
existed and the Netherlands decided to accept 5 refugees for
resettlement.
Malta 2005: Under a burden-sharing agreement between the Netherlands
and Malta, the Netherlands accepted 36 African refugees from Malta.

Refugees resettled
2011
556
Country of Origin: 2 Afghanistan, 97 Bhutan, 28 DR of Congo, 68 Eritrea,
64 Ethiopia, 74 Iraq, 126 Myanmar, 5 Somalia, 8 Sudan, 84 Other.
Special Categories: 47 Medical cases, 53
Unaccompanied minors, 43 Emergency Case.
Woman-at-risk,
10
Sub-Quota: 481 Selected mission, 69 Dossier selection, 6 Family

reunion.
2010
484
Country of Origin: 7 Afghanistan, 108 Bhutan, 12 DR of Congo, 69
Eritrea, 29 Ethiopia, 90 Iraq, 53 Myanmar, 1 Somalia, 115 Other.
Special Categories: 73 Medical cases, 49 Woman-at-risk, 2
Unaccompanied minors, 2 Regional protection program, 55
Emergency Case.
278

reunion.
401
2009
Country of Origin: 8 Afghanistan, 2 Bhutan, 1 Burundi, 4 Colombia, 13

DR of Congo, 20 Eritrea, 50 Ethiopia, 142 Iraq, 17 Somalia, 9 Sudan, 135
Other.
Special Categories: 62 Medical cases, 103 Women-at-risk, 8
Unaccompanied minors, 6 Regional protection program, 18 Emergency
Case.
reunion.
2008
544
Country of Origin: 111 Bhutan, 33 Burundi, 11 Colombia, 69 DR of
Congo, 20 Eritrea, 7 Ethiopia, 144 Iraq, 1 Somalia, 148 Other.
Special Categories: 68 Medical cases, 115 Women-at-risk, 3
Unaccompanied minors, 79 Regional protection program, 56
Emergency Case.
reunion.

Process Pre-Arrival
Phase
Selection criteria 9
UNHCR Criteria
Additional National
Criteria
Selection takes place based on recommendations by UNHCR. If UNHCR

recommends an alien who is registered as a refugee for resettlement in
the Netherlands, the Minister will decide if the alien is eligible for
residence in the Netherlands. The decision will be taken after
consultation with the Minister for Foreign Affairs and based on the file and
the current asylum policy.
All individuals will be assessed according to the UNHCR dossier
(including protection need) and country-specific asylum policy of the
Netherlands. This covers the Refugee Convention, including article 1 F,
the Aliens Act art 29(1)(a) and individual protection grounds art
29(1)(c)(b), the general official communications of the Minister of Foreign
Affairs and asylum policy concerning the country of origin of the refugee.
More emphasis will be placed on integration aspects of the resettlement
process than previously. This means that after assessment according to
art 29, the integration perspective will be investigated as a basis for
denial of the dossier. The dossier may be denied on this ground where
there are indications that integration of the relevant person in the
Netherlands would be difficult or undesirable.
The Netherlands like a balanced caseload and have asked UNHCR to
submit more high or higher profile refugees such as journalists or human
rights activists or persons who have an academic background who have
played an active social role.
279

Selection Process
Deploying Staff
n/a

Ministry of the Interior and Kingdom Relations, Ministry of Foreign Affairs,

Resettlement Unit of the Immigration and Naturalisation Department
(IND), and the Central Agency for the Reception of Asylum Seekers
(COA)
Resettlement policy 2012-2015: approximately 400 refugees will be
selected annually through selection missions and approximately 100
through individual UNHCR dossier selections.
Dossiers
Missions
Dossier selection & in-country selection (maximum four missions) based

on recommendations by UNHCR.
Selection missions are organised by the IND. Delegation consists of
representatives from the IND and the COA, and can also include
representatives from the Ministry of Foreign Affairs (MFA) and INS
medical doctors.
Refugees recommended by UNHCR are interviewed by the IND.
MFA is responsible for the registration of personal details and family
relations. IND makes final decisions on refugees to be resettled. The
decision is not subject to appeal. At the end of a mission, the head of the
delegation reports the results to the local UNHCR representative.
UNHCR communicates the decisions to the refugees concerned.
Medical cases are normally submitted during selection missions
although urgent medical cases can be submitted on a dossier basis.
The choice of mission destinations is established according to,
amongst other things, relevant developments in the multilateral
framework. This includes the priorities set by UNHCR to solve long-term
refugee situations, priorities concerning the urban refugee situations and
policy developments relating to priority areas for resettlement in the
Annual Tripartite Consultations on Resettlement and the Working Group
on Resettlement. The choice for destinations also forms part of the
general migration policy, which seeks links insofar as possible in the
broader bilateral cooperation with countries of origin amongst others for
the promotion of return. Resettlement is also seen as part of the policy
as laid down in the Government Agreement to strengthen refugee
protection in the regions of origin. Relevant developments at EU level in
the field of resettlement are also taken into account. Lastly, operational
issues and interests are also relevant in the selection of mission
destinations, including the security situation in the country of first asylum
and the safety of the staff that are to take part in the mission.
Selection missions were temporarily suspended from 1999 onwards.
These were resumed in 2005, as it had proved difficult to fulfil the quota
solely through dossier selection. The large number of rejections was
based amongst others on a lack of information provided by UNHCR in the
dossiers a lack of direct contact between UNHCR field officer and those
assessing the dossiers in the Netherlands. As a result of this failure to fulfil
the quota, the Government decided to take a more pro-active approach
and make use of selection missions again. It was thought that the use of
selection missions would enhance the gathering of necessary and relevant
information for a large group of people at once, instead of the previous
practice that made it difficult to establish a good picture of an individual
resettlement dossier. Furthermore, it was argued that the use of missions
would place the Netherlands more in line with the approach of European
partners. Lastly, selection missions were thought to contribute to the
government policy concerning protection in the region, as it would be
unacceptable for the Netherlands to ask countries in the regions of origin
280

to provide better protection to refugees if the Netherlands itself was unable
to maintain its resettlement programme. In the meantime, selection
through dossiers was also maintained to establish an optimal use of the
quota and to enhance flexibility 10.
IOM Netherlands initiated in 2010 the NLCO project (Dutch Cultural

Orientation Programme) aimed at providing pre-departure cultural
orientation training to refugees selected on dossier basis. Under the
NLCO II, the CO trainings have been extended to four days. Within the
framework of the NLCO project, IOM conducts also social intakes to
gather a profile of refugees (for example, education background,
expectations, language abilities etc.), which is shared with the
municipalities in advance of refugees arrival.
Other CO training sessions are offered by COA. Since the
introduction of a decentralised system for the reception of resettled
refugees in 2011, all CO training sessions take place in the predeparture stage. The frequency and duration of CO trainings have also
been extended; there are three trainings.
The sessions are spread over the period between time of selection
and time of arrival in the Netherlands, which is normally about 6 months.
Contents of CO training sessions: elementary Dutch language skills;
information about Dutch society; information about the municipality where
the refugees are going; and the future accommodation of the refugee.

documents
IOM NL
Medical screening
Medical checks are performed by medical doctors from the IND Medical
Advice Bureau (BMA).
Procedure Timing
For dossier submissions, it takes about six weeks to two months to make
a decision.
The 2011 resettled refugees were placed directly in the
municipalities. This took place within 6 months or, in emergency cases,
within 3 months. Resettled refugees receive their residence documents
immediately after arrival. The COA then transfers refugees to the
municipalities where the resettled refugees will be housed. 11
Comments
Capacity building is needed for municipalities in the light of the new

reception model that made municipalities responsible for the reception
and integration of resettled refugees.

Post-Arrival phase
Status granted
Decree of the Minister of
Justice of 24 June 2010,
number WBV 2010/10
concerning the amendment of
the Vreemdelingencirculaire
Residence permit asylum (refugee status same rights as refugees in

the Netherlands): After arrival in the Netherlands, the alien will be given
the option to apply for asylum. The alien will subsequently be given an
asylum residence permit for a specified period of time as soon as
possible on grounds of article 29, first section, subsection a.
10
Vluchtelingenbeleid, Brief van de Minister voor Vreemdelingenzaken en Integratie, 2 Juli 2004, 19 637 / Nr. 841
https://zoek.officielebekendmakingen.nl/kst-19637-841.pdf
11
https://zoek.officielebekendmakingen.nl/kst-19637-1390.html
281

2000, 2.1.4. Invited
Refugees 12
Resettled refugees are granted refugee status and a temporary

residence permit for asylum, which is valid for five years. After five years
they may apply for a permanent residence permit.
Rights granted
Residence
Residence permit is granted immediately on arrival.
Airport Arrival
Refugees stay for the first 48 hours at an airport facility during which time
they are guided by COA.
The DCfR is sometimes present for individuals arriving for family
reunification. The IOM offers practical assistance.
Info upon arrival
Programme (Housing,
health, education)
In the municipalities information is provided by mostly DCfR or another

organisation that provides social guidance.
This is mainly done by means of information provision through local
media in advance of refugees arrival to a municipality. DCfR (together
with the municipality) also informs the relevant stakeholders (like schools,
family doctors, social services, etc)
All municipalities are obliged to provide housing to resettled refugees and
are responsible (since 2011) for the reception and integration of resettled
refugees.
Municipalities can put a number of integration support services out to
public tender.
Part of the integration programme consists of the social guidance
programme, which is implemented in the vast majority of cases by the
volunteers of local DCfR offices that are contracted by municipalities to
implement the programme. There is a countrywide network of over 6,000
volunteers.
Social guidance is concerned with assisting refugees with many
practical aspects of life in a new country including help to create social
networks and accessing mainstream services (education, employment,
health care). In general, social guidance supports the process of
refugees integration.
During the integration programme (in general one to two years
duration), refugees are entitled to social security allowance. Refugees
have to pass the integration exam within three and a half years.
Cultural orientation is part of the above described integration programme.
Counselling
Psycho-social counselling can be arranged by municipalities, often in

cooperation with DCfR and the NGO Pharos.
All refugees (and most non-EU nationals) are obliged to pass an

integration exam. Municipalities are obliged to offer refugees a civic
integration programme, consisting of Dutch language courses, knowledge
of Dutch society and vocational training, offered by a municipality
(through service contracts). Municipalities are encouraged to offer dual
programmes, combination of education and work. Alternatively, an
intensive Dutch language course at an educational institute can be
offered, particularly for refugees who wish to access higher education
studies. UAF cooperates with municipalities with regard to negotiating
joint arrangements for refugees education pathways.
Municipalities civic integration programme is complemented by DCfR
volunteer (home) language coaches who offer additional language
training for refugees.
12
282

Employment
The municipalities are responsible for employment, but specialised

assistance can be provided by DCfR and UAF.
This is subject to an application, which has to be introduced within three
months. For the purposes of family reunion, spouses and minor children
(under 18) are considered family members. After three months, family
reunion can still be considered but not within the resettlement quota. In
this case, the regular Dutch criteria for family reunification applies. Family
reunification with non-marital partners or adult children is also possible,
but only if they are dependants of the person who was granted asylum.
For unaccompanied minor refugees, family reunion with parents is
possible. In order to be considered for family reunification, family
members need to be known to UNHCR at the moment of selection of the
main applicant and be included in the original documentation submitted to
UNHCR. DCfR assists refugees with family reunion procedures.
Advice of Accessing
Services
Provided by DCfR volunteers as part of the social guidance programme.
Mentoring
DCfR and UAF

providers
Limited training services by DCfR and UAF. Pharos offers training

(health-related) to DCFR volunteers.
Volunteer support
DCfR
Housing
Independent housing is provided by municipalities receiving resettled

refugees. Housing arrangements are made between COA and
municipalities. Refugees cannot choose where they want to live if they
wish to make use of social housing.
Comments
Pharos offers health care information and advisory services to assist care
providers, teachers and other professionals who work for and with
refugees, asylum seekers, undocumented migrants and other migrants.
From 2011 onward the municipalities will play a greater role in the
reception of resettled refugees as reception in the central reception
centre Amersfoort will no longer take place.
Integration aspects are more emphasized in the 2012 - 2015 policy
framework than before.
Changes concerning reception procedure (directly in the
municipalities) are in place and had to be evaluated in late 2012 by the
WODC (Scientific Research and Documentation Centre Ministry of
Security and Justice).
Gaps & challenges:
On the whole, the decentralised reception system introduced last
year has necessitated a closer and intensified cooperation
between NGOs and municipalities but have also created gaps and
new challenges.
Dispersal policy presents an obstacle for an effective transfer of

COA and DCfR experiences and best practices in resettlement to
the municipalities.
Disparity between refugees needs and the availability of local

facilities to support those needs continues to exist. Although
improvements have been observed in this respect, refugees
continue to be placed mostly in small towns and villages, which is
not conducive to their integration due to the limited facilities to
promote integration.
Social guidance of resettled refugees is more intensive than the

guidance of other groups of refugees but this is not reflected in the
funding that the central government allocates to each municipality
receiving resettled refugees. Specialised social guidance of
resettled refugees is not available in all municipalities whilst the
283

quality and duration of available guidance varies depending on the
level of funding and/or the type of provider that municipalities are
free to sub-contract to deliver social support.
Implementation of obligatory integration programmes in general

varies across municipalities reflecting local governments own local
demands and policy focus resulting in different institutional and
administrative structures, and language and civic integration
courses provision. This has an effect on the extent to which
arrangements can be made for educational and employment paths
designed to accommodate refugees individual needs.
Significant gaps have been identified in the provision of healthrelated information in both pre-departure and post-arrival phases.
In addition, there is the lack of provision of health care services
and psycho-social support in the period immediately after refugees
arrival. In the previous centralised reception system, health-related
support was organised and immediately available to refugees in
the specialised reception centre, but this, as yet, is lacking in the
new decentralised reception model.
Refugees are expected to integrate and achieve self-sufficiency

quickly; however the current governments policies and inconsistent
support services in municipalities are on the whole not satisfactory to
ensure more successful outcomes for resettled refugees.
Current political and economic environment in the Netherlands is

not favourable to the advocacy of NGOs calling for an expansion of
the Dutch resettlement programme.
Recommendations:
Multi-stakeholder networks should be established at the local level
to deliver joined-up services that meet the reception and
integration needs of resettled refugees and the current stakeholder
base be widened to include refugee community organisations, local
voluntary organisations, medical professionals, mayors of the
municipalities which are receiving resettled refugees, local
churches and religious communities.
284
Health-related information provision for refugees during both predeparture and post-arrival stages needs to improve. Local health care
providers need to be informed about specific health and psychosocial
needs of resettled refugees and their experiences. Municipalities and
NGOs supporting refugees need to establish effective referral routes
for primary and preventative healthcare for refugees.
Housing arrangements between the COA and the municipalities

receiving resettled refugees should take place in consultations with
NGOs and be based on the availability of integration facilities that
match specific needs of the individual refugee. Better services
could be provided and more involvement of stakeholders could be
achieved if resettled refugees would be placed in groups in middle
sizes towns.
More effective linkages between different

resettlement process need to be created.
Planning and the quality of integration programmes could be

improved by creating awareness about a variety of needs specific
to the experiences of resettled refugees.
Resettled refugees own views and experiences need to be taken

into account when planning and implementing integration
programmes and resettlement practices in general. It is suggested
that current stakeholders consider the potential role that resettled
refugees could have in the facilitation of the resettlement process.
phases
of
the
Sources of funding for resettlement need to be diversified and

there should be an adequate structural base for funding
municipalities so that they can allocate sufficient funds to local
NGOs or funding for NGOs needs to be allocated directly from the
central government to NGOs.
Effectiveness of the extensive pre-departure CO training sessions

and the value of large volumes of information in the pre-departure
stage need to be reviewed.

Funding
National Level
ERF
The Dutch resettlement programme is financed from the budget of the

Ministry of the Interior, including the funds that are available to the
Immigration and Naturalisation Service and the Central Body for the
Reception of Asylum Seekers.
The Netherlands also makes use of the European Refugee Funds funds
available for resettlement.
Grant to COA: reception of resettled refugees (2008): 107.852
Costs
13
COA (Central Body for the Reception of Asylum Seekers) is granted a

budget of 250,000/year per resettled refugee by Minister Leers
(reception of resettled refugees in the municipalities).
The central government has recently made additional funding to
municipalities for guidance of resettled refugees but this is currently
only a temporary measure covering the period of two years: An
additional 2 million was set aside in September 2011 for the
municipalities who will be receiving resettled refugees. An additional
1,000 is made available for a minor.
Approximately 1,000 will be given to the municipalities per adult
refugee for the provision of support. For the first arrivals under the new
model (placement directly in the municipalities) a one-time grant of
2,000 per adult and 1,000 per minor is available 14.
Comments
The Netherlands will maintain the 4-yearly quota of 2000 resettled

refugees (500/year) for the foreseeable future.
At EU-level the Netherlands supports the proposal for a European
resettlement programme emphasizing strategic resettlement. The
Netherlands also support an increase of the number of EU-member
states participating in the UN resettlement programme and will continue
to promote this as it has done in the past. The current government
supports the continuance of the resettlement programme and especially
the strategic use of resettlement.
The public is not very aware about the countrys resettlement
programme and what resettlement entails. Interviewed actors thought
that those who do know about resettlement view it positively. This is in
contrast to the public predominantly negative attitudes towards asylum
13
http://www.rijksoverheid.nl/documenten-en-publicaties/vergaderstukken/2010/08/03/toegekende-subsidies-europeesvluchtelingenfonds-2008-tot-en-met-2010.html
14
https://docs.google.com/viewer?a=v&q=cache:6v9xRhHyEycJ:www.rijksoverheid.nl/bestanden/documenten-enpublicaties/kamerstukken/2012/03/13/kamerbrief-over-directe-plaatsing-uitgenodigde-vluchtelingen-ingemeenten/kamerbrief-over-directe-plaatsing-uitgenodigde-vluchtelingen-ingemeenten.pdf+&hl=en&pid=bl&srcid=ADGEESg03dcKYaKbv5zmcFtHaJF_YZ4LI97Sumwgzb73rQ2PeS90ka1MF4a1CGEgToq9sF_Ef-HQFFPt1PqThzjjGTk4BaQysuGcpRrVpaz5_GnnOQSGgsRKrd8pFXibPrr7rDTyo&sig=AHIEtbRnyI3af5i_Nuvy6F8twd0A8eJLMA&pli=1
285

and immigration in general. There is no mass media attention on
resettlement since the numbers of resettled refugees are low. Media
coverage is found primarily in local newspapers and community
newsletters when, for instance, a group of resettled refugees arrives to a
municipality. Opinions on the role of media differed. Some were of the
view that there should be more media attention to inform the public about
resettlement and that raising awareness about this group of refugees has
the potential to also increase public awareness of refugee issues in
general. On the other hand, doubts were raised that more awareness
might actually have a negative impact. Non-compulsory programmes, as
resettlement is, might be viewed by the public as an economic burden
and as a result be affected by the current budget cuts by the Dutch
government. Any discussions and media attention on resettlement need
to make sure that right messages and information is provided to the
general public, making clear distinctions between resettlement (and what
exactly it involves) and other mechanisms for the protection of refugees.
Both the protection and durable solution aspects of resettlement need to
be clearly explained.
286


United Kingdom
Report written by
Nadine El-Enany (EUI)

Jeremy Bernhaut (ECRE)
July, 2013

287
KNOW RESET Country Profile: United Kingdom
Country Profile: UNITED KINGDOM

The UK has been a Member State of the European Union since 1973. It does not participate in the
Schengen area and has a flexible opt-in to EU asylum and immigration law and policy. Despite opting into
the first round of asylum directives, in recent years, the United Kingdom has favoured practical cooperation
as a means of collaborating on asylum matters. With the recent opt out of the recast EU asylum directives,
UK officials have expressed a preference for more informal frameworks of information sharing, rejecting
new binding legal frameworks. The UK prefers cooperation frameworks, which safeguard its discretion and
determine the form and content of its domestic asylum provisions. This may be one reason why the UK is
keen on continuing its commitment to resettling refugees.
Between the end of the second World War and 2004, the UK had a variety of commitments in
resettlement. The Ten or More (T-O-M) Programme set up in the 1970s aimed to annually resettle ten or
more disabled refugees or refugees in need of medical attention. During the 1970s, refugees such as the
Ugandan Asians, the Chileans and the Vietnamese were protected through ad hoc, collective resettlement
schemes instigated by a discretionary response from the Home Office. Indeed, for many years, the UK
preferred to resettle refugees on an ad hoc basis, responding to emergency situations, rather than put in
place a formal asylum procedure for spontaneously arriving individuals.
The treatment and reception of the individual, spontaneously arriving, asylum seeker in the 1980s
differed from the collective refugee resettlement undertaken in Britain in the 1970s. While the Ugandan
Asians, Chileans and Vietnamese had been treated as groups and received into structured programmes set
up specifically for them, asylum seekers arriving in the UK in the 1980s had their claims treated on an
individual basis and this soon became the norm. Thus, the old quota system, where Britain would control
the arrival and resettlement of pre-determined refugees on its territory went into decline.
In the 1980s the UK government began to present the increase in number of asylum seekers as a
distinct problem requiring resolution by the introduction of new policies to expedite the processing of claims,
to prevent and deter people from claiming asylum in the United Kingdom and to ensure that unsuccessful
1
applicants are removed quickly'. In the face of increasing claims, the government has repeatedly sought
extensive legislative and rule-making powers in order to manage asylum. 2
In 2000, the UK Home Secretary Jack Straw, proposed an EU-wide programme, which would have the
capacity to impact on the number of asylum seekers arriving in Europe. In 2002, the UK government
published a white paper Safe Borders, Safe Haven proposing reforms to the UK's immigration system.
This included provisions to develop a quota resettlement programme in order for vulnerable refugees to
have a legal and safe route to the UK avoiding the unacceptable risks involved in travelling with traffickers.
Today, the United Kingdom is categorised as a resettlement country, operating a resettlement
programme, the Gateway Protection Programme (GPP), with an annual resettlement quota, determined
each year, of up to 750. The Gateway Protection Programme began in 2004 with Liberians resettled from
camps in Sierra Leone who were soon followed by Congolese resettled from camps in Uganda. It initially
had a quota of 500 refugees although in the early years the actual numbers resettled fell short of the
quota due to a reluctance amongst Local Authorities to form the local political agreement required for them
to sign up to the scheme.
The GPP is entirely separate from the asylum procedure applicable to individuals arriving
spontaneously and claiming asylum in the UK or at the border. The Programme is run by the UK Border
Agency (UKBA) in cooperation with the United Nations High Commissioner for Refugees (UNHCR).
Beside the GPP, the UK operates the Mandate Resettlement Scheme, which allows a number of
refugees with a prior personal connection to the UK to enter the country in a resettlement-like way. The
Immigration Rules do not provide for the possibility of a person who is overseas to be granted entry to the
UK as a refugee. However, for the UKs Mandate Resettlement Programme, the UK does examine
individual applications by refugees to see whether there is a case for admitting such a refugee to the UK
3
outside the Rules.
R. Thomas, The impact of judicial review on asylum Public Law 2003, Autumn, p. 483.
Ibid.
UK Border Agency, Asylum Policy Instructions on Mandate refugees, p. 3 Available at

http://www.ukba.homeoffice.gov.uk/sitecontent/documents/policyandlaw/asylumpolicyinstructions/apis/manadaterefu
gees.pdf?view=Binary
288

The legal basis for the funding of these programmes is contained in Section 59 of the Nationality
Immigration and Asylum Act 2002.
Refugees selected for the GPP are currently being identified largely from the Regional Protection
Programme areas the majority in the financial year April 2011 to April 2012 being Somalis and Ethiopians
resettled from camps in Kenya. This has the impact of directly addressing regions that have the greatest need
for resettlement while also attracting a greater degree of funding from the European Refugee Fund at a time
when the UK government is implementing austerity programmes in attempt to reduce its budget deficit.
289
Asylum Profile
5,648 (2011)
4,309 (Refugee status)
1,339 (Other protection status)
status granted 4
5,195 (2010)
3,488 (Refugee status)
1,707 (Other protection status)
19,804 (2011)
17,916 (2010)
Resettlement Scheme
Resettlement Quota
750/year

The Nationality, Immigration
and Asylum Act 2002
Section 59 International projects
No
project/reform
The resettlement programmes run as three year cycles and are

determined in connection with the annual fiscal budget. At present, the
current government is continuing its resettlement practice in line with
established practice and no evolution is planned.

1940 50
210,000 Polish Second World War exiles and dependants,
1957
20,000 Hungarians fleeing Soviet occupation,
1972-4
42,000 Ugandan Asians expelled from Uganda,
1973-9
3000 Chilean refugees escaping a military coup,
1979-92
22,500 Vietnamese displaced persons,
Early 1990s
Over 2,500 Bosnians,
1999
Over 4,000 Kosovans, most receiving temporary status.
2004-2007
Yearly Quota: 500 refugees
Source: UK Border Agency, Home Office.
Ibid.
Available at http://www.icar.org.uk/briefing_resettlement.pdf
290

Since 2007
Yearly Quota: 750 refugees

Up to 750 refugees may be resettled under the GPP annually. This
quota is set each year by Government ministers, who taking into
consideration available resources, the need for resettlement globally
and the impact on services at a local level in the UK. 7
For the 2011 GPP, regional allocation targets were as follows:
Africa: 500
Asia: 100
MENA: 150
There are no specific sub-quotas for medical cases, but the UK has
asked the UNHCR to submit 3% of such cases. For women at risk,
again there is no specific sub-quota, but the UK aims to consider at
least 10% of such applications.
It is not current UK policy to support resettlement in emergency
situations. 8 However, provision was made for up to 40 cases through
the ETC in Romania in 2011-2012.
There is no specific quota for family reunification, but the dossierbased Mandate Resettlement Programme aims to resettle refugees with
close family ties from across the world. There is no upper limit for the
Mandate Scheme, but this is a much smaller programme than the
Gateway Protection Programme.
c) Temporary
Resettlement:
Not applicable

- Governmental Level
2008
Transnational programme concerning reception and resettlement. UK

and Ireland carried out a joint selection mission to Tanzania to select
DRC refugees with Belgium (CGRS), Bulgaria and Slovenia as
observers.
On-going
A twinning arrangement with Poland is in its early stages. 9
- Non-Governmental Level
n/a
experience
From Guantanamo
n/a
Intra-EU Relocation
In the past, the UK has relocated 10 refugees from Malta. However, at

present, the UK coalition governments policy is not to support
relocation of refugees within the EU.
Comments
A consistent problem is that the quota of 750 under the GPP has not
been filled. The 750 quota was achieved for the first time in 2011/12. 10
The UNHCR considers that a particular strength of the UKs
resettlement programme is that it resettles a large proportion of women
at risk, above the number UNHCR suggests, a group that is considered
of particular concern by the UK authorities. 11
UK Asylum Policy Instructions on the Gateway Protection Programme (January 2006), p. 2.
Interview with Dave Atkinson, UK Borders Agency, Refugee Team (May 2012).
Ibid.
10
Ibid.
11
Interview with Alexander de Chalus, UNHCR (May 2012).

291

Selection of refugees with medical needs is limited, due mainly to the
requirement that the relevant local authority cover the costs of services,
including healthcare, for the first 12 months.

2011
432
Country of origin: DR of Congo (119), Ethiopia (145), Iraq (75), Somali
(93).
Country of first asylum: Kenya (197), Rwanda (119), Syria (75), Yemen
(41).
Gender: Male (195), Female (237).
Age: Under 18 (224), Over 18 (208)
2010
669
Country of origin: Bhutan (111), Burma-Rohingya (47), DR of Congo
(100), Ethiopia (32), Iraq (207), Somali (172).
Country of first asylum: Bangladesh (47), Jordan (207), Kenya (204),
Nepal (111), Uganda (100).
Age: Under 18 (265), Over 18 (404)
2009
857
Country of origin: Burma-Karen (5), Burma-Rohingya (109), DR of
Congo (120), Iraq (542), Palestine (81).
Country of first asylum: Bangladesh (109), Iraq (81), Jordan (517), Syria
(25), Tanzania (120), Thailand (5).
Age: Under 18 (375), Over 18 (482)
2008
642
Country of origin: Burma-Karen (29), Burma-Rohingya (34), DR of
Congo (141), Ethiopia (202), Iraq (236).
Country of first asylum: Bangladesh (34), Jordan (224), Kenya (202),
Syria (12), Thailand (29), Zambia (141).
Age: Under 18 (278), Over 18 (364).

Process Pre-Arrival
Phase
Selection criteria
12
UNHCR Criteria
The UK authorities state that selection of refugees to resettle is based

initially on UNHCRs annual Projected Global Resettlement Needs.
However, UK government departments are consulted and affordability
The following numbers of resettled persons are January to January while the UK records its resettlement quota within
the 'Financial Year' which runs from April to April.
292

is taken into account. The main target groups are those where UNHCR
Priority Need coincides with those countries designated by the EU for
the implementation of a Regional Protection Programme (RPP).
Additional National
Criteria
The UK is also particularly concerned to resettle a number of

Women and children at risk as part of each years quota. A very
small number of individuals with intensive medical needs are also
considered as a priority. 13
Detailed selection criteria pertaining to GPP is found in the asylum
policy instructions, which comprise the governments policy on asylum
and are to be followed by UKBA case workers. These asylum policy
instructions for the GPP have not however been updated since 2006
and are considered by the UNHCR to be outdated. They are produced
by the UK, which is responsible for updating them. 14
Case owners should generally accept UNHCRs designation of
individuals as refugees, unless there are good reasons not to, including
where there are inconsistencies within the information contained in the
UNHCR Resettlement Referral Form (RRF) or between information
provided by the applicant and known country information, or where
information provided by the application in relation to another of the
selection criteria suggests the applicants account of events is untrue. 15
An applicant is to be considered in need of resettlement, according
to UNHCR criteria: where his/her life, liberty, safety, health or other
fundamental human rights are at risk in the country where s/he has
sought refuge, or to provide a durable solution if the applicants situation
is not secure in the long term. 16
Where the exclusion provisions of the 1951 Refugee Convention apply
to an applicant, s/he is to be excluded from the GPP. 17
The spouse or civil partner of a principal applicant and any children
under 18 will usually be considered dependants. Unmarried partners
may be considered for resettlement where they have been living
together as a couple for at least two years or can provide strong
evidence that the relationship is genuine, they intend to live together
permanently, and any previous marriage of either party has
permanently broken down. 18 Optional DNA tests may be requested by
caseworkers who are in doubt about a relationship between a principal
applicant and a child dependant. 19 Non-immediate family members may
be considered as dependants where they are part of a pre-existing
family group. 20
According to the asylum policy instructions, [r]esettlement should
not be offered when, in the opinion of the medical examiner, the
individual has a disease or illness, which, for the individuals own
health, or for public health reasons, currently precludes travel, or
requires treatment before travel. Further: Resettlement should not be
offered to applicants, or dependants, with HIV/AIDS, Multi-DrugResistant-TB, or established renal failure without Ministerial consent.
Resettlement may not be offered where the applicant, or a dependant,
has a different medical condition which constitutes a danger to public
health or a disproportionate cost to the GPP. Decisions in these cases
13
Interview with Dave Atkinson, op.cit.
14
Interview with Alexander de Chalus, op.cit.
15
UK Border Agency, Asylum Policy Instructions on Mandate Refugees, op.cit. p. 3
16
Ibid.
17
Ibid., 4.
18
Ibid., 8.
19
Ibid.
20
Ibid., 9.
293

should be referred to ministers unless the applicant or dependant
concerned [is excluded on the basis of other criteria]. 21
Mandate refugees are usually nominated for resettlement by
UNHCR. To qualify for the Mandate Refugee Programme, the mandate
refugee must satisfy two conditions. First, the UK must be the most
appropriate resettlement country. Relevant factors are the applicants
integration potential, living conditions, whether the refugee has physical
protection needs and whether s/he has close relatives residing in other
countries. Second, the mandate refugee must have close ties with the
UK, in particular close family members. The applicants historical links
with the UK may however be considered, such as whether time was
spent in the UK as a student. 22
Selection Process
Deploying Staff

n/a
Under the GPP, applications for resettlement are lodged with the
UNHCR and are then referred to the Border Agency. Applications
cannot be made directly to the UKBA, at UK embassies or through
other international organisations and, according to the Border Agency,
[a]pplications are assessed individually on their merits. 23 The Refugee
Team in the Asylum Casework Directorate of the UK Home Office is
responsible for overseeing and managing the GPP.
As for Mandate Refugees, the British Red Cross (BRC) administers
the referrals on behalf of UNHCR. Applications by mandate refugees
may also be made at a post abroad. The BRC refer resettlement
applications to the Refugee Resettlement Programmes Unit (RRPU). A
casework team within the unit deals with these applications. 24
Only mandate refugees may be resettled under the Mandate
Refugee Programme, i.e individuals who have been granted refugee
status by UNHCR. Applications are made at UNHCR and, if they pass
the first screening, are referred to the UKBA, which makes the final
decision. Applications can be lodged at the British embassy where there
is no UNHCR office in the host country.
Missions
All applicants are interviewed by UK Home Office officials. 25 A Pre

Mission Questionnaire is sent to the appropriate UNHCR hub.
Submissions are then received from UNHCR. The Border Agency then
agrees on the refugees to be interviewed. The mission is carried out
and Principal Applicants and dependents over 12 are interviewed.
Biometrics are taken and cases are considered, including a security
screening and the assessment of the cost of medical needs. Agreement
is obtained from Ministers for certain cases. Cases are then decided
and UNHCR is informed. Refugees are met by integration providers and
a twelve month support package commences. 26
Dossiers
Some cases are considered on dossier. In future, some interviews

may be conducted using remote video conferencing facilities. 27
21
UK Asylum Policy Instructions on the GPP, op.cit. 10.
22
Fahamu Refugee Legal Aid, Resettlement to the United Kingdom, Available at http://www.frlan.org/node/293 (Last
visited 31 May 2012).
23
UK Border Agency, Gateway Protection Programme. Available at

http://www.ukba.homeoffice.gov.uk/asylum/gateway/ (Last visited 13 January 12)
24
UK Border Agency, Asylum Policy Instructions on Mandate refugees, op.cit. p. 3
25
Ibid.
26
27I
bid.
294

By UK mission staff to refugees explaining the travel, reception and

initial integration arrangements. In previous years, a Cultural Orientation
training programme was delivered to the refugees by IOM shortly before
departing. Since 2011, a shorter 1 day programme has been delivered
by staff from the Refugee Resettlement Unit at the UK Border Agency.
It includes video interviews with refugees previously resettled through
the programme in which they talk about their experiences of resettling
and advice they have for new arrivals. Although UK officials believe that
more intensive and/or follow up Cultural Orientation closer to the time of
the refugees departure would be helpful, they state that it is not
presently affordable. 28

documents
IOM
Medical screening
Medical screening is carried out by the IOM within set deadlines prior to
departure. It includes a detailed medical history and physical
examination of each individual and additional investigations for health
conditions specified by UKBA. IOM are also contracted to provide follow
up treatment for certain health conditions (such as TB) as well as
testing and counselling for HIV. IOM also provide pre-embarkation
health assessments shortly before departure and provide UKBA with a
review of each refugees immunisation history and record of
administration of vaccines.
This assessment also covers individual special needs for transport
such as the need for a medical escort which would then need approval
from UKBA.
Procedure Timing
The procedure begins with the publication of the Global Needs in the
summer of each year. The UK Border Agency meets with UNHCR as
soon as practicable after this in order to begin discussions about which
refugees are to be resettled in the following programme year (AprilMarch in line with the UK financial year). There follows crossgovernment consultation and Ministerial approval of UK Border Agency
proposals. There is no strict timing, but the Border Agency attempts to
implement the steps of the procedure as speedily as possible. The
timing of the programme is arranged after consultation with relevant
UNHCR hubs.
In general, the Border Agency seeks submissions from UNHCR two
months before missions take place. Security and medical screening
commences as soon as possible. It is the UK Border Agencys
preference that this takes place before missions. Refugees generally
arrive in the UK from about two months after the Border Agency officials
return from mission - Local Authorities generally require two months
notice in order to be able to secure suitable accommodation. 29

Post-Arrival phase
Status granted
28
Ibid.
29
Ibid.
All refugees resettled under the GPP are recognised as refugees. All
Gateway refugees are resettled in a particular region with the
agreement of the relevant local authority beforehand. Being recognised
as refugees, they are entitled to use the same services that UK citizens
can access. NGOs and in some areas, specialist teams within Local
Authorities are contracted to provide integration services that include
assisting the refugees with accessing local services.
295

Rights granted
Residence
Resettled refugees are automatically granted indefinite leave to remain.

This status provides better legal protection than the status granted to incountry refugees, whose status is reviewed after a period of 5 years
before indefinite leave to remain may be granted. This reflects the fact
that resettled refugees have spent long and protracted periods of time
in refugee camps before their arrival in the UK.
Airport Arrival
All resettled refugees are escorted by IOM as far as an airside arrivals

hall at Manchester Airport. Here the refugees are 'handed over' to a
small team from one of the three NGOs - Refugee Action, Horton
Housing Association and the Refugee Council - who currently provide
reception and post arrival integration support services as part of the
resettlement programme. The British Red Cross had recently been
involved in integration support for resettled refugees but this is no
longer the case. Refugees then board coaches to the relevant
resettlement area where a cash allowance is administered to them
before they access their accommodation.
Info upon arrival
A brief welcome speech, introduction to the team and overview of the

support is covered at an arrival venue prior to the refugees departing for
their accommodation (usually in cars containing each family or
household unit).
Upon arriving at their accommodation, staff from that
accommodation carry out a health and safety briefing, mainly focussing
on equipment in the house.
Work to prepare local communities has decreased in recent years as

less funding per refugee has been available to post arrival services.
Some providers approach refugees neighbours before they arrive to
explain people will be moving in and give a very basic background to
the programme.
Community Development Workers contact relevant community
groups such as RCOs (Refugee Community Organisations) prior to a
group arriving.
Programme (Housing,
health, education)
Refugee Action and Refugee Council caseworkers use a holistic needs

assessment and action planning tool called a Personal Integration Plan
with each individual adult refugee. It covers a range of broad headings
including housing, finance, health, education, employment, relationships
and legal. Caseworkers work with the individual refugee to establish
their background before helping them decide on realistic hopes for the
future and building a plan of how those hopes can be realised. Horton
Housing caseworkers use a similar tool that assesses needs and risks,
identifies goals and plans tasks.
In 2011, the number of refugees supported by each caseworker
increased as less funding per refugee was available to integration
support services. The result was the amount of work each caseworker
was able to carry out with each refugee has correspondingly decreased.
In 2011, a cash allowance administered to the refugees upon arrival
was reduced to 50 per person. After discussions at the Gateway
Forum (see below) on the impact that the reduced cash allowance was
having on newly arrived refugees, the cash allowance was increased to
150 per person from January 2013 onward.
296
The 3 integration providers deliver planned group work sessions.

Cultural orientation can also be carried out on a 1-to-1 or household
basis by caseworkers as part of the tailored support provided to
each refugee.

Counselling
Some aspects of the 1-to-1 casework support provided by caseworkers

can be similar to elements of counselling in that they provide a personcentred, therapeutic service. While working on the Health and
Wellbeing element of the Personal Integration Plan, a caseworker and
client may establish that the client requires further support with their
mental health. This could lead to the caseworker supporting the client to
request additional support through their allocated GP [doctor]. Referrals
can be made to a range of statutory or voluntary providers of
counselling and related mental health support services. These include
Freedom From Torture which is an NGO that specialises in counselling
for survivors of torture and trains counselling services to become
equipped in delivering services to survivors of torture.
One of the clearest gaps in the current Gateway Programme is a lack

of funded English for Speakers of Other Languages (ESOL) courses.
In previous programmes, ESOL was funded as part of the
resettlement programme but this has not happened since the
tendering exercise in 2011.
Refugees supported by Horton Housing access English classes at
their training centre which are largely funded from outside of the
resettlement programme. In some Local Authorities, adult education
services have funded ESOL courses but this is not consistent across all
areas. Some refugees have accessed ESOL through referrals made by
their benefit provider and others are able to access mainstream courses
which they pay for using their benefit money. However, there have been
government funding cuts to mainstream ESOL classes which are now
only funded for people in receipt of certain benefits and many recently
resettled refugees have not been able to access any kind of English
language learning. This is particularly the case for parents with childcare
responsibilities and those who arrive after the start of the academic year
in September. As of April 2012, 140 of the adult refugees who had been
resettled in North West England after October 2011 were not accessing
any kind of English classes. This equates to somewhere between 55%
and 60% of the adult refugees resettled in this time.
Employment
As part of the Personal Integration Planning process, caseworkers

identify support that individual refugees require with accessing
employment and referrals can be made to mainstream employment
support services. Support with employment can also be provided by the
caseworker directly or a separate internal project wherever relevant.
Different providers have devised their own distinct projects for
supporting refugees in accessing employment.
Refugee Action carries out an employment assessment with each
adult shortly after arrival and this helps inform what support they might
require.
Some refugees have been referred to work placements in order for
them to obtain UK work experience with organisations like Manpower
a recruitment company that is a global partner of UNHCR.
Both Refugee Action and the Refugee Council previously had
specialist employment workers who made links with local employers
and attempted to strategically break down the barriers to refugees
entering employment. These roles are not currently part of the models
operated by either NGO - having been cut in the recent tendering
exercise as a result of reduced funding per refugee.
The UK government has a policy of allowing applications for

reunification with spouses and dependent children. Usually the refugees
are expected to disclose family members who this may apply to during
their selection interview and this information then appears amongst the
information that the NGO receives before the refugees arrive. Their
caseworker follows this up with the refugee after arrival when working
297

on the legal section of their Personal Integration Plan. From April 2013,
UK government Legal Aid Funding is no longer available for advice on
family reunion. Refugees now either need to submit applications without
advice, pay for advice or access limited support from a charity usually
with a long waiting list.
Advice of Accessing
Services
Caseworkers help the refugees understand their relationships with

services how to access them as well as what their rights and
responsibilities are.
Mentoring
Mentoring is not a standard part of the resettlement programme in the

UK. Although it is used by some providers.
In Norwich, the Red Cross previously referred resettled refugees into
a mentoring service that was funded from outside of the resettlement
programme and also catered for other refugees and asylum seekers.
The Refugee Action resettlement programme uses a mentoring
system that it has developed over many years (during times when
funding was available for the mentoring of asylum seekers and refugees
granted asylum after arriving in the UK). It currently focuses on
matching refugees to mentors who are experienced in a field of work
that the refugee has identified they would like to access.

providers
Volunteer support
The current funding available to integration services is not sufficient to

allow for the delivery of much training to local services.
Volunteers are used in a variety of roles across the different providers.
Arrivals Volunteers assist the refugees with intensive support during
their first week in the UK.
ESOL Volunteers work directly with the refugees to help them
achieve specific learning goals identified by the refugee with help from
their caseworker.
Volunteer Advocates assist refugees with attending appointments
and accessing services providers.
Housing
All refugees resettled through the Gateway Programme are directly

accommodated in mainstream housing immediately after arrival. The
UKBA provide anonymous information about cases to the relevant body
funded to source accommodation at least 6 weeks prior to arrival. (The
information includes ages, genders, familial relationships within the
case, links to other cases and any specific needs such as those relating
to a disability.) Appropriate accommodation is then sourced for each
case. The addresses are shared with other relevant bodies such as the
NGO who will accompany the case to their address upon arrival and the
local Primary Care Trust who will then allocate a nearby doctors
surgery. Accommodation for resettled refugees is sourced in different
ways in different Local Authorities. Some procure social housing from
housing associations others source from the private sector and often
a mix of private and social housing is used.
The models vary slightly across the country with the housing being
permanent in some cases and temporary for up to around a year in
others. Where housing is temporary, support with finding permanent
accommodation and moving on is also provided.
Comments
30
Support provided to refugees resettled under GPP originally focussed

on reception orientation. Each resettled refugee is assigned a
caseworker. Over the years, support has moved from being intensive in
nature towards a lighter touch in order to promote independence. 30
D. Platts Fowler and D. Robinson, An Evaluation of the Gateway Protection Programme: A Report Commissioned by
the Home Office (2011), p. 1. Available at http://www.shu.ac.uk/research/cresr/sites/shu.ac.uk/files/eval-gatewayprotection-programme.pdf
298

A study evaluating the GPP, found that resettled refugees tended to
consider themselves satisfied with the support provided to them under the
GPP on the basis of how easily they can get in touch with their caseworker
and as a result there was a downward trend in the rate of satisfaction in the
period between February and May 2009 covered in the report.
There are a number of challenges facing refugees resettled under
the GPP. There is limited access in reality to language training,
especially for women due to greater demand than supply and poor
coordination of provision of services. Generally after an 18 month
period, refugee men were found to speak English relatively well. For
women this was more of a problem, due mainly to problems of access
to English language courses. This however depended on the country of
origin of the refugee.
The UK Borders Agency has stated that although refugees show
positive signs of integration after an 18 month evaluation period, there
were low levels of employment. 31 A study showed that out of 146
refugees resettled in the UK, only 3 had experience of paid employment
after 18 months. 32
This study also showed that a large minority of the refugees
interviewed had been subjected to a physical or verbal attack, some on
more than one occasion. Almost half of these did not report the attack
and those who did felt that their complaint was not adequately dealt with
by the police or the Gateway provider. 33
Although the vast majority of resettled refugees who were
interviewed in the course of this study were registered with a doctor, 41
per cent reported problems accessing healthcare. This affected women
more often than men and was often due to English language
difficulties. 34
Ringfenced funding for ESOL classes should be made available so
that each adult resettled refugee has a minimum of 640 hours of funded
ESOL classes in their first year. Funding made available should be
flexible enough for individual circumstances to be accommodated. For
the first year after arrival, benefit rules should not restrict the number of
hours per week a refugee can study English for.
The UK Borders Agency, the UNHCR, NGOs and local authorities
are the stakeholders involved. The decision to resettle refugees is a
voluntary commitment by the UK Government, which cooperates with
UNHCR in determining which refugees to resettle and from where. It
cooperates with local authorities, who voluntarily agree to receive
resettled refugees before any refugees are resettled to their area.
NGOs and some local authorities are involved in delivering the
programme. 35
A national 'Gateway Forum' of actors in resettlement has been reestablished. It met for the first time in September 2012 and has since
continued to meet regularly.
NGOs and Local Authorities receiving and accommodating resettled
refugees have expressed that the pre-arrival information they receive is
not always consistently accurate and thorough enough to enable them
to fully meet refugees needs. 36
31
Interview with Dave Atkinson, UK Borders Agency, Refugee Team (May 2012).
32
D. Platts Fowler and D. Robinson, note 24 above, p. 2.
33
Ibid., 3.
34
Ibid.
35
Ibid.
36
Interviews with Victoria Sinclair, Refugee Action, and Andy Hewett, British Red Cross, April 2012.
299

Funding
National Level
ERF
The GPP is match funded by the UK government (the UK Border

Agency) and European Refugee Fund. 37 The Resettlement programme
runs in three year cycles in line with fiscal budgets. The current
arrangement is 2011-2014. 38
The UKBA meets the full costs of resettlement in the first year. Costs
include integration support package which includes housing, healthcare,
education, language classes and casework support services. NGOs
work closely with the participating Local Authorities and provide many of
these services to resettled refugees. NGOs are currently funded to
provide resettled refugees with a twelve month package of integration
support. Local Authorities participate on a voluntary and after the initial
twelve months, the relevant local authority and government department
are responsible for any further costs. 39
Costs
Comments
n/a
The UK aspires to an increased quota of 1000 per year when this
becomes affordable. However, the present economic climate suggests
that this increased funding for resettlement is unlikely in the near future.
According to the UK authorities, in order to expand its resettlement
programmes in terms of the numbers of refugees resettled, more
funding would be needed from the EU or the level of support and
standard of accommodation provided to refugees would have to be
reduced in order to resettle more within the existing budget. UNHCR
believes that more refugees could be resettled within the existing
budget if the process was made more efficient, with NGOs perhaps
delivering more services, thus cutting costs for local authorities. 40
37
Interview with UK Borders Agency, Dave Atkinson, Refugee Team (May 2012)
38
Ibid.
39
UK Country Chapter, p. 3. Available at http://www.unhcr.org/40ee6fc04.html (Last visited 31 May 2012).
40
Interview with Alexander de Chalus, UNHCR (May 2012).

300
PART III
EU COMPARATIVE REPORTS
301

Refugee Resettlement in the EU:

Between Shared Standards and
Diversity in Legal and Policy Frames
Delphine Perrin
Frank McNamara

EU Comparative Report

302
KNOW RESET
Research Report

Between Shared Standards and Diversity
in Legal and Policy Frames
Delphine Perrin
With the collaboration of Frank McNamara 1
Robert Schuman Centre for Advanced Studies, European University Institute, Florence, Italy
Frank McNamara reviewed the report and wrote the chapter on Responsibility-Sharing and the
Resettlement/Relocation Dichotomy.
303

Delphine Perrin, Frank McNamara, Refugee Resettlement in the EU: Between Shared Standards and
Diversity in Legal and Policy Frames, KNOW RESET RR 2013/03, Robert Schuman Centre for Advanced
Studies, San Domenico di Fiesole (FI): European University Institute, 2013.

Badia Fiesolana
Italy
304
the 27 EU Member States. The team involved in the project, gathering members of the EUIs and
country of first asylum reports, as well as thematic reports and policy briefs. This user-friendly
Programme.
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
305
List of Contents
Abstract ......................................................................................................................................
Acronyms ...................................................................................................................................
1. Introduction ............................................................................................................................ 1
2. The Development of Resettlement-Related Frameworks and Policies in the EU and its
Member States ............................................................................................................................ 4
2.1 The Turning Points of the Last Decade ............................................................................ 4
2.2 The Development of a Formal Basis for Resettlement in the EU .................................. 15
3. Diversity in the Content of Resettlement Frameworks and Policies .................................... 17
3.1 Diversity in Selection Criteria and Procedures .............................................................. 17
3.2 Diversity in Status and Rights Granted .......................................................................... 31
4. Responsibility-Sharing and the Resettlement/Relocation Dichotomy ................................. 34
4.1 The Emergence of Relocation ........................................................................................ 35
4.2 The Distinction between Relocation and Resettlement.................................................. 36
4.3 Relocation as a Complement to Resettlement ................................................................ 38
5. Conclusion ............................................................................................................................ 40
5.1 Recommendations .......................................................................................................... 42
Annex 1: Formal Basis for Resettlement and Effective Resettlement in the EU Member States
.................................................................................................................................................. 43
Annex 2. Pre-Arrival and Post-Arrival Phases of Refugee Resettlement in the EU Member
States ........................................................................................................................................ 48
Annex 3: EU Member States Position toward Resettlement and Relocation ......................... 60
306
Abstract
The report presents and compares frameworks and policies relating to refugee resettlement in EU
Member States. The time-frame of the report is the last decade, i.e. 2003 to 2013. It is based on the
research conducted for the Know Reset Project and extensively uses the interviews with different
stakeholders involved in refugee resettlement in the EU, which make valuable contribution to the
understanding of Member States options and policies in the domain of refugee resettlement.
This report firstly seeks to present and explain the evolution of EU Member States commitment in
resettlement during the last decade by linking it to relevant related initiatives at international
(UNHCR) and EU levels, most importantly in 2007/2008 and 2011/2012. The report secondly presents
and compares the content of resettlement-related frameworks and policies in EU Member States, and
seeks to analyse them in light of common standards and priorities developed by the UNHCR and the
EU. Last, the report tries to clarify the apparent dichotomy between resettlement and intra-EU
relocation and the ambiguous relation between the two processes, which may raise priority issues in
refugee protection burden-sharing.
307
Acronyms
ATCR
Annual Tripartite Consultations on Resettlement
CEAS
Common European Asylum System
CGRS
Belgiums Commissioner General for Refugees and Stateless Persons
EASO
European Asylum Support Office
ERF
European Refugee Fund
ETC
Emergency Transit Centre
EUREMA
Pilot Project for intra-EU Relocation from Malta
GPP
Gateway Protection Programme
ICRIRR
International Conference on the Reception and Integration of Resettled Refugees
JEURP
Joint EU Resettlement Programme
JHA
Justice and Home Affairs
NGO
Non Govermental Organisations
MIGRI
Finnish Immigration Service
RFF
Refugee Resettlement Form
RPP
Regional Protection Programme
WGR
Working Group on Resettlement
308
1. Introduction
The EU Member States have long been criticised for their low level of participation in the resettlement
of refugees from countries of first asylum which are unable to provide the adequate protection.
Nevertheless, despite the fact that very few States had a resettlement policy in Europe up until recently
and even if legal reference to it was almost non-inexistent, a number of European countries have a
considerable history of having contributed to the reception of refugees and have responded to
collective protection needs.
Initially, the resettlement of refugees was essentially used to respond to the collective needs of
protection due to war or mass persecution. Once created, the UNHCR came to use resettlement as a
key tool to finding solutions for European refugees after the 2nd World War. 2 During the Cold War, the
UNHCR turned to resettlement to respond to the many different refugee crises of that era. Several
European countries participated to the resettlement of Hungarians who had fled to Yugoslavia and
Austria after the Soviet invasion of 1956. Likewise, European countries reacted similarly to the
expulsion of Asians from Uganda in 1972 and to refugee crisis in Chile after the 1973 coup dtat and,
as a final example, European states also reacted positively to the hundreds of thousands of IndoChinese boat-people in the late 1970s. At that time, resettlement was utilised as a t ool in
safeguarding first asylum in neighbouring countries.
While Sweden had adopted a resettlement programme as soon as 1950, it was in the late 1970s that
European countries initiated resettlement programmes. The Netherlands decided to resettle on a
programme-basis in 1977 and adopted its first quota in 1984. Finland received a number of refugees at
the request of UNHCR in 1979 a nd then launched a programme in 1985. Denmark implemented its
first programme in 1979.
After the important increase in Vietnamese people leaving their country, the use of large-scale
resettlement was seen as a p ull-factor for departures and the offer of resettlement places fell
drastically. It was decided to strenghten the rules for resettlement and the Comprehensive Plan for
Action signed in 1989 oriented resettlement on individual protection needs.3
From then on, fleeing the Cold War would not automatically lead to refugee status and the
UNHCR took steps in the following years to develop multilateral consultative processes, strengthen
its resettlement management capacity and articulate resettlement policy and criteria. The first
Resettlement Handbook was released in 1996. 4 In 1995, the Working Group on Resettlement (WGR)
was established to enable the systematic consultation between the UNHCR, resettlement States and
international organisations like IOM. These partners and invited NGOs then launched the Annual
Tripartite Consultations on Resettlement (ATCR) from 1996. It is here that UNHCRs report on
Projected Global Resettlement Needs, produced annually, is discussed in detail by the partners5 in
June each year, while the WGR is held in October and March.
In the meantime, resettlement was a key tool in the subsequent major refugee crises, such as the 1st
Gulf War in 1991, the need to transfer inmates in Bosnia and Herzegovina in 1992, followed by the
war in the former Yugoslavia, and the 1999 Kosovo crisis. Yet, refugee resettlement did not increase
significantly during the 1990s, and European uptake remained low. Only one new resettlement country
emerged in the European Union during the 1990s, namely Ireland, which started its first programme in
UNHCR Resettlement Handbook 2011, p.47.
For developments on the history of resettlement, see UNHCR Resettlement Handbook 2011, and Margaret Piper AM, Paul
Power, Graham Thom, Refugee Resettlement: 2012 and Beyond, UNHCR Research Paper n253, February 2013.
UNHCR Resettlement Handbook 2011, p.50
Ibid. p.52
309
Delphine Perrin - Frank McNamara
1998. Indeed, Ireland responded to the Bosnian crisis of 1992 and to the Kosovan crisis of 1999. Up
until 2000 it continued to accept relatives of Vietnamese refugees who were initially admitted in 1979
and relatives of Bosnian refugees admitted between 1992 and 1996. All three of those programmes
were coming to an end. The UNHCR approached the Department of Foreign Affairs and made the
case for joining the resettlement quota programme. Decisions were taken in 1998 to bring the Bosnian
and Vietnamese programmes to an end and to join the annual resettlement quota programme 6.
In late 2000, the UNHCR initiated the Global Consultations on International Protection in an
attempt to revitalise the international refugee regime, bring together Northern and Southern states and
find some form of convergence between the protection needs of refugees and the interests of states.
The consultations lasted for two years and resulted in two major outcomes: the 2001 Declaration of
States Party which reaffirmed UNHCRs mandate, and the Agenda for Protection which was endorsed
by the UN General Assembly in 2002.
The Agenda for Protection called for the expansion of resettlement opportunities due to the extent
of protracted refugee situations. Together with the Convention Plus Initiative in 2004, the Agenda for
Protection sought to revive resettlement along a more comprehensive, planned and strategic approach.
Convention Plus attempted to develop agreements between States to supplement the 1951 G eneva
Convention and enhance refugee protection at a regional level.
Yet, revelations of corruption within the UNHCR influenced attitudes towards the management of
resettlement at this time. As well as this, the terrorist attacks in the United States on the 11th of
September 2001 r esulted in resettlement coming to be viewed as b eing a sec urity concern. Public
perceptions made resettlement from countries such as Iraq, Afghanistan and Somalia more
complicated 7.
Things started to change in the mid-2000s. One significant factor that influenced changing attitudes
to resettlement was the fact that there were major changes within the UNHCR 8, such as: The arrival of
a new High Commissioner, Antnio Guterres, a former Portuguese prime minister who took office in
2005 and who quickly declared an interest in improving and increasing resettlement; the formation of
a specialised Resettlement Service and the efforts of senior UNHCR staff who demonstrated a
capacity to be both more strategic and more effective in the way they dealt with the various
stakeholders, particularly resettlement States. Supplementing these initiatives was a renewed focus on
capacity building within the UNHCR, including the revision of the UNHCR Resettlement Handbook. 9
The number of EU Member States committed to resettlement has increased significantly over the
past decade and even more significantly during the past five years.
Five Member States had a resettlement programme before 2003, i.e. Sweden, Denmark, the
Netherlands, Finland, and Ireland. While only one new resettlement country emerged in the EU during
the 1990s, nine were created during the following decade, seven between 2008 and 2013. The number
of resettlement countries in the EU is now fourteen: in addition to the five countries cited above, the
United Kingdom launched a programme in 2004, Portugal in 2007, the Czech Republic, Romania and
France in 2008, Hungary, Belgium, Germany and Spain in 2012/2013. Bulgaria is also about to start a
programme in 2014. Two additional Member States refer to resettlement in law (Poland and Slovenia),
even though they have not resettled yet, and two other Member States have already joined resettlement
operations on an ad hoc basis (Italy, Luxembourg).
Interview with Martina Glennon (Assistant Principal Officer) and Elaine Houlihan (Executive Officer), Resettlement Unit,
Office for the Promotion of Migrant Integration, 5 January 2012.
Refugee Resettlement: 2012 and Beyond, op.cit. p.11
Ibid. p.13
Ibid.
310
Refugee Resettlement in the EU: Between Shared Standards and Diversity in Legal and Policy Frames
Besides, Slovakia hosts an Emergency Transit Centre (ETC) for the humanitarian transfer of
refugees before their resettlement to EU Member States or third countries, as does Romania. Among
the six EU Member States which have not taken any steps toward getting involved in resettlement,
Lithuania began discussions in February 2012 on participating in resettlement. 10
The past decade has truly been revolutionary in terms of the initiation of refugee resettlement in
some shape or form by Member States. For that reason, the time-frame of this report is the period from
2003-2013 and focusses on the current situation relating to resettlement in the EU.
It is based on the research conducted within the Know Reset project between 2011 and 2013, which
has provided the following research material:
A collection of national data on legal and administrative frameworks, resettlement policies at
EU and national levels;
Statistics collected from the national institutions in the 27 Member States;

Interviews conducted with governmental and non-governmental stakeholders involved in
resettlement in the Member States; 11
Comparative analytic tools created for the project;
Country of first asylum reports based on field research in Kenya, Pakistan and Tunisia.
In particular, the report utilises the policy positions, opinions and explanations of the different
stakeholders interviewed in the framework of the project, which allow for an invaluable insight into
Member States law and policy with regard to refugee resettlement.
This report firstly seeks to present and explain the evolution of EU Member States commitment in
resettlement over the past decade by linking it to relevant related initiatives at international (UNHCR)
and EU levels. Two turning points have emerged from the observation of this evolution over the past
decade. In the mid-2000s, the UNHCR was seeking to revive States commitment to resettlement, in
particular through the preparation of group resettlement methodology aiming at organising
Multilateral Resettlement Operations. The possibility of launching a joint resettlement scheme in the
EU was also considered. The adoption of the European Refugee Fund in 2007 coupled with UNHCR
and EUs initiatives around the Iraqi refugee crisis constituted key incentives to expand EU Member
States involvement in refugee resettlement. A few years later, two similar factors a financial
incentive at EU level and joint resettlement initiatives played a similar role in enhancing EU
Member States commitment in resettlement in a more concerted and sustainable way.
The report secondly presents and compares the content of resettlement-related frameworks and
policies in the EU Member States. It seeks to analyse those frameworks and policies in the light of
common standards and priorities as have been developed by the UNHCR and the EU. This implies
comparing resettlement in the EU Member States on the basis of a series of criteria, such as the
following: protection needs when selecting refugees, rule of law and rights granted to resettled
refugees, responsibility-sharing.
Finally, the report tries in an additional chapter to clarify the apparent dichotomy between
resettlement and intra-EU relocation. While it is claimed that the two should be or are unrelated, the
position of Member States are much more diversified. Some of them consider relocation as a miniresettlement likely to build their resettlement capacity, both may be merged within the same quota or
based on the same legal frameworks. The ambiguous relationship between the two processes may raise
priority problem in refugee protection burden-sharing.
10
11
UNHCR was informed by the Lithuanian Ministry of Social Security and Labour about these discussions. Written
interview of the representative of Regional Office of UNHCR in Lithuania, 23rd of March 2012. Yet, as the representative
of the Ministry of the Interior was unaware of any on-going discussions on resettlement issue, it follows that it is a very
initial phase of a possible reform in this field. Written interview of the representative of the Ministry of the Interior, 21st
February 2012.
Some names are cited in the report, others are not when the interviewees did not wish to be named.
311
2. The Development of Resettlement-Related Frameworks and Policies in the EU and its

Member States
It was during the second half of the 2000s that EU Member States commitment to resettlement
expanded and strengthened. Formal involvement in resettlement in the EU had two major turning
points during the past decade. Those turning points are in line with important refugee crises and some
significant initiatives from the UNHCR and the EU, supported by NGOs which reveal the importance
of advocacy and joint operations to foster resettlement efforts in Member States.
Different steps can be distinguished in EU Member States commitment. The traditional
resettlement countries resettled on a p rogramme-basis long before adopting legislation which
provided for refugee resettlement in their Asylum law. During the last decade however, the trend has
been quite the opposite: States have first expressed their formal commitment to resettlement, through
the reform of their law and/or the announcement of the adoption of a programme, and the effective
commitment has then followed or not.
2.1 The Turning Points of the Last Decade
a) From 2003 on
During the first half of the 2000s, both UNHCR and the EU prepared some tools aimed at developing
multilateral operations and joint initiatives in the domain of refugee resettlement, which were designed
to have a clear impact on States motivation to be part of collective efforts in the following years.
The UNHCRs Agenda for Protection and Multilateral Resettlement Operations
Convention Plus addressed the issue of resettlement through the Multilateral Framework of
Understandings on Resettlement, a non-binding agreement between states adopted at the High
Commissioners Forum in 2004. The aim of this agreement was to strengthen the international
refugee protection system through a more strategic use of resettlement for the benefit of a greater
number of refugees and its purpose was to guide parties to situation-specific multilateral
agreements. It was actually attempting to recreate the comprehensive plans of action that had been
used twenty years before in South East Asia and Central America. 12 From 2003, the UNHCR started
to develop a group resettlement methodology to enhance resettlement through the use of simpler and
accelerated processing for groups of refugees while it also advocated for the adoption of flexible
selection criteria that would go beyond the terms of the 1951 Convention.
Refugees may be recognised through individualised determination procedures or, in the absence of
evidence to the contrary, through group-determination procedures on a prima facie basis. 13 This latter
approach has mainly been adopted in situations of mass influx, where the reasons of flight are
generally known and the number of arrivals would overwhelm capacities to determine refugee status
individually. 14
Taking into account the need for responsibility sharing in the protection of refugees and a strategic
use of resettlement, the UNHCR and its governmental and non-governmental partners have tried to
undertake multilateral resettlement operations. Resettlement states have therefore been called upon to
offer places to individuals who belong to specific groups and are in a country of first asylum which
12
Refugee Resettlement: 2012 and Beyond, op.cit. p.11.
13
Prima facie (in absence of evidence to the contrary) refers to the process of group determination of refugee status, as
opposed to individual determination, which is usually conducted in situations where a need to provide urgent assistance
or other practical difficulties preclude individual determination, and where the circumstances of the flight indicate that
members of the group could be considered individually as refugees, UNHCR Resettlement Handbook 2011, p.20.
14
Ibid. p.19.
312
does not acknowledge refugee status for instance or cannot provide an adequate level of protection due
to the number of refugees in need of protection, leading to protracted refugee situations.
Among the groups of vulnerables persons to be resettled, some refugees appear to be safer than
others and may compensate for caseloads that are deemed to be risky on s ecurity grounds. In the
second half of the 2000s, new sources of safe refugees emerged. This was the case of Burmese. For
many years Thailand and to a lesser extent Malaysia had resisted approaches to allow UNHCR to gain
access to Burmese refugees to process them for resettlement but in the early 2000s, negotiations
succeeded in convincing them to change their policy. 15
Besides, a number of major repatriation operations, especially those to Afghanistan, Iraq and South
Sudan faced important difficulties which led some resettlement states to resettle refugees from those
countries, even though they were considered as being risky. 16
The EUs Initial Steps toward a Joint Resettlement Programme
At the EU level, the Amsterdan Treaty had created a new area of competence for the European Union
by transferring asylum policy and the Schengen acquis from the intergovernmental pillar to the
Community pillar. Within the objective of an EU asylum policy, the European Commission suggested
in its Communication of 22 November 2000 that Processing the request for protection in the region
of origin and facilitating the arrival of refugees on the territory of the Member States by a resettlement
scheme are ways of offering rapid access to protection (COM 2000/0755 final). The Commission
believed that only a joint EU approach could create the necessary political and operational terms for
accessing European territory and for allowing resettlement to be used for strategic purposes - both to
assist the EU Member States and attain the objectives of the UNHCRs Agenda for Protection.
At the time when the United Kingdom was suggesting transit and treatment centres in third
countries in line with its Safe Borders, Safe Haven policy, the Commissions Communication of 3
June 2003 (COM(2003) 315 final) presented resettlement as a way to provide for managed and
orderly arrivals of persons in need of international protection. This way of presenting resettlement
was confirmed in June 2004 in a Communication 17 in which the Commission proposed an EU-wide
resettlement scheme.
In the Hague Programme of 4 and 5 N ovember 2004, the European Council set a series of
objectives and priorities with a view to further developing the Common European Asylum System
(CEAS) in its second phase. In particular, the European Council underlined the need for the EU to
contribute in a spirit of shared responsibility to a more accessible, equitable and effective international
protection system and to provide access to protection and durable solutions at the earliest possible
stage. The European Council went on t o call for the development of EU-Regional Protection
Programmes (RPP) which included a joint resettlement programme for Member States willing to
participate in such a programme. The Commission then set out its action plan for one or more
Regional Protection Programmes. 18 Those RPP were not shaped as a humanitarian response19 but as a
tool to support and build the protection capacity in third countries. Resettlement from the countries
15
Ibid. p.11. As a result, whereas only 246 Burmese were resettled in 2002, by 2009 the number had grown to 24,781, a 100
15
fold increase .
16
Ibid. p.12
17
Communication from the Commission to the Council and the European Parliament of 4 June 2004 on the managed entry in
the EU of persons in need of international protection and the enhancement of the protection capacity of the regions of
origin: "improving access to durable solutions". COM(2004) 410 final.
18
Commission Communication to the Council and the European Parliament of 1 S eptember 2005 on r egional protection
programmes. COM(2005) 388 final. (Not published in the Official Journal).
19
Marcin Pruss, European Commission, Know Reset Final Conference, Brussels, 10 July 2013.
313
covered by an RPP was considered as a way to enhance their involvement in refugee protection and as
a response to the strategic use of resettlement which attempts to influence the behaviour and attitudes
in countries of first asylum.
In the meantime, the European Commission also started to fund twinning projects aiming at
developing joint resettlement processes. The MORE Project (Modelling of National Resettlement
Process and Implementation of Emergency Measures) was an EU funded Project which ran from
December 2003 to April 2005 and twinned a traditional resettlement country, Finland, with a recent
one, Ireland, in cooperation with UNHCR, IOM and ECRE. The aim of the Project was to develop
comprehensive models for the resettlement process, which could be utilised by other EU Member
States and other countries. The main outcome of the Project was the production of a practical guide to
the resettlement process.
Impact at National Level
Before 2003, only five EU Member States had resettlement programmes: the four traditional
resettlement countries, i.e. Sweden, Finland, Denmark and the Netherlands, and Ireland which
legislated for resettlement in 1996 a nd started its programme in 1998. T he Czech Republic also
introduced a reference to refugee resettlement in its Asylum Act in 1999 but only resettled from 2008.
The following changes occurred during the first half of the 2000s:
The UK introduced a specific provision in 2002 in its Nationality, Immigration and Asylum
Act and started its programme in 2004, to demonstrate the UKs commitment to supporting
UNHCRs global effort to provide durable solutions to the plight of refugees and increasing
its international contribution to sharing the refugee burden. 20
Ireland extended its annual quota in 2005 from 10 cases (around 40 persons) to 200 persons
to be admitted.
The three Scandinavian traditional resettlement countries of the EU decided to formally

legislate for their commitment by introducing a specific reference to resettlement: Finland in
2004, Denmark and Sweden in 2005.
Germany, which only resettled on an ad hoc basis at that time, changed its law in 2004, to
allow admission from abroad and issuance of residence permit.
Romania, which had never resettled, introduced a specific provision in its law in 2006.
Article 3(5) of the Asylum law opened the possibility to resettle on a programme-basis.
In legislating in this way, Romania is representative of a greater trend among the newer Member
States, those which joined the EU in 2004 and 2007. The need to revise legislation to conform to the
EU acquis on asylum was also an opportunity to legislate for resettlement.
Therefore, by 2007, only one new resettlement country had been created in the EU since the
beginning of the 2000s, i.e. the UK. Despite this slow progress, the formalisation of a commitment to
resettle was already on progress.
b) The 2007/2008 Turning Point
This turning point is due to Multilateral joint operations initiated by both the UNHCR and the EU and
the adoption of financial incentives for resettlement by the EU.
20
Written interview with Dave Atkinson, Home Office, Refugee Team, 16 May 2012.
314
The UNHCRs Calls for Group Resettlement and Protracted Situations

The UNHCR pursued its efforts to incentivise and guide States toward situation-specific multilateral
resettlement operations. The purpose in its doing this was to encourage states to focus attention on
situations where it was considered that a strategic resettlement operation could leverage benefits for a
much larger number of refugees, including creating a better protection environment and opening up
the possibility of local integration.21
In addition to the classical multilateral resettlement operations, the UNHCR launched a Special
Initiative on P rotracted Refugee Situations in 2008 which focused on f ive situations among which
three had to be resolved through resettlement:
Afghan refugees in Iran and Pakistan;
Refugees from Myanmar in Bangladesh;
Eritrean refugees in eastern Sudan.22
Besides, at that time, the refugee crisis due to the 2nd Gulf War began to severely impact the
countries surrounding Iraq, i.e. Jordan, Syria and Lebanon. In March 2007, the UNHCR declared that
Iraqis fleeing their country from five central governorates were entitled to prima facie refugee status
and called for their resettlement. In addition, it established eleven priority resettlement profiles to help
assess the vulnerability of Iraqi refugees. Refugees belonging to one of these eleven categories were
prioritised for resettlement 23 in line with the seven globally defined resettlement criteria.
The ERF and the Iraqi Refugee Crisis
The European Refugee Fund (ERF) for the period 2008-2013 adopted Decision 573/2007/EC, aimed,
among other things, to () support the voluntary efforts made by Member States to provide
international protection and a durable solution in their territories to refugees and displaced persons
identified as eligible for resettlement by the UNHCR, such as the actions that the Member States
implement to assess the resettlement needs and transfer the persons concerned to their territories, with
a view to granting them a secure legal status and to promoting their effective integration. 24
Member States could apply for funding to help implement resettlement programmes, and could
seek 4,000 Euro per resettled person provided the refugee belonged to one of the four vulnerable
categories eligible, they were: 25
persons from a country or region designated for the implementation of a Regional Protection
Programme;
unaccompanied minors;
children and women at risk, particularly from psychological, physical or sexual violence or
exploitation;
persons with serious medical needs that can only be addressed through resettlement.
Beyond this increase in funding, the funding of twinning projects also continued. The MOST
Project succeeded the MORE Project from 2006 to 2008. The Ministry of Labour in Finland led the
MOST project and the project partners were the Irish Reception and Integration Agency, the Spanish
Ministry of Labour and Social Affairs, and the Swedish Migration Board in cooperation with UNHCR,
21
22
23
10,000 Refugees from Iraq, A report on Joint Resettlement in the European Union, ICMC, May 2010, p.12.
24
Recital 18 of Decision 573/2007/EC.
25
Article 13 of Decision 573/2007/EC.
315
IOM and ECRE. It aimed at exploring ways to improve the resettlement process and focused on the
quality of integration services.
In parallel, a Joint EU Call to resettle 10,000 refugees from Iraq was adopted by the Justice and
Home Affairs Council (JHA) on 27-28 November 2008. Help to vulnerable refugees was specifically
mentioned. The Council Conclusions came about under the French presidency of the EU and under the
leadership of some Member States that had already been involved in the resettlement of Iraqi refugees
since 2007.
Besides, under the Slovenian EU presidency in 2008, EU Ministers from larger resettlement
countries had signed a declaration where they committed to resettle quantitatively more and prompted
their colleagues to do the same. 26
The Joint Call at EU level had a clear impact on several Member States which stresses the importance
of launching multilateral operations to obtain national commitments. The initiatives of some Member
States acting as leaders were also key incentives to get their partners involved. The UNHCRs call to
resettle refugees from Iraq was actively promoted by some important Member States. The Netherlands
and Sweden in particular urged other Member States to respond to the Iraqi refugee crisis. The
adoption of the Council Conclusions was primarily promoted by Germany in early 2008. Then, in June
2008, France signed an ad hoc agreement with the UNHCR (the IRAK 500 programme) embarking
on a two-year programme for the resettlement of vulnerable Iraqi refugees belonging to minority
groups. On 20-21st November 2008, i n anticipation of the EU JHA Council meeting, Germany
adopted a key decision to accept 2,500 Iraqi refugees from Jordan and Syria as part of Europes
response to the refugee crisis. The fact that Germany decided to make a significant contribution and
accept a large number of Iraqi refugees greatly influenced the adoption of the Council Conclusions.27
The number of countries involved quadrupled, from two in 2007 to eight in 2009. Eventually,
twelve EU Member States participated in the joint effort to resettle refugees from Iraq: Seven
programme-based resettlement countries (Sweden, Finland, the Netherlands, the UK, Portugal,
Denmark, Ireland), and five Member States (Belgium, France, Germany, Italy, Luxembourg)
responded the call on an ad hoc basis.
A second significant incentive to resettle also appear to be twinning projects and supportive
initiatives among Member States. The Iraqi crisis was the opportunity for the EU and some Member
States to develop and test joint initiatives and pass on lessons from their own experiences. In the
framework of the MOST project, representatives of the Spanish government from the Ministry of
Labour and Social Affairs participated in selection missions to Jordan and Syria with the Swedish
partner in 2007 and 2008 to find out how the resettlement process could be organised. The missions
involved the selection of Iraqi refugees, and was conducted as part of a learning process focussing on
refugee selection.
A Temporary Desk in Iraq (TDI), funded by the European Commission aimed to improve practical
cooperation on protection, resettlement and the return of Iraqi refugees. From May 2009 to October
2010, this pilot project brought together General Directors of Immigration Services from Germany, the
Netherlands, the UK and Belgium. The expertise was aimed at being transmitted to the EASO in order
to support its forthcoming activities in the domain of resettlement. As part of the TDI project, Belgium
and the Netherlands went on a joint mission to Syria in May 2009. Furthermore, Bulgaria and Slovakia
26
Phone interview with Andreas Ollinen, political adviser to the Swedish Minister for Migration and Asylum Policy,
Ministry of Justice, 16 May 2012.
27
10,000 Refugees from Iraq, A report on Joint Resettlement in the European Union, op.cit., p.14
316
participated as observers in the Dutch mission to Syria in October/November 2009. 28 In 2010, a

proposal was made for a similar Desk in Afghanistan.
Belgium and Luxembourgs 2009 pilot resettlement schemes in response to the November 2008
Conclusions were preceded by guidance from the Netherlands. In 2008, Belgium and Luxembourg
were invited to join the Netherlands on a selection mission in Thailand in order to promote
resettlement. By the end of 2007, delegations from Belgium and the Czech Republic had observed
the Dutch resettlement process in Thailand under the twinning project entitled Durable solutions in
practice. A Romanian delegation took part in a selection mission to Jordan in February 2008 under
the same project. Representatives from Belgium, the Czech Republic and Romania also visited the
Netherlands, where they were given a general overview of Dutch resettlement policy, including
quota and reception.
Twinning projects are not only aimed at promoting resettlement to potential future resettlement
countries but also to exchange experiences. Ireland for instance benefited from the support and
experience of Canada and the UK when it resettled Burmese Rohingya in 2009. I visited Bradford
where the Rohingya refugees had been resettled and representatives from Bradford subsequently
visited Ireland to meet the Rohingya community here. This resulted in some members from both of the
Rohingya Communities making contact with one another. 29 In 2009, Ireland also took some refugees
in cooperation with the UK, within a transnational EU funded project. Bulgaria and Belgium also
participated in that initiative as at that time they were considering participating in programme
resettlement. The Netherlands involvement in fostering further commitments among Member States
appears to be determinative in the above-mentioned cooperation schemes. Ireland stresses that Finland
had also provided an excellent support during its early years of resettlement and that it then had the
opportunity to support Slovenia, Belgium and Bulgaria. We learn from each other all of the time and
it wouldnt happen without the EU. 30
The financial contribution of the ERF was also a clear incentive to generate EU Member States
involvement in refugee resettlement. Belgiums pilot project to resettle refugees from Iraq was
conditional upon a request for European funding. Concretely, the selection mission and the transfer
of the resettled refugees took place within the framework of the ERF community actions project
Temporary Desk on Iraq, which meant that up to 90% of the costs of the selection and transfer of
refugees could be recuperated through the European Commission. Furthermore, 50% of the reception
and integration of the resettled refugees was co-financed by the national section of the ERF. 31
Also Portugal established a multi-annual programme (2008-2013) in the context of the ERF which
projected the resettlement of a certain number of refugees in the categories identified in Article 13 of
the ERF. 32 The financial incentive is still emphasized by the Ministry to further develop resettlement
in Portugal.
The following changes occurred from 2007/2008 on:
Portugal, which accepted an intake of 33 refugees on an ad hoc basis from January 2006,
then launched a programme in 2007 to receive 30 refugees a y ear, and formalised its
commitment through the adoption of a legal provision in 2008. Though Portugal never
formally responded to the November 2008 Conclusions, it accepted an urgent case of one
Iraqi family of five who arrived in September 2008 and another Iraqi family who were
resettled from Syria in 2009.
28
Ibid. p.24
29
Interview with Martina Glennon, op.cit.
30
Ibid.
31
Written interview with Ewout Adrians, CGRS-FEDASIL, 4 May 2012.
32
Written interview with the Portuguese Ministry of Internal Affairs, February 2012.
317
Beside its IRAK 500 programme, France concluded an agreement with the UNHCR in
2008 to engage in programme-based resettlement for one hundred files per year. If the Iraq
issue was an incentive to engage in resettlement, the development of resettlement in the EU
might have had a positive impact too on the French commitment. France was about to take
the presidency of the EU (second half of 2008) and prepared the asylum and immigration
European Pact that included provisions on resettlement and intra-EU relocation. It has to be
underlined as well that, in 2007, the number of asylum seekers was the lowest of the decade
(ca 35 000 applications). It might have dispelled a certain reluctance regarding the
reception of further refugees. Finally, advocacy by Forum rfugis and France terre dasile
might have had an impact too. 33
In the multi-year plan of the ERF 2008-2011, Spain presented a p roposal to accept 150
refugees, 50 pe r year. In 2009, M adrid revised its law regulating the right to asylum and
subsidiary protection and made a specific reference to the prospect to establish a resettlement
programme in cooperation with the UNHCR and other relevant bodies. It also engaged in a
resettlement programme during the subsequent years but eventually did not implement its
resettlement programmes.
In the UK, the annual quota was increased coinciding with the November 2008 Conclusions
in 2008/2009 which brought the annual total from 500 to 750 refugees.
This is all the more on the Eastern side of the EU that the formal commitment is the most
impressive:
Hungary and Slovenia included a reference to resettlement in their respective laws in 2007.
The Czech Republic launched its resettlement programme in June 2008 and resettled nine
Burmese families in October 2008 and February 2009. Twelve other Burmese families were
resettled during 2010. 34
In Romania, a Government Decision taken in 2008 on t he Resettlement of Foreigners

provided for resettlement and stated that 120 refugees would be resettled during the period
2008-2010. Only 38 refugees were resettled in the context of this provision, representing the
quota due on 2009 and the programme was subsequently suspended. Resettlement was fully
funded by the ERF. 35 The quotas due on 2008 a nd 2010 have not been fulfilled due to the
delayed approval of Government Decision no. 1596/2009 on the resettlement of refugees in
Romania, as well as due to the economic and social situation resulting from the global
economic crisis. 36
After joining the ACTR in 2007, a twinning project with Ireland in the following two years
and a twinning project with the Netherlands in 2009, Bulgaria established an
intergovernmental Taskforce on Resettlement in 2010. The objective of this Taskforce was
to create a draft pilot resettlement programme to be implemented in 2013.
At the end of this period, a new one starts with similar incentives, i.e. group resettlement and
financial support, being applied in the context of a new refugee crisis.
33
Interview with Matthieu Tardis, France Terre dAsile, April 2012.
34
Petr Novak, Ministry of the Interior of the Czech Republic, Know Reset Final conference, Brussels, 10 July 2013.
35
Written interview with the Romanian Office for Immigration (ROI), 23 January 2012.
36
Ibid.
318
c) The 2011/2012 Turning Point

The Refugee Crisis in the Mediterranean and Group Resettlement Initiatives
In 2011, a mass influx of refugees began to flow into Tunisia and Egypt as a result of the conflict in
Libya. In February 2011, the UNHCR made a global call for places for resettlement from Tunisia and
Egypt. On the 2nd of March 2011, the UNHCR organised a conference of resettlement States and other
interested countries. That conference resulted in the launching of the Global Resettlement Solidarity
Initiative for refugees ex-Libya to ease the burden on Tunisia and Egypt which had received tens of
thousands of refugees. Resettlement was presented as a way to ensure that vulnerable persons did not
risk dangerous boat journeys across the Mediterranean. The European Commission reacted to the calls
made by the UNHCR by inviting experts from the Member States to a resettlement experts meeting
on refugees stranded in Libya on t he 28th of March 2011. 37 The JHA Council of 11-12 April 2011
argued favourably for the extension of Regional Protection Programmes and claimed that it had the
objective of alleviating protracted refugee situations, notably through enhancing refugee resettlement.
The European Commission asked Member States to transfer their annual quotas from the countries
that they had already pledged to North African countries, if they could not provide new resettlement
places as the UNHCR and the European Commission requested of them. On the 12th of May 2011,
Commissioner Cecilia Malmstrm convened a Ministerial Conference, co-chaired with the Hungarian
Presidency, to discuss and review commitments and pledges from the Member States and the
Associated Countries in respect of the extension of the pilot project in Malta for the relocation to other
Member States of persons who were beneficiaries of international protection and the resettlement to
Europe of refugees stranded in North Africa. The Conference was organised as a co ncrete
implementation of the solidarity statements included in the Council Conclusions of April 2011. 38
In July 2011, the UNHCR stated that twelve countries had pledged 900 places. Almost one third
were offered in addition to annual resettlement programmes or were an ad hoc contribution. Yet, at the
end of June, the UNHCR submitted more than 1,000 refugees for resettlement and 80 departed for the
ETC in Romania for processing by resettlement countries. 39 In July 2012, according to the UNHCR,
twelve countries worldwide had pledged 1,700 dedicated resettlement places, this figure does not
include the United States of America which offered an open-ended number of places. 5,500 refugees
were submitted for resettlement worldwide and 1,270 refugees departed for resettlement directly and
through the ETCs. 40
The Joint EU Resettlement Programme (JEURP)
A proposal to establish a Joint EU resettlement Programme was tabled in September 2009 under the
Swedish Presidency. The aim was to increase the EUs humanitarian impact, to integrate resettlement
into external relations policy, to streamline actions of Member States and to make them more cost
effective. 41 The proposal remained in limbo between institutions mainly because of the annual priority
setting and because of an argument between the Council and the Parliament about which decision
procedure to use in connection to the implementation of the Lisbon Treaty.
37
Interview with Ewout Adriaens, op.cit.
38
http://europa.eu/rapid/press-release_MEMO-11-295_en.htm?locale=fr Memo/11/295, 13/05/2011
39
UNHCR Projected Globel Resettlement Needs 2012, July 2011, p.10, http://www.unhcr.org/4f0fff0d9.html
40
UNHCR Projected Global Resettlement Needs 2013, July 2012, p.11, http://www.unhcr.org/5006aff49.html
41
Communication from the Commission to the European Parliament and the Council of 2 S eptember 2009 on t he
establishment of a joint EU resettlement programme [COM(2009) 447 final)
319
On 29 March 2012, the European Parliament voted on the Joint EU Resettlement Programme,
already approved by the Council. Decision 281/2012/EU of 29 March 2012 amended Decision
573/2007/EC establishing the European Refugee Fund for the period 2008 to 2013 a s part of the
General programme Solidarity and Management of Migration Flows.
This decision determined common EU resettlement priorities for 2013 and announced an increase
in the financial assistance that Member States would receive from the European Refugee Fund for the
resettlement of refugees. In addition to this, that decision also provided for the following changes:
The ERF used to only fund the resettlement of refugees from outside the EU to Member
States but now also funds relocation between Member States.
The general rule is that Member States will receive a lump sum of 4,000 Euro for each
person resettled according to the agreed priorities. Member States who apply for financial
support from the European Refugee Fund for the first time will receive a lump sum of 6,000
Euro per resettled refugee.
Additional funding is also available for those Member States which have not previously or
have only once received ERF funding for the resettlement of refugees. Those Member States
will get a lump sum of 5,000 Euro per resettled person. This is particularly relevant for the
countries that have not yet received ERF funding, or have only received it once and have
expressed an interest in undertaking resettlement, most notably, Belgium, Bulgaria,
Germany, Hungary, Luxembourg, Poland and Romania. Italy and Spain have made ERF
pledges in the past, but have not fulfilled these, and in that case would still be eligible for the
extra funding. 42
The JEURP widens the categories of refugees whose resettlement is supported with EU
funding in 2013. The amendment to the ERF adds specific vulnerable groups and geographic
priorities to the existing categories of refugees whose resettlement is funded under the ERF.
To facilitate the calculation of funding needs through the European Refugee Fund for 2013,
Member States were asked to provide the Commission with an estimate of the number of persons per
category they planned to resettle in 2013.
The European Commission continued to fund a number of projects to support and enhance practical
cooperation relating to resettlement in the EU, such as Practical cooperation in EU resettlement
jointly implemented from 2010 onward by the ICMC, IOM and the UNHCR and ten Member states
(Belgium, France, Hungary, the Netherlands, Poland, Portugal, Romania, the United Kingdom,
Slovakia and Sweden). 'Paving the way - a handbook on t he Reception and Integration of Resettled
Refugees' was produced in 2011 within the framework of this project. 43
Linking in EU Resettlement, launched in September 2011, aims at further developing the
achievements of the practical cooperation project. 44 It aims to strengthen the expertise of European
practitioners at all stages of resettlement and the integration process, including the capacity of
municipalities and civil society. It focusses on the reception and integration of refugees at the local
level and linking the pre-departure and post-arrival phases in order to make resettlement more
successful.
Also significant is the establishment of an EU Resettlement Network, an initiative co-funded by the
European Refugee Fund and involving IOM, the UNHCR and the ICMC. The objectives of the
network include the promotion of information exchange, collaboration, and policy development.
42
Written interview with UNHCR Hungary, April 2012.
43
See : http://www.icmc.net/pubs/paving-way-a-handbook-reception-and-integration-resettled-refugees
44
http://www.resettlement.eu/page/linking-eu-resettlement-project
320
Activities undertaken by the Network include stakeholder meetings, training for practitioners and
pilots of innovative activities. 45
The UNHCR and the EUs call to resettle refugees from the Shousha camp in Tunisia was responded
to by Belgium, Germany, Hungary and Spain. Ireland also resettled some refugees from Tunisia
within the existing quota, as well as Portugal and Sweden. Again, group resettlement initiatives with
financial support were key incentives in convincing Member States to commit to resettlement both in
responding to the refugee crisis and in making a st rategic use of resettlement and thus utilising
resettlement in a more sustainable fashion. Indeed, Belgium, Germany and Spain took the opportunity
to engage in programme-based resettlement.
The following changes occurred in 2011/2012:
In 2011, Germany agreed to launch a resettlement programme from 2012 on, pl anning to
resettle 900 refugees over three years. 195 refugees were resettled from the Shousha camp to
Germany in September 2012, and 105 Iraqi refugees arrived from Turkey in October 2012.
In preparation for the European Commission meeting on 28 March 2011, the inner cabinet
of the Belgian federal government decided on 24 March 2011 to resettle 25 African
refugees who fled from Libya to Tunisia after the outbreak of the revolution. Furthermore,
the new Belgian government agreement of December 2011 stated that Belgium would
participate in resettlement programmes on a European level. Belgium pledged to resettle
100 refugees in 2013.
In 2012, Spain resettled 80 refugees from the Shousha camp and renewed its engagement to
resettle on a programme-basis in 2013-2014, 30 r efugees a year. Already at the end of the
1990s, UNHCR announced that Spain was among the newly emerging resettlement
countries. 46 It was then removed from this list since Spain never implemented any
programme. In 2008, it presented a proposal to accept 150 refugees over three years, but this
provision was never carried out. 47 During the subsequent years, the Council of Ministers
approved an annual programme and even raised the quota from 75 refugees planned in 2010
to 100 r efugees planned in 2011. N one of these programmes have been implemented.
Nevertheless, in 2012, t he Spanish Council of Ministers again approved an annual
resettlement programme for 2013-2014 and also resettled refugees from Eritrea, Sudan, and
Somalia in July 2012 in response to a call made by the UNHCR. Instead of considering the
latter resettlement as an ad hoc resettlement which it seemed to be, Spain claimed that it was
based on the 2009 Asylum law and counted within the quota approved for 2011.
Poland reformed its Aliens Act in 2011 which now refers to resettlement. The UK has been
developing a twinning arrangement with the Polish government to support them in their
aspirations to become a resettlement country
Romania adopted a new programme. In 2012, a Government Decision was proposed for the
Amendment of the 2008 Government Decision on the Resettlement of Refugees in Romania and
set the number of refugees to be resettled over two years (2012 and 2013) at 40.
45
Refugee Resettlement: 2012 and Beyond, op.cit. p.20
46
Joanne van Selm, Tamara Woroby, Erin Patrick, Monica Watts, The feasibility of setting up resettlement schemes in EU
Member States or at EU level, against the background of the Common European Asylum System and the goal of a Common
Asylum Procedure, Migration Policy Institute, Tender n. DG.JAI-A2/2002/001, 2003, executive summary, p.vii
47
Written interview with an advisor to the Spanish Ministry for Employment and Social Security, also the former subdirector for Immigration, under the Office of the Secretary of State for Immigration and Emigration, April 2012.
321
The Hungarian Government announced its decision to become a resettlement country in

October 2010 and confirmed its commitment through a pledge submitted to the Ministerial
Conference organized by UNHCR in Geneva in December 2011. In response to the Arab
spring in 2011 a Governmental Decision (No. 1139/2011) was adopted on the launch of an
asylum solidarity programme in relation to the situation in North Africa. On this basis,
Hungary intended to focus its resettlement commitment to the North-African region. 48
Hungary promised to resettle a family of five to eight persons in 2012-2013 as a pilot
programme but eventually resettled only one refugee.
In Bulgaria, the instability of the government as well as practical difficulties had postponed
the official launching and the implementation of the resettlement programme prepared since
2010. 49 Yet, in June 2012, the political decision on the submission of a pilot resettlement
quota of 20 persons in 2013 was adopted. Unfortunately, the application for EU funds was
deposited after the deadline.
Slovenia promised to resettle on a programme-basis in 2014.
For some Member States, the EUs financial incentive is determining their commitment. In
Belgium, the 2011 de cision was, like in 2009, c onditional upon s ecuring European funding. The
choice of countries has until now not been based on strategic choices connected to Belgian Foreign
Policy. In 2011 the decision was made to resettle from Tunisia and not Egypt for a pragmatic reason:
European funding was only available for urgent resettlement, while in Egypt UNHCR focused on
resolving the protracted refugee situation50. The European Commission indeed included urgent
resettlement in its annual priorities for the ERF programme for community actions for 2011 through
which up to 90% of the operation could once again be financed by Europe.
Being part of a joint effort is also a clear motivation. For Belgium, participating in worldwide
and EU operations is a key incentive. This was the case when it resettled in 2009 and 2011. 51 This is
also true of Bulgaria 52 and Italy. The Italian government has been involved in discussions with the
UNHCR regarding the closure of the Iraqi refugee camp named Camp Ashraf and the resettlement of
the Iranians refugees that were hosted there. It seemed that Italy was not going to bind itself unless
others were willing to join 53 - the general attitude of waiting unless others follow shows that
resettlement probably would be more efficiently organised at the European level as it would
automatically involve burden sharing among Member States and therefore they might be more willing
to cooperate in such a context. In Romania, the Governments decision to get involved in the
resettlement of refugees process was influenced by the political will of strengthening Romania's status
as an important global partner by undertaking efforts and responsibilities incumbent upon the
international community in the area of refugee protection. Since the resettlement of refugees plays an
important role in the EUs external policies on asylum, the involvement of Romania in the resettlement
programme was driven also by the desire to assume its obligations as an EU Member State.54
48
49
Anna Andreeva, Bulgarian State Agency for Refugees, Know Reset Final Conference, Brussels, 10 July 2013.
50
51
52
53
54
Ibid.
Anna Andreeva, Know Reset Final Conference, op.cit.
Phone interview with the head of unit VII of the Bilateral and Multilateral Cooperation in Migration, International
Protection and International Adoptions, DG Italians abroad and migration policies at the Ministry for Foreign Affairs,
February 2012.
Written interview with ROI, op.cit.
322
An evolution has occurred in resettlement law and policy and has led to Member States
increasingly committing to resettling refugees. However, an extension of the commitments in
resettling refugees in the EU is not linear and does not necessarily mean that the number of refugees
resettled in the EU will steadily rise. As mentioned above, some commitments may be postponed, not
implemented or revised.
2.2 The Development of a Formal Basis for Resettlement in the EU
The adoption of a legal basis for resettlement was not considered as necessary by many stakeholders,
as resettlement is a voluntary practice rather than a legal duty. Numerous stakeholders insist that the
resettlement decision is political. The impact of changes in governments on State involvement in
resettlement confirms the political nature of the decision to resettle. This was the case recently in both
Bulgaria and Belgium. Yet, for Oskar Ekblad, Head of Resettlement Activities in Sweden, a barrier for
many EU countries seems to be the lack of necessary legislation. 55 During the past decade, most of the
resettlement countries have undertaken to formalise their practice or prepare a future practice with the
adoption of a formal framework.
Thirteen EU Member states now refer to refugee resettlement in the law governing Aliens and/or
Asylum 56 and fifteen have adopted government acts. Among these, sixteen 57 have already effectively
resettled and thirteen have resettled on a programme-basis (see Annex 1). The legal framework is very
diverse from one EU Member State to another. Besides, the existence of a formal basis does not imply
the effective practice of resettlement and its absence does not prevent a Member State from resettling.
Although they have a formal basis to do so, Slovenia and Bulgaria have not yet resettled any refugees
while Poland has resettled without using the legal basis relating to resettlement. Contrary to this,
Scandinavian countries have long had the experience of resettlement before they undertook the step of
adapting their legislation accordingly. The Netherlands have not included any resettlement-related
provision in their Aliens law despite the fact that that State has been resettling for over forty years.
Most of the new Eastern EU Member states have adopted a specific provision related to
resettlement: the Czech Republic, Hungary, Poland, Romania, Slovenia. The Baltic states, on the other
hand, are reluctant to join any resettlement activity. Those five new Member States have taken the
opportunity of adapting their asylum legislation for the EU acquis to introduce a r eference to
resettlement. As far as Bulgaria is concerned, no provision has been introduced in law but in 2010 a
Intergovernmental Task Force on Resettlement (RWG) was created, with the objective of creating a
draft pilot resettlement programme. It required two years before the Council of Ministers issued a
decision in 2012 to launch the Pilot Resettlement Programme to be implemented in 2014. In terms of
implementation, only the Czech Republic has effectively undertaken its resettlement programme.
Romania has been only able to resettle for one year, 2008, ou t of the three years initially planned.
Despite a specific provision introduced in 2007, Hungary has not resettled any refugee up to 2013
when it resettled one person. Slovenia has not resettled yet and Poland has not resettled on the basis of
the legal provision introduced in 2011.
Those new Member States were approached by the UNHCR, which used accession to the EU in
order to advocate for refugee resettlement in countries, which were eager to show their good will and
commitment in EU and international affairs. They are also particularly motivated by the financial
55
Phone interview, op.cit.
56
Czech Republic (1999), Denmark (2005), Finland (2004), Germany (2004), Hungary (2007), Poland (2011), Portugal
(2008), Ireland (1996), Romania (2006), Slovenia (2007), Spain (2009), Sweden (2005), UK (2002).
57
Austria, Belgium, the Czech Republic, Denmark, Finland, France, Germany, Italy, Luxembourg, the Netherlands, Portugal,
Ireland, Romania, Spain, Sweden, the UK. And even eighteen if we add Hungary which planned the resettlement of one
family in 2012-2013 and eventually resettled one person, and Poland which resettled 16 pe rsons through a personal
spontaneous initiative of its Prime Minister in 2011.
323
incentives introduced by the EU which explains the wave of commitments after the adoption of the
ERF for the period 2008-2013. Indeed, while the lump sum granted to States upon resettling a refugee
may seem low and insufficient in Member States with a high cost of living, it is considered as being
important in countries where the receiving and integration capacity is a work in progress.58 In contrast,
the Irish management team argues that resettlement cannot be based on an incentive because there
are costs to the State not just first year costs but ongoing costs for many many years. For medical
cases the costs can be serious but it is a decision to save a life. The incentive to resettle has, first and
foremost, to be humanitarian. People, and particularly children are living in dire circumstances and
they are in need of an opportunity to build a life. The EU gives 4,000 per head for taking from their
RPPs (Regional Protection Programmes) and other vulnerable groups. It is good to get it but it would
not be a reason to join. 59
Only a few other Member States have adopted a specific provision to prepare for a commitment to
resettlement: this was the case of the UK, which changed its legislation in 2002 and started a
programme in 2004; the same for Ireland, which introduced a provision in 1996 a nd started a
programme in 1998.
The law sometimes comes afterwards. In Portugal, the 2007 pr ogramme was launched by a
Resolution of the Council of Ministers, and its sustainability was confirmed by the corresponding
revision of Asylum law in 2008. T he Scandinavian countries have inserted some references to
resettlement in law during the 2000s, long after their programmes had started.
In a majority of EU Member states, the formal basis for resettlement has primarily and
exclusively come from the executive authorities rather than from the Parliament. This confirms the
voluntary, and thus political dimension of resettlement. The commitment in refugee resettlement is
seen as a governmental decision, in addition, it is based upon political considerations more than any
legal obligation.
Moreover, a legal reference to resettlement is generally accompanied or followed by executive
measures, in order to specify the conditions in which resettlement shall be undertaken: the quota
(Ireland, Slovenia) and sometimes the target (Czech Republic) or geographical allocation of
resettlement (Finland, Sweden). Some executive measures are the basis for an ad hoc resettlement in
response to a specific call for resettlement. This was specifically the case in 2009 in response to
UNHCRs call related to the Iraqi refugee crisis (Belgium, Germany) and in 2011 in response to the
refugee crisis in Libya (Belgium, Germany, Hungary). In some other states, an executive measure is
taken to shape a programme, like in Bulgaria.
Nine EU Member states have absolutely no formal basis for resettlement and for some of them, this
is clearly linked to a refusal to commit to resettlement. With the exception of Austria and
Luxembourg, all of these states are situated at EUs external borders: the three Baltic states
(Lithuania 60, Estonia, Latvia), plus Greece, Italy, Malta and Cyprus. They invoke certain socioeconomic difficulties (Baltic states) and in the reception of aliens (Greece, Malta, Cyprus, Italy) to
refuse resettlement. Instead, the latter have called for the relocation of refugees from their territory to
other EU Member states. The absence of legal basis however did not prevent Austria and Luxembourg
to resettle some refugees on an ad hoc basis. Yet, Austria considers the reception of 31 Iraqis in 2011
as being the Churchs initiative and as a humanitarian evacuation. Luxembourg resettled 28 Iraqis in
58
Anna Andreeva, Final Conference, op.cit.
59
60
According to the representative of the Migration Department, the Lithuanian position on resettlement issue is clear
Lithuania is in favour of participation in resettlement programmes only on voluntary basis and refuses to take a part in
any such programmes. Communication with the representative of the Migration Department, 18th of November 2012.
324
2009. In Slovakia, according to a recent political resolution,61 resettlement is expected to begin in the
future years, it is also committed to relocation and to humanitarian reception through its ETC.
France and Italy are interesting examples of by-passing a lack of basis for granting asylum outside
the territory. The lack of national legislation explains the need for a subsequent post-arrival process for
resettled refugees to obtain a status. In both countries, the procedure of resettlement has to start
abroad. In Italy, the Ministry of Internal Affairs must first agree to the resettlement project and allow
the Ministry of Foreign Affairs to issue visas to the selected refugees so that they can apply for refugee
status once on Italian soil. In normal circumstances, issuing a visa to someone requesting asylum is
prohibited and considered as being favourable to irregular migration. 62 On Italian soil resettled persons
can ask for refugee status and the request is assessed, and generally confirmed, through priority
procedures by the relevant Territorial Commission. Similarly, in France, the government has
committed, through an agreement with the UNHCR concluded in 2008, to annually resettle a hundred
cases on a dossier-basis. Yet, it gives OFPRA (Office Franais Pour les Rfugis et Apatrides) the
responsibility to grant the refugee status on the basis of the resettled persons application when they
arrive in France.
While legal and other formal basis enabling refugee resettlement have been adopted in a growing
number of EU Member States, the different provisions relating to resettlement are all country specific.
There is no standard model shared in the EU. Those provisions can be divided between those which
mention the UNHCR and those which do n ot; those which specifically mention the word
resettlement and those which do no t; those which address the possibility to resettle without any
details and those which specify the procedures to follow and/or the rights granted. Paradoxically, the
countries which detail resettlement the most are also the countries which have not resettled yet, such
as Poland and Slovenia.
The diversity in the formal basis for resettlement is even greater in substance, when looking at the
content of resettlement frameworks and policies in the EU Member States.
3. Diversity in the Content of Resettlement Frameworks and Policies

While being part of the club is a k ey motivation for Member States getting engaged in refugee
resettlement, Member States are extremely unreceptive to any proposal to harmonise the selection of
refugees to be resettled. The ERF is a w ay in which the selection of refugees may be influenced.
Nevertheless, the EU is unlikely to develop a common selection procedure nor is it likely to reach an
agreement as to how to divide the resettled refugees amongst Member States . Even more problematic
is the diversity in the status and rights granted to the resettled persons and the integration capacity of
Member States.
3.1 Diversity in Selection Criteria and Procedures
The UNHCR has developed standards to identify and select the refugees who are most in need of
protection. EU funding instruments have partly supported those standards.
According to UNHCR Resettlement Handbook, Refugee status determination is a precondition to
resettlement. 63 The 1951 Convention and its Protocol constitute the primary refugee protection
instrument which provides the definition of a refugee. The UNHCR was initially established to seek
61
62
63
Migration Policy of the Slovak Republic- Perspective until the year 2020, 31 August 2011
Interview with Counsellor Fiammetta Milesi Ferretti, agent for the Ministry of Foreign Affairs on t he National
Commission for Refugees (Commissione Nazionale per il diritto dasilo), 5 May 2012.
UNHCR Resettlement Handbook 2011 p.21.
325
solutions for refugees, as they were be defined in the 1951 Convention. 64 On the basis of the soft law
which has made refugee law evolve, through Declarations and Resolutions adopted at inter-state level on
the one hand, and regional legal instruments adopted in Africa (the 1969 OAU Convention governing the
specific aspects of Refugee Problems in Africa) and in Latin America (the 1984 Cartagena Declaration
on Refugees) on t he other hand, the UNHCR has extended its mandate to persons affected by the
indiscriminate effects of armed conflict or other events which have seriously disrupted public order: In
addition to individuals who meet the criteria in the 1951 Convention definition, UNHCR recognises as
refugees persons who are outside their country of nationality or habitual residence and unable to return
there owing to serious and indiscriminate threats to life, physical integrity or freedom resulting from
generalized violence or events seriously disturbing public order.65
Resettlement applied to refugees falling under one or more of the UNHCR Resettlement
Submission Categories : 66
Legal and/or physical protection needs of the refugee in the country of refuge (this includes a
threat of refoulement);
Survivors of torture and/or violence, where repatriation or the conditions of asylum could
result in further traumatization and/or heightened risk; or where appropriate treatment is not
available;
Medical Needs, in particular life-saving treatment that is unavailable in the country of

refuge;
Women and Girls at Risk, who have protection problems particular to their gender;
Family Reunification, when resettlement is the only means to reunite refugee family
members who, owing to refugee flight of displacement, are separated by borders or
continents;
Children and Adolescents at Risk, where a best interests determination supports resettlement;
Lack of Foreseeable Alternative Durable Solutions, which generally is relevant only when
other solutions are not feasible in the foreseeable future, when resettlement can be used
strategically, and/or when it can open possibilities for comprehensive solutions.
Some EU Initiatives have come in support to UNHCR resettlement standards and policies.
The EU considers and funds resettlement operations only when they follow the UNHCRs requests
(Decision No 573/ 2007/EC (Article 3 (1) (d)). The transfer of refugees from a third country to an EU
country would not be considered resettlement and funded as such if it is carried out independently
from the UNHCR. The EU also supports the resettlement of specific categories of vulnerable persons
on the basis of the UNHCRs selection criteria and prioritizes the resettlement of some refugee groups
identified by the UNHCR as being in urgent need of group resettlement.
Decision 281/2012/EU of 29 M arch 2012 amending Decision 573/2007/EC has extended the
funding of resettlement to the following categories of vulnerable groups:
women and children at risk,
unaccompanied minors,
survivors of violence and/or torture,
64
A refugee is any person who owing to well-founded fear of being persecuted for reasons of race, religion, nationality,
membership of a particular social group or political opinion, is outside the country of his nationality and is unable, or
owing to such fear, is unwilling to avail himself of the protection of that country; or who, not having a nationality and
being outside the country of his former habitual residence as a result of such events, is unable or, owing to such fear, is
unwilling to return to it.
65
UNHCR Resettlement Handbook 2011 p.19.
66
Ibid., p.37.
326
persons having serious medical needs that can be addressed only if they are resettled,
persons in need of emergency or urgent resettlement for legal and/or physical protection
needs.
The amended ERF also prioritizes the resettlement of persons from a geographical location on the
list of common priorities. For 2013, this list includes: Congolese refugees in the Great Lakes Region
(Burundi, Malawi, Rwanda, Zambia); Iraqi refugees 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.
The amended ERF still funds resettlement of persons from a country or region designated for the
implementation of a Regional Protection Programme, and these programmes have been extended. The
first two Regional Protection Programmes targeted the Newly Independent States (NIS) (Ukraine,
Moldova and Belarus) and the Great Lakes Region (Tanzania). They now also cover the Horn of
Africa (Kenya, Djibouti and Yemen) and North Africa (Egypt, Tunisia and Libya).
a) The Selection Process
During the last decade, most of the resettlement operations carried out in EU Member States have
relied on UNHCR pre-selection, with some exceptions:
In 2011, Austria resettled 31 Iraqis directly from Iraq where they had been selected by the
Church, through representatives in Iraq of the archdiocese of Vienna. This operation was
following the initiative of the Cardinal Christoph Schnborn.67 The Austrian authorities
emphasize that the resettlement activities of these Christians from Iraq were a humanitarian
evacuation and not resettlement. Austria defines resettlement only those evacuations where
refugees are evacuated from a third country and not from their country of origin. 68 The
activities that have been carried out by Austria were an expression of solidarity and not a
commitment to any further resettlement in the future.
In 2011, on his way back from a visit to Tunisia, the Polish Minister of Foreign Affairs took
a group of refugees on bo ard of his plane, who after escaping from Libya, had found a
temporary shelter in Tunisia. 69
It should be noted that these two countries are not considered as being resettlement countries.
Apart from these isolated examples, EU Member States select the refugees to be resettled from a
list referred to them by UNHCR. Yet, only six Member States refer to the UNHCR in their laws as one
of the basis or as the basis of resettlement, i.e. Hungary, the Czech Republic, Denmark, Finland,
Ireland and Spain.
Section 7(5) of the Hungarian Asylum Law provides that the Minister may grant refugee status to
an alien who was granted recognition as a refugee by the competent authorities of another country or
the Office of the United Nations High Commissioner for Refugees. The Czech law, Section 90
(Chapter XII, Joint, Delegating and Temporary Provisions) is similar: The Czech Republic may grant
asylum to an alien without previous proceedings if he/she has been recognized as a refugee according
to an international agreement by a decision of the Office of the High Commissioner (UNHCR). Also
67
http://www.bmeia.gv.at/aussenministerium/pressenews/presseaussendungen/2011/ankunft-von-30-irakischen-christen-inoesterreich.html (February 2012).
68
Interview with the Austrian Ministry of the Interior, 6 February 2012.
69
Sources: Polish Ministry of Foreign Affairs - note available on the Ministry of Foreign Affairs website:
http://www.msz.gov.pl/en/news/foreign_minister_radoslaw_sikorski_brings_home_north_african_refugees and in the
press and radio: http://www.polskieradio.pl/5/3/Artykul/387167,Sikorski-wroci-do-Polski-z-uchodzcami-z-Libii;
Interviews with Mrs Agnieszka Kunicka, Head of the Refugee and Repatriates Counselling Centre, Polish Humanitarian
Action, and Mr Maciej Fagasiski, Amnesty International Poland, May 2012.
327
Section 8 of the Danish Alien Act: Upon application, a residence permit will be issued to an alien
who arrives in Denmark under an agreement made with the United Nations High Commissioner for
Refugees or similar international agreement (). Section 90 of the Finnish Act (Refugee quota)
stipulates Under the refugee quota, Finland may admit for resettlement persons considered refugees
by UNHCR or other aliens in need of international protection (). In the Irish Refugee Law, the
following subsection was inserted in 2003: The Minister may, after consultation with the Minister for
Foreign Affairs, enter into agreements with the High Commissioner for the reception and resettlement
in the State of refugees. The Spanish Law on a sylum makes specific reference to resettlement
programmes in the First Additional Provision: The protection framework envisaged under the present
law shall apply to persons who gain entry to Spain through resettlement programmes developed by the
Government, in conjunction with the UNHCR and in some cases, other relevant international
organisations () (unofficial translation).
The other Member States do not mention UNHCR in their national laws.
When referring some cases to resettlement states, the UNHCR takes into account the preferences
and criteria previously discussed with and indicated by the Member States. Then, resettlement States
generally add their own selection process, either on a dossier-basis or through selection missions, and
may search for certain criteria which the refugees must satisfy.
The selection process in different States is extremely diverse. Criteria and procedures vary from
one country to another. They may also vary from one year/period to another.
While Luxembourg and Portugal have exclusively resettled on a dossier-basis, for some Member
States, dossier selection has become the rule after experiencing selection missions. In Ireland, face-toface interviews are considered as the best form of selection. You get a feel for the people to be
resettled, can gather specific information, correct bio data etc. hear stories of their experiences first
hand, explore family links that are not always visible on the RRF. With this information you can better
prepare for their arrival and reduce surprises for service providers. You also have the opportunity to
dispel myths and reduce unrealistic expectations and answer questions through a short cultural
orientation programme held in association with the interviews. We also talk separately to the
teenagers, the women and men as separate groups so that each one could ask their specific questions.
That can be very interesting and enlightening. Yet, Ireland conducted selection missions only from
2005 to 2008 due to the reduced numbers (of resettled refugees) at the moment. We too must be
realistic about the benefits based on the costs and effort required by many organisations to organise
such missions. The numbers we are currently taking do not warrant missions. 70
Spain, which organised selection missions to Tunisia in 2011 and in 2012 to Syria, decided to base
its 2013-2014 programme on dossiers. Italy only had selection missions in Iraq in 2009 to assess the
local situation. Future resettlements to Bulgaria will be selected on a dossier basis.
Selection on a dossier-basis does not necessarily mean an easier and faster process. For instance,
France refuses half of the dossiers submitted. 71 Around eighty percent of all refugees from Iraq
selected were accepted through selection missions, and twenty percent were selected based on dossiers
provided by the UNHCR. Selection missions enable the authorities to have a clear and more realistic
idea of how refugees live in their country of first asylum. Yet, selection missions come in addition to
interviews already carried out by the UNHCR and may be considered by refugees as being an endless
and exhausting process.
70
71
Matthieu Tardis, France Terre dAsile, 31 May 2013.
328
Most of Member States use both selection methods. Among the ad hoc resettlement countries,
Belgium selected on a dossier-basis from Tunisia in 2011 while it organised a selection mission to
Syria and Jordan in 2009. For reasons of objectivity and verification it was decided at the time that a
selection mission was necessary and that a dossier-based selection was not desirable. An important
reason for this was the specificity of the refugee population: a section of the nominated dossiers
involved persons with possible ties with the Baath-regime of Saddam Hussein. The interviews carried
out on location delivered additional and relevant information, that made it possible for the CGRS to
make final decisions in questionable or complex dossiers, in both a positive and a negative manner.
For the resettlement of Eritrean and Congolese refugees from the Shousha camp in Tunisia in 2011,
a selection mission was also planned initially. However, it was decided that this mission would be
cancelled due to the deteriorating security situation in the Shousha camp and the subsequent request
by UNHCR not to organise a selection mission. Because the protection need, primarily that of the
Eritreans, was overwhelmingly clear and the RRFs of UNHCR were in general sufficiently extensive
and detailed for profound analysis of the credibility and the refugee criteria, the Secretary of State
Wathelet decided to follow the advice of UNHCR. This dossier-based selection was evaluated as
positive and after arrival no cases of abuse where established. Cost cutting and speed of execution are
the most important advantages of dossier-based selection. 72
The Czech Republic has opted for a policy of selection missions but dossier selection is still
possible. Slovenia has taken the exact opposite stance for future resettlement. In Denmark and
Finland, the rule is to select through missions but urgent cases can be selected through dossiers.
Similarly, Belgium foresaw that if it were to evolve to a resettlement country with a set programme, it
would be possible for example to opt to reserve a number of places for dossier-based selection and
urgent or emergency resettlement places. Another part of the quota, more specifically the priority
groups, could then be selected through missions. 73
In the UK, refugees are generally selected for GPP resettlement during selection missions. Some
cases are considered on a dossier basis. In future, some interviews may be conducted using remote video
conferencing facilities.74 Finland accepts around one hundred emergency cases a year on a dossier basis
as an exception to the normal procedure which is to organise selection missions conducted by MIGRI
officials, representatives of Employment and Economical Development Centres and, if necessary,
security officials. In recent years, local municipalities have also taken part in the missions.
The Netherlands, which suspended missions from 1999 to 2005, chooses a hundred refugees a year
on a dossier-basis and four hundreds through missions. Sweden has a specific approach, and selects
more than half of its quota though dossiers and less than a half through missions.
Four Member States have opted for a selection on a mission-basis only, namely Germany,
Hungary, Poland and Romania.
Selection missions are conducted in countries of first asylum, but may also be organised in an ETC
in Romania or in Slovakia. The UK for instance selected some Palestinians from Syrian/Iraqi border
camps in the ETC in Romania in 2009.
Whether or not they select on a d ossier or mission basis, some Member States may require the
selected refugees to apply for their status after arrival. This is the case in France and in Italy, as
already mentioned above. This decision has most likely been made on the basis of legal reasoning: the
law does not allow the granting of status abroad. France terre dasile notes that, even if OFPRA (the
French Office for Stateless persons and Refugees) tries to examine the applications on an accelerated
72
73
74
Written interview with Ewout Adriaens, op.cit.

Ibid.
329
basis and always provides a positive answer, this additional application process has a psychological
impact on the refugees. Added to this, the additional application process also represents extra work for
integration stakeholders. The process of integration is also postponed. 75 In 2013, F rance made a
number of commitments to reduce the obstacles that exist for refugees. As a result, resettled persons
will not need to wait for their refugee stay permit which takes months before being able to access
integration programmes, including French language classes. They will be able to sign their integration
contract upon arrival. On top of this, OFPRA may no l onger interview refugees and only apply a
transfer of protection. 76 This is already the case in Belgium, where the resettled refugee, upon arrival
in Belgium, must also go through the same steps as a regular asylum seeker even though this is merely
a formality (i.e. no interview is carried out by the Immigration Service, nor by the CGRS). 77
The post-arrival application process in addition to the pre-arrival selection process exists in nine
Member States, i.e. Belgium, Italy and France as have been already mentioned, as well as the Czech
Republic, Germany, Romania, Hungary and Poland where it is foreseen in the future. Finally, in
Sweden the post-arrival application process is optional. The majority of those countries have
committed to resettlement on a p rogramme-basis. Only Sweden, among them, is a traditional
resettlement country, and the post-arrival application process is not a requirement but a p ossibility.
The resettled persons receive their permanent residence permit independently of their status. The
status of refugees can enable the resettled persons to have better access to some rights, such as family
reunification. The requirement of a post-arrival process is not based on the fact that resettled persons
have been selected on a dossier-basis since Sweden, the Czech Republic, Germany, Hungary and
Romania also organise selection missions. This additional application process still prolongs the road to
protection for vulnerable persons who have already followed an extremely long process to be
recognised as refugee by the UNHCR, then being selected by UNHCR to be resettled, then by the EU
Member State in the country of first asylum. It is thus recommended to abandon this additional
process or at least to make it optional like in Sweden.
b) The Selection Criteria
Some resettlement states have advised the UNHCR that they are only prepared to accept refugees from
certain locations or that they wish to exclude or favour certain categories of refugees. The UNHCR
takes these profile restrictions into account when referring refugee cases to the different receiving
States. In addition, those countries may add some other criteria in selecting refugees on a dossier or
mission-basis. Those selection criteria thus vary from one Member State to another. They may be
based on a series of national factors, that can be political, economic, legal, etc.
Geneva Convention and Mandate Refugees
Some Member States do not wish to depart from the refugee definition provided by the Geneva
Convention and would not resettle refugees who do not meet its criteria. This is, for example, true in
the case of the Czech Republic. This is also a legal requirement in Hungary (Asylum Law, Section
7(5)). The Romanian Law (art.3(5)) similarly requires that resettled persons meet the requirements of
the Geneva Convention. However, other Member States include the possibility to resettle persons who
would meet the conditions to be granted subsidiary protection or humanitarian protection (e.g.
Denmark, Finland, Sweden). In contrast, the Irish Refugee Act states that the person does not need to
meet the definition of a refugee. In Section 24, A programme refugee means a person to whom
leave to enter and remain in the State for temporary protection or resettlement as part of a group of
persons has been given by the Government and whose name is entered in a register established and
75
76
77
Matthieu Tardis, 31 May 2013, op.cit.

Ibid.
330
maintained by the Minister for Foreign Affairs, whether or not such person is a refugee within the
meaning of the definition of refugee in section 2. The wording of the Finnish Act is also quite
open: Section 90 s tates that Under the refugee quota, Finland may admit for resettlement persons
considered refugees by UNHCR or other aliens in need of international protection; Section 92
stipulates among the Requirements for admitting aliens into the country under the refugee quota, that
1) The alien is in need of international protection with regard to his or her home country, 2) The
alien is in need of resettlement from the first country of asylum, 3) The requirements for admitting and
integrating the alien into Finland have been assessed, 4) There are no obstacles under section 36 to
issuing a residence permit.
ECRE advocates that the determination of a protection status for resettlement within a European
Resettlement Programme should be flexible, involving an inclusive interpretation of both the refugee
definition in the 1951 Refugee Convention and of persons qualifying for subsidiary protection
according to the EU Qualification Directive. Refugee Status Determination should also strongly ()
allow for resettlement to be extended to refugees recognised under the UNHCR mandate, including
those recognised under the extended mandate. 78
As stated in the UNHCR Resettlement Handbook, the prima facie group determination is more
easily applied in States which accept a wider definition of a refugee that includes indiscriminate or
generalised violence. 79 Most of the Member States would actually accept the resettlement of persons
who do not necessarily fulfill the Geneva Convention criteria but would correspond to the subsidiary
protection or humanitarian protection criteria. Yet, the status granted to those resettled persons would
thus very likely be less protective than refugee status.
Group Resettlement and Strategic Use of Resettlement
As mentioned above, the UNHCR has an active role in identifying priority caseloads for
resettlement to orientate resettlement states attention on certain refugee situations.
Recently resettled groups have included: Liberian refugees from Guinea and Sierra Leone, Somali
refugees from Kenya, Burundian refugees from Tanzania, Congolese refugees from Burundi, Eritrean
refugees from Ethiopia, Eritrean refugees from Saudi Arabia, Afghan refugees from Tadjikistan,
Uzbek refugees from Kyrgyzstan, Burmese refugees from Thailand and Malaysia and Bhutanese
refugees from Nepal. 80 The caseloads identified for 2012 were: Iraqis in Jordan, Syria and Lebanon;
Iraqis and Iranians in Turkey, Afghans in Pakistan; Afghans in Iran; Somalis in Dadaab Camp in
Kenya; Colombians in South America; Eritreans in East Sudan; North Africans displaced from Libya.
The observation of national statistics clearly shows the participation of EU Member States to group
resettlements and the sharing of the same groups among some Member States. Iraqi refugees have
been resettled in eleven Member States, with the largest contributors being Germany, France, the UK
and Finland. The same groups of refugees may be resettled over several years. Like Germany and
France, the Netherlands has resettled Iraqis for many years from the early 1990s. In 2010, t he
Netherlands quota allocated 150 places for Iraqi refugees. Likewise in the UK, which had pledged
that two-thirds of the 750 annual places would be reserved for Iraqis in 2008. The UK continued to
resettle refugees from Iraq in 2010 and 2011. 81
Burmese refugees have been resettled in Ireland, the Netherlands, the UK and have represented the
largest number of resettled persons in the Czech Republic, Denmark and Finland during the past
78
ECRE AD10/12/2008/ext/AB, Concrete steps towards a European Resettlement Programme, Brussels, 10 December 2008.
79
op.cit., p.19.
80
Ibid., p.57
81
10,000 Refugees from Iraq, A report on Joint Resettlement in the European Union, op.cit., pp.25, 27.
331
decade. 82 Congolese have been resettled in Denmark, the Netherlands, Portugal, Finland, the UK and
Belgium; Bhutanese refugees have been received in Denmark and the Netherlands, and Afghan
refugees have been resettled in Finland, Sweden and the Netherlands, among others.
A strategic use of resettlement can become part of a States foreign policy. The Czech Republic
explains the focus of its resettlement programme on the Burmese by the long-term support for the
Burmese democratic movement. Burma has long been a priority country for Czech foreign policy
former President Vclav Havel nominated Daw Aung San Suu Kyi for the Nobel Peace Prize. 83 The
Netherlands is also deeply influenced in its choice of mission destinations by the potential to make
strategic use of resettlement. In their view, resettlement should contribute to the improvement of
refugee protection and resettlement and should be the final cornerstone of the three durable solutions
(return, local integration in the region and resettlement). The Dutch mission to Sudan in 2012 is a
good example of the strategic selection of a mission destination.84 The Dutch Minister for Immigration
and Asylum recently proposed that resettlement be used as strategically as possible with regard to the
other objectives of the countrys migration policy.
Among refugee groups, certain caseloads have been labelled risky, such as the Somalis in Kenya,
and others have constituted favoured caseloads, such as the Burmese from Thailand. The latter are
deemed to be a low security risk and are believed to have attributes that make it easier for them to
adjust to life in the resettlement country. This has led to situations where resettlement states actively
compete for some groups of refugees while ignoring others in equally vulnerable situations.85 As a
result, Afghans were the largest refugee population in 2011 but were ninth when it came to
resettlement. The Burmese, on the other hand, were seventh in overall population size but second in
terms of the numbers resettled. Some larger refugee groups (the Sudanese, Vietnamese, Chinese and
Serbians) did not feature at all in the top ten resettlement caseloads whereas the largest resettlement
caseload (the Bhutanese) is from a numerically small community. 86
Bulgaria announced that the priority groups of its resettlement pilot programme would be Afghan
and Iraqi refugees from Turkey, 87 which appear among the 2013 priority groups of the amended ERF.
The financial incentive provided by the ERF evidently influences some Member States contribution
to group resettlement.
In Ireland, the preference is for group resettlement, particularly if there are five or more families from
the same region where they can be a self supporting group. Group resettlement allows us to place the
refugees outside of the Capital in smaller communities without the risk of isolation. We tend to resettle
individual cases in Dublin or Cork where they may find members of their own community. From an
economy of scale point of view, group resettlement allows for the provision of a centralised reception,
orientation and language training programmes post arrival to prepare the group for independent living.
Service providers will be more inclined to engage in preparation activities for groups. 88
82
See Know Reset graph here http://www.know-reset.eu/?c=00693
83
Petr Novak, Know Reset Final conference, op.cit.
84
85
Written interview with Janneke van Etten, Senior Policy Officer at the Ministry of the Interior and Kingdom
Relations, Migration Policy Department, Asylum, Reception and Return. Answers provided in consultation with the
Immigration and Naturalisation Service, the Central Body for the Reception of Asylum Seekers and the Ministry of
Foreign Affairs, April 2012.
Refugee Resettlement: 2012 and Beyond, op.cit.
86
Ibid p.24
87
Interview with Anna Andreeva, Bulgarian State Agency for Refugees, February 2012.
88
332
In contrast, France does not currently want to engage in group resettlement. Indeed, a commitment
such would imply a commitment in terms of capacity that France says it does not have. 89 Moreover, it
decided not to respond to the UNHCR special Call for North Africa and explained to the European
Commission that the reason was the generosity of France for the plight of refugees in the world as
evidenced by the high number of asylum seekers.90
Geographical/National Origin and Regional Protection Programmes
Member States may have some preferences in selecting refugees from particular countries of origin or
of first asylum. The preference for some national origin can be dictated by a search for continuity in
the foreign communities already present in the receiving country. Some Member States believe that a
sustained concentration of resettlement and reception on a particular group improves integration
potential. In other words, if a State continues to resettle from the same group then an existing
community is ready to welcome newly resettled refugees of that same group. Some Member States,
like Portugal, favour a continuity in the origin of the refugees to be resettled. In Finland, the annual
geographical allocation of the quota is also based on the need of continuity in the chosen refugee
groups. France prioritized cases that have links with France or knowledge of French in the Iraq 500
and EU relocation schemes even if, in practice, NGOs did not notice that these refugees had specific
links with France.
Then, the selection of refugees hosted in some countries of first asylum can be influenced by the
development of Regional Protection Programmes (RRPs). The 2005 Communication which provided
for RPPs 91 set out that RPPs should be brought forward with the intention of enhancing the protection
capacity of the regions involved and better protecting the refugee population by providing durable
solutions, one of which is resettlement. The Communication stated that the resettlement of refugees
from countries covered by an RPP to EU Member States was seen as an important factor in
demonstrating the partnership element of RPPs to third countries. 92 Since that 2005 Communication,
RPPs have continued to be an important element in how the EU has approached resettlement. RPPs
were again central to the landmark establishment of JEURP in 2009.93 That Commission
Communication stated that in RPPs which will be developed in the future, resettlement should be
more effectively incorporated and its implementation should be closely monitored. 94 The Council and
Parliaments Decision in 2013 on the EUs resettlement priorities for 2013 further underlines the
continued influence of RPPs in how the EU resettles.
The UKs regional preferences are influenced by the situation of the RPP.95 This is also the case for
Belgium 96 and Portugal as additional European funding is available if resettlement takes place from a
country/region where a Regional Protection Programme is in place.
Resettlement countries wish to favour the integration of the resettled refugees, not only at the postarrival stage with integration tools but through selection. This can be done through opting for
continuity in chosen groups, or through choosing certain UNHCR categories like women-at-risk and
unaccompanied minors, who might be more expensive in a financial sense but are also more easily
inserted into the receiving society.
89
90
91
COM(2005) 388 final.
92
Page 4, paragraph 7.
93
COM(2009) 447 final.
94
Page 10.
95
96
333
UNHCR Submission Categories and EU Priority Funding

The role of European funding in targetting the categories of refugees to be resettled may be
determinative in some Member States. In Portugal, the selection criteria for 2008-2013 followed the
categories identified in paragraph 3 of Article 13 of the ERF. Cases accepted by the Government have
been routed, so far, in legal or physical protection needs and in the absence of local integration
prospects in the first country of asylum. 97
While a recent research paper was wondering: Why is it that the acceptance rate of submissions
relating to women, children and adolescents at risk has the lowest acceptance rates when it can easily
be argued these are some of the most vulnerable refugees?,98 this category of vulnerable refugees has
been prioritised by several Member States and has also been prioritised by the ERF.
Belgium prioritized Palestinians and women-at-risk in 2009. In 2011, i t favoured families with
children and single women. The UK also decided on the resettlement of a small percentage for
medical cases and a h igher percentage for women-at-risk. 99 Most Iraqi refugees arriving in the UK
through the GPP between the end of 2008 a nd 2010 were families, in addition to some cases of
women-at-risk. 100 There are no so-called important target groups to be found in the Dutch policy,
these depend on the mission destinations and as such can change on an annual basis. However, persons
with traumatic experiences (victims of violence or torture), women at risk and persons with serious
medical conditions do receive special attention.101 Similarly, for France, protection needs are the main
criteria for the Ministry and more particularly the lack of protection and integration prospects in the
country of first asylum. Vulnerable groups such as women and children at risk, victims of violence and
medical needs are prioritised. 102
The proportion of resettled women (not only at risk) seems to be higher than the proportion of men,
This is also the case in the refugee population as a whole in at least in five EU Member States where
the information has been made available. In Belgium, women have accounted for 79% of the total of
resettled people over the past decade. This figure stands at 60% in Portugal, 55% in Germany, 53% in
Romania and 51% in the UK. 103
In contrast, some categories of vulnerable persons, like elderly persons, may be deemed unlikely to
integrate and therefore may not be accepted for resettlement. This is the case in Ireland. In the past a
small number of unaccompanied older persons were accepted and while their safety and security was
taken care of they were very isolated and lonely. Rather, many older people are admitted as a part of
family units. They may eventually live apart but they benefit from the support of the family unit that
accompanied them. 104
Likewise, in general, cases with serious mental health issues are not accepted. This is due to
difficulties accessing appropriate services in the Irish Mental Health sector. Issues arise as many of the
cases referred through resettlement have minority languages and it can be difficult to provide services
through an interpreter that is not specifically trained to interpret in a mental health environment.
Therefore, in the best interests of the applicant we do not accept persons with serious mental health
97
Interview with Internal Affairs, Portugal, op.cit.
98
Refugee Resettlement: 2012 and Beyond, op.cit. p.28. The same report actually notes that since 2006 there has been a
renewed focus on women and girls at risk.
99
100
10,000 Refugees from Iraq, A report on Joint Resettlement in the European Union, op.cit., p.26.
101
Interview with the Dutch Ministry of Interior, op.cit.
102
Presentation of the Head of the Asylum Service of the Ministry of Internal Affairs to a seminar on resettlement organised
by France terre dasile in June 2011, reported by Matthieu Tardis during his interview, op.cit.
103
See the Know Reset graph here http://www.know-reset.eu/?c=00691
104
334
issues. 105 In France too, authorities and social workers are making a l ink between the selection
criteria, and the refugees integration. Namely, they consider that vulnerable refugees (medical cases,
aging refugees) are more difficult to accommodate and to integrate.106
Unlike the other Nordic countries, Sweden does not have special provisions for special categories
like urgent medical cases.107 Sweden prioritises maximum flexibility in filling the quota. It considers
that, if a specific number of places is established for women for example then one has to deny places
to this category after the ceiling has been reached. Moreover, if there are fixed places for a category
e.g. unaccompanied minors, it can be difficult to find places for this category in municipalities.108
Strategies designed far in advance of programme resettlement can result in certain difficulties in
responding to emergency situations. When a crisis develops, such as the situation that occurred when
resettlement was urgently required for large numbers of refugees who had fled to Egypt and Tunisia
from Libya in 2011, the response was extremely slow. On a macro level, it is relevant to note that
during 2011, only 72.7% of cases that the UNHCR had submitted to Member States and that were
deemed as having emergency priority, were accepted. This compares to 86.1% of the urgent
priority cases and 94.1% of the normal priority cases and reflects a situation where refugees with
relatively lower protection needs have a greater chance of being resettled in a timely manner.109
Some Member States allocate part of their quota for urgent and emergency cases, like Sweden (350
places). Other countries such as I reland do not have a r eserved number of places for emergency
resettlements, such cases are included in the quota. The UK, for its part, does not support the
resettlement of refugees in emergency situations and argues that its policy is to provide help and
advice in alleviating the situation in situ.110 It considers that resettlement programmes are aimed at
relieving the burden of refugees in protracted situations where resettlement is the only viable solution.
Some Member States resettle specific categories of refugees, independently of UNHCR and the EU
priorities. Sweden for instance has an agreement with the International Criminal Court in The Hague
to offer resettlement to Tribunal witnesses and their family members.
Denmark agreed in 2007 to resettle Iraqis, following an initiative by Danish soldiers in Iraq. It
decided to resettle Iraqis who had formerly worked for the Danish Coalition forces in response to
reports that the safety of a number of employees and their families was threatened because of their
association with the troops. The decision to resettle preceded the withdrawal of Danish troops by
approximately one month. International media sources reported that two hundred Iraqi aides and
translators were secretly airlifted out of the southern region of Basra in July 2007. Likewise, in 2007,
the British government began to resettle Iraqis that were formally locally employed (LE) with the
British Armed Forces or civilian missions. The UK decided to reserve 600 of the 1,000 places
allocated for Iraqis from the end of 2008 to March 2010 to LE and their dependants, provided they
meet the UK resettlement programme criteria. The UK government stopped accepting LE Iraqi
applications for resettlement in May 2009; although not all of those who were accepted had arrived. A
smaller number of Iraqis, who were not former employees of the British Forces in Iraq, have been
accepted for resettlement based on referrals from the UNHCR. In 2013, the UK announced the same
priority for former locally-engaged staff in Afghanistan 111.
105
106
Ibid.
107
Interview with Oskar Ekblad, op.cit.
108
Phone interview with the Swedish Ministry of Justice, Division for Migration and Asylum Policy, 30 March 2012.
109
110
111
See for instance here http://www.bbc.co.uk/news/uk-22620207
335
National preferences for certain refugee categories, when they do not compete, can be
complementary. From 2008, when refugees having fled from Iraq were resettled in EU Member
States, some Member States opted to resettle Palestinians while others preferred Iraqis, most of the
time on the basis of a pre-existing community in the country. The UK and Italy made Palestinians a
resettlement priority in 2009, while Germany, Luxembourg and Portugal have not integrated
Palestinians into their ad hoc or quota resettlement programmes for Iraqi refugees.
The objective of having a concerted approach to resettlement in the EU should not necessarily be to
have the same targets in all the Member States, except when a group situation urgently needs to be
resolved. Currently, despite the apparent diversity in selection criteria, there is a c ertain amount of
common ground in relation to profile restrictions, which results in competition for the favoured
caseloads while those in the excluded groups can be left out in the cold.112 This situation is partly due
to resettlement states focus on the integration potential of refugees.
The Integration Potential: A Criteria for Refugees or for the receiving society?
One important consideration is the introduction of the so-called integration potential criteria into the
selection process. It has been adopted by the Czech Republic, Denmark, the Netherlands, Finland,
France, Germany, Slovenia. In Romania, the potential for integration was applied in 2008, but dropped
in 2012 in the revised resettlement programme after discussions with the UNHCR. Denmark has even
incorporated the integration potential criteria into legislation and added supplementary criteria of
influence: language qualifications, education and work experience, social network, age, motivation.113
The Dutch Minister for Immigration and Asylum recently proposed to the UNHCR that they select
higher profile refugees such as human rights activists and academics.
Actually, several Member States which have committed to resettlement, expect a return on their
investment. In Spain for instance, the incentives could be to obtain some form of compensation for the
participation in European Resettlement programmes, financial compensation alone would not be
enough because these programmes should be co-financed by each EU Member State. Perhaps the
selection of highly qualified/skilled persons who would be more likely to integrate into Spanish society
may positively determine an eventual decision to resettle. The most important factors may include the
necessity to obtain skilled workers suitable for the labour market of each country, as well as a profile
of resettled people who wont run up excessive expenses in the health care or social system of EU
Member States. 114
This is a reminder of resettlement policy after WWII, as ex plained by Sweden: Resettlement in
Sweden started in 1950, when the first annual refugee quota was set. To begin with, the Swedish refugee
quota was a contribution to the international ambitions to empty the refugee camps in Europe after the
Second World War. At the time, Sweden also suffered a labour shortage. In fact, nine out of ten of the
collective transferred refugees between 1950 and until mid-1970's were of working age and able-bodied.
Sweden's resettlement activities have since taken a humanitarian direction.115 Today, Sweden does not
use integration criteria, and believes that the integration element can be evaluated in cases of labour
migration but not in the case of refugees, where the need for protection should be decisive. 116
112
113
Section 8 (4) of the Aliens Act: In the selection of aliens issued with a residence permit under subsections (1) to (3), the
aliens possibilities of establishing roots in Denmark and benefiting from the residence permit, including their language
qualifications, education and training, work experience, family situation, network, age and motivation, must be
emphasised, unless particular reasons make it inappropriate.
114
Interview with an advisor to the Spanish Employment Ministry, op.cit.
115
116
Interview with Andreas Ollinen, op.cit.
336
While basing the selection of refugees on criteria that is supposed to favour integration rather than
vulnerability is problematic, the frontier between both considerations can be tiny. In 2008, Germany
was considering helping Iraqi refugees suffering religious persecution and sought specific measures to
help Christian Iraqis. Since the Christians were persecuted because of their religion, governments
easily argue that the reason for their selection was their particular vulnerability. Yet, choosing
Christians instead of Muslims may also be motivated by some EU Member States wish to limit the
reception of a culture deemed to be a threat to the main culture of the country. In 2008, after much
internal and external debate and negotiation involving UNHCR and the EU, Germany agreed to admit
not only refugees from persecuted minorities but also vulnerable refugees with specific medical needs
and female headed-households. 117 Likewise, in France, the Iraq 500 programme was adopted by the
President of the French Republic after a visit of the Minister of Foreign Affairs to Iraq and his meeting
with a h igh representative of the Chaldean Catholic Church there in 2007. The scheme was first
dedicated only to Christian Iraqis. Some organisations, including France terre dasile, protested against
the scope of this humanitarian programme and underlined the contradiction between, on the one hand,
the target of the programme and, on t he other hand, the principle of secularism and the protection
grounds. Finally, the programme was opened to all persecuted minorities.118
A specific situation that seems to particularly impact upon Eastern European countries is that most
of them argue that refugees do not want to be resettled in their countries. Bulgarian experience with
relocation, considered as a test for further resettlement, revealed that no refugee in Malta was ready to
go to Bulgaria. 119 The refugees resettled in Romania in 2009 are said to have left the country after they
received a residence permit. The group of 38 refugees resettled in Romania were extremely unhappy
about their current situation and what they felt was a dire socio-economic condition compared to their
lives in Malaysia, where there were plenty of jobs and good wages () The refugees claimed they had
been given confusing information about their new home country by the Romanian authorities and
UNHCR during the cultural orientation course prior to their departure. They criticized Romania for
not being a good resettlement country and demanded that the UNHCR send them to the USA or a
Nordic country. 120 Hungary had a si milar experience. In 2007, i t provided refuge to 29 C uban
nationals who were living on the US base in Guantanamo. The majority of the refugees had already
left Hungary only a few months after arrival and settled down in Spain. Hungary has also participated
in the EU relocation pilot project in Malta (EUREMA). The relocated couple spent only three days in
Hungary before returning to Malta. Having assessed the reception conditions actually offered by
Hungary the relocated couple found that they were not given what had been promised to them.
In Italy too, the Palestinian refugees resettled in Riace fled to Norway, where they are said to have
received a more attractive social package and would have better socio-economic opportunities.121
They were then brought back to Italy even though they were not brought back to Riace but were
reinserted in other reception facilities in Italy. Italy considers that it is the lack of money available
which led to the Palestinians leaving the country.
These countries actually share several gaps in their integration capacity and probably a lack of
qualified resettlement/relocation planning that takes place before the arrival of the resettled/relocated
117
10,000 Refugees from Iraq, A report on Joint Resettlement in the European Union, op.cit.
118
119
Anna Andreeva, Final Conference, op.cit.
120
2010 Participatory Assessment Report of UNHCR Being a refugee How refugees and asylum-seekers experience life in
Central Europe, available online at http://reliefweb.int/report/bulgaria/being-refugee-how-refugees-and-asylum-seekersexperience-life-central-europe
121
According to the Counsellor Milesi Ferretti, op.cit.
337
refugees. 122 Most of all, they share a p roblem of managing refugees expectations which is also
underlined in France 123 despite the better integration capacity available there.
The 2012 D ecision in Romania, which dropped the integration potential criteria, nevertheless
requires refugees to express their consent to be resettled in Romania before being moved there. This
option is the result of a misunderstanding on the part of the Romanian State as to the reasons why
refugees leave the country post resettlement and as to the purpose of resettlement in the first place.
The decision suggests that refugees should be grateful to be resettled in the EU, regardless of the
situation that they find themselves in once they have been resettled. If there was better information as
to the reception conditions available and as to life in the receiving country then expectations would be
more realistic. 124
Besides, resettlement should not be about what the entrants can do for a country but more about
what the country can do for them. The raison dtre for resettlement is and always should be
protection. () Who is to say that people determined not to possess integration potential will not
settle well? There is ample evidence that this need not necessarily be the case providing refugees are
given the right sort of assistance. 125 Resettling governments that focus on the integration potential
of refugees justify their position by claiming that it makes it easier to provide services and that
integration will be more successful. These criteria, however, are hard to meet for displaced persons
who were born in camps or who have been living there for a long time. They are also likely to rule out
some of the most vulnerable refugees.
In selecting refugees for resettlement, the UNHCR urges countries not to use integration potential
and other discriminatory criteria (e.g. family size, age, health status, ethnicity and religion). Such
discrimination undermines the protection and needs-based approach to resettlement, creating
inequalities and protection gaps, and limits access to resettlement for some of the refugees who are
most at risk. The integration of refugees in a country of resettlement is therefore a sep arate
consideration, which involves the refugees adaptation and active participation in the new society. 126
Recently, the UNHCR has called for the resettlement of 2,000 Syrian refugees by the end of 2013.
People with serious medical needs and the disabled are set as being resettlement priorities by the
UNHCR. 127 The UNHCR announced that it will discuss the selection with each resettlement country
to avoid the application of discriminating criteria such as religion. It has called the resettlement
countries to be flexible in their selection criteria.128
Instead of discussing the integration potential of refugees it might be useful to move forward to a
focus on the integration capacity of (the receiving country). This way, the responsibility rests on the
receiving country to ensure access to necessary support services in place to facilitate integration of
arriving refugees. 129
Yet, as stated above, the more EU Member States that are open to flexibility in selecting refugees,
the more those States may provide flexibility in the status and rights granted to refugees. Indeed,
recent resettlement experiences have led to the resettled persons being granted a temporary protection
and rights that are not similar to those offered with the refugee status.
122
123
Interview with Matthieu Tardis, op.cit. and Interview with the Ministry for Integration, Asylum Service, 3 April 2012.
124
125
126
127
UNHCR Responding to protection needs of displaced Syrians in Europe June 2013.
128
Newsletter 59 France terre dasile, September 2012.
129
338
3.2 Diversity in Status and Rights Granted 130

According to the UNHCR, resettlement involves the selection and transfer of refugees from one state
in which they have sought protection to a third state which has agreed to admit them as refugees
with permanent residence status. The status provided ensures protection against refoulement and
provides a resettled refugee and his/her family or dependents with access to rights similar to those
enjoyed by nationals. Resettlement also carries with it the opportunity to eventually become a
naturalised citizen of the resettlement country. 131
The ERF has voiced support for this set of objectives. According to the Decisions establishing the
ERF III ( 2008-2013), an action is considered a resettlement and only funded as such if the persons
transferred from a t hird country to a Mem ber State are permitted to reside with refugee status.132
Alternatively, a status which offers the same rights and benefits under national and Community law as
refugee status may be awarded.
This means that granting subsidiary protection or another status on the basis of national law would
not preclude an ERF support if this status grants the same rights as refugee status.
The EU law and accordingly national laws in the EU Member States, stipulate that two forms of
protection can be granted: refugee status and the subsidiary protection. In most of EU Member States,
the rights attached to the refugee status are different from those granted with the subsidiary protection.
Moreover, the rights attached to both statuses vary from one Member State to another.
While all EU Member states may grant the refugee status to resettled refugees, some of them may
instead only grant a subsidiary protection to part of them. This is the case in the Czech Republic,
Denmark, Italy, Portugal, Poland, Romania, Spain and Sweden.
This is not always applied in conformity to national law. The Polish Act foresees that resettlement
applies both to persons meeting the requirements of refugee status and of subsidiary protection and
leads to one of those statuses - like most of the Member States. In contrast, the Hungarian law, like
Spanish law 12/2009, only mentions refugee status as regards resettlement: Refugees who are resettled
in Spain will have the same status as refugees who are recognised as such under the provisions of this
Law. Yet, among the 80 refugees resettled from Tunisia to Spain in 2012, 74 w ere granted subsidiary
protection, only four received refugee status and two were family reunifications. The impact on the right
of residence is significant, as a refugee receives a five-year residence permit in Spain while a person who
has received the subsidiary protection will only receive a one-year stay permit.
In many Member States, the rights attached to refugee status differ from those granted with the
subsidiary protection. The Portuguese Asylum and International Protection Law (Law 27/2008 of June
30) issues residence permits for refugee status for five years, renewable for similar periods, and
residence permits for subsidiary protection are issued for a minimum of 2 years, renewable for similar
periods. In Italy, subsidiary protection leads to a three-year stay permit, instead of a five-year
residence permit for a refugee. It is in France that the difference between residence permits are best
highlighted, refugees receive a ten-year residence permit and a beneficiary of the subsidiary protection
receives a one-year residence permit.
Granting status that is different from refugee status does not
person is only temporarily protected. Those who are resettled
categories and may be granted one of the following statuses: (i)
need of subsidiary protection or (iii) individuals otherwise in
necessarily mean that the resettled

in Sweden are divided into three
convention refugees (ii) persons in
need of protection. Yet, they all
130
For an exhaustive comparison of the status and rights granted to resettled refugees in the EU, see the country profiles of
the 27 Member States on Know Reset website, http://www.know-reset.eu/?c=00003
131
132
Within the meaning of Article 2(d) of Directive 2004/83/EC.
339
receive a permanent residence permit before arriving in Sweden, whatever their status.133 A right to
permanent residence, in conformity with the UNHCRs standard, is also provided in Belgium and in
the UK. In most of Member States, the residence permit is time-limited but renewable, and in some of
them, it is common to all resettled persons, whatever their status. This is the case in Denmark and
Finland, which grant a four-year stay permit to resettled persons. The Netherlands deliver a five-year
residence permit, which then leads to a right to permanent residence. In Romania, the law stipulates
that resettled persons will have the same rights and obligations in Romania as the refugees
recognized by the Romanian State (Art. 3(5)).
The ERFs financial incentive can clearly orientate the decision. This was the case for Belgium in
2009 and 2011: Amongst others because of the funding regulations of the ERF, refugee status must be
granted in Belgium and as such, persons who are only eligible for subsidiary protection are excluded.
In the future, expanding to include subsidiary protection could be considered, including the relevant
criteria, or potentially the development of a completely parallel resettlement procedure with its own
criteria and a status sui generis. 134
This is already happening in Ireland, where resettled persons have a specific status, the programme
refugee, which provides similar rights to those offered to the refugees, but also some specific rights,
such as some facilities for family reunification. Under the current Irish resettlement programme,
members of the family are dealt with in two ways. Immediate family members are included in the
quota. Therefore when an application is examined, care is taken to ensure that all of the nuclear family
members are considered together at the time of application. The admission of any other family
members such as siblings of the applicant, are at the discretion of the Minister. Should an applicant
decide to omit a member of the nuclear family at the time of application, and then seek to be reunited
with that family member at a later date, this type of application would be at the discretion of the
Minister. The definition of family member for resettlement purposes, which includes unmarried
children over the age of 18 years, is broader than the definition of family Member in the Refugee
Act 1996, as amended. This avoids a situation where the act of resettlement actually results in other
family members becoming vulnerable in their current environment and reduces the number of
family reunification applications later.135
In contrast, resettled persons in Germany have less rights in terms of family reunification than
those of the refugees, which may inhibit the integration of the refugees. This is a reason why the
country has been criticised by some stakeholders, despite Germanys recent significant commitments
in refugee resettlement. The national legislation for the future resettlement programme will be the
same as for the ad hoc resettlement of Iraqi refugees in 2009/2010, which does not provide a refugee
protection status. The resettled refugees will receive temporary three-year residence permits,
renewable where deemed necessary. After seven years, provided the applicant meets the relevant
requirements, a settlement permit may be granted.
Some recent changes in some Member States have tended to favour the integration of resettled
persons. They concern the placement upon arrival. The placement in camps may postpone or even
impede integration prospects. 136 France has therefore decided that resettled persons would now be
133
134
135
136
An illustration with the reception conditions in Hungary: As for reception conditions in general, refugees and beneficiaries
of subsidiary protection are accommodated in the open OIN integration facility in Bicske (). The present system has
proven to be ineffective in equipping beneficiaries of international protection with the skills required for integration. Living
in Bicske for up to one year keeps people isolated from the local community. Most of the residents do not have any contacts
with Hungarian people except for the social workers. They often do not have any other ties to people living outside the camp
who could ease their integration into the society. This also slows their process of learning the language and how different
institutions and services operate. After having lived in Bicske for 6 months most of the refugees do not dispose of the features
340
placed in houses. 137 This important reform nevertheless prolongs the resettlement process as the
reception of refugees is decided as and when houses are getting available. A recent change has also
taken place in the Dutch resettlement policy, aimed at the direct placement of refugees in the
municipalities. From the moment of selection of the refugee that is to be resettled, contact is made
with local and regional authorities in relation to the preparation for housing and support. 138
For Hungary, a positive Finnish experience was not to try integration in the capital, but in a
smaller place, where local community can take a part in the integration. The families or groups this
way integrate really in the society and not in their local diaspora, from which they might have wanted
to detach anyways. 139 This interpretation goes against the Irish experience for instance. As mentioned
above, resettlement is organised in such a way that the refugees can be in contact and maintain the link
with their fellow nationals. Individual cases are generally resettled in the greater Dublin area while
groups are resettled in smaller places. In addition, one thing unique about the Irish programme is that
the Resettlement Unit, Office for the Promotion of Migrant Integration provide direct support to
individual cases resettled in Dublin while local authorities and NGOs provide direct support services
for those resettled outside of the Capital. This keeps the National Coordinating team in touch with the
day to day issues arising and helps us to understand the challenges faced by both the refugees and the
service providers. Each year the learning informs the process for the coming year. The country is also
smaller than most EU Member States. 140
The support and monitoring of refugees by service providers are indeed essential for refugees. In
Italy, the placement in individual houses did not favour the integration of the resettled refugees since
they were situated in uninhabited areas with no public transportation facilities. Isolation and the lack
of employment perspectives led to a number of resettled persons leaving Italy.
In most Member States, the resettled persons get permission to work and access to all social
benefits. Yet, even in countries where the resettlement experience is described as a success, like in the
UK or in Ireland, a low level of employment and of economic independence among the refugees has
been noted. 141
A growing concern applies to the possible development of a lower reception quality, which may be
a result of a greater number of places being available for resettlement. The UK for instance aspires to
increase its quota of 1,000 refugees per year when this becomes affordable, but the present fiscal
climate suggests that additional money for resettlement is unlikely in the near future and the focus will
need to be either: increased funding from Europe; or reducing the levels of support and
accommodation to refugees in order to increase the numbers resettled within the existing budget. 142
Does accepting a greater number of refugees necessarily mean offering less rights?
The UNHCR itself has had to call for temporary shelter in order to get more resettlement States to
respond to major refugee crises. Apart from calling for the durable resettlement of 2,000 Syrian
refugees -who do not appear among the priority groups of the EU as listed for 2013 and as proposed
(Contd.)
detailed knowledge on employment conditions, satisfactory health condition, own financial resources, language etc. that
are needed for finding employment. After being released from Bicske, refugees do not have any realistic prospects on access
to accommodation or employment. Access to language courses is also of great concern. As a result, some refugees opt to
move to other EU Member States, upon recognition of their refugee status. If returned to Hungary, they often become
homeless. Homeless refugees reportedly face various violations of their physical integrity, with single women and the
vulnerable particularly at risk. Interview with UNHCR Hungary, April 2012
137
138
Interview with the Dutch Ministry of Interior, op.cit.
139
Interview with the Hungarian Office of Immigration and Nationality (OIN), April 2012.
140
141
Interviews with Dave Atkinson and Martina Glennon, op.cit.
142
341
for the future AMF (Asylum and Migration Fund) - it also called for the humanitarian temporary
reception of 10,000 S yrian refugees in 2013. Germany responded to the call by offering to receive
5,000 Syrians, some of whom already have family links with Germany. This valuable German
contribution to protecting refugees and alleviating the effort of the countries of first asylum is double
the number of refugees that Germany resettled during the Iraqi refugee crisis five years ago. In terms
of protection however, this contribution may be more comparable to the temporary protection granted
during the Kosovo war in 1999, and is therefore linked to the hope of a rapid return of Syrian refugees
to their country of origin which appears to be unlikely, given the current situation there.
While the integration of refugees in general and resettled refugees in particular, has become the
focus of the UNHCR together with governmental and non-governmental stakeholders involved in the
field, opting for the temporary protection of refugees in situations which call for durable solutions may
raise additional difficulties both for refugees and the receiving societies.
Resettlement is a process which only begins with the transfer of a refugee and her/his family and
dependants to a new country. Just as with the other durable solutions, integration is thus essential
to the durability of resettlement. UNHCR only supports the resettlement of further persons of
concern once there is a proven system in place addressing in a comprehensive manner a reception
and integration system. The status provided in the country of resettlement should provide a
resettled refugee and her/his family and dependants with a d urable solution: integration requires
the receiving country to ensure that refugees have access to resources required for their longer
term stability and adjustment to the new society, while fostering a sense of belonging and
143
participation.
4. Responsibility-Sharing and the Resettlement/Relocation Dichotomy

This report has already established that a considerable revolution has occurred in the approach taken
by the EU and its Member States toward resettlement over the course of the past ten years. However,
in the past few years a parallel system has emerged which has, at times, overlapped and at other times
been obvious in its differences. That parallel system of intra-EU resettlement is most commonly
referred to as relocation.
Resettlement has already been set out above in a quote from the UNHCR as being "the selection
and transfer of refugees from one state in which they have sought protection to a third state which
has agreed to admit them as refugees with permanent residence status." 144 In the EU, it should be
added that that third State must be the country of first asylum which is not a Member State of the
EU. Relocation on t he other hand refers to the transfer of persons from one Member State to
another. A Commission Communication from 2009 s ets out a further explanation as to what
resettlement is and also provides an explanation as to relocation. Resettlement is a h umanitarian
exercise concerned with solidarity with third countries i.e. those States which are not Member States
of the EU. 145 Relocation on the other hand is a 'burden sharing' exercise, the purpose of which is to
share the responsibility of receiving refugees among Member States of the EU. Thus, relocation is
concerned with intra-EU solidarity. 146
143
144
UNHCR Resettlement Handbook 2011, p.3
145
Based on t he wording of the Commission Communication to the European Parliament and the Council on the
Establishment of a Joint EU Resettlement Programme. Page 3. See:
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52009DC0447:EN:NOT
146
Based on t he wording of the Commission communication to the European Parliament and the Council on the
Establishment of a joint EU resettlement Programme. Page 3. See :
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52009DC0447:EN:NOT
342
4.1 The Emergence of Relocation

The intra-EU solidarity which led to relocation can be traced back to the intense strain on southern
Member States in dealing with mass arrivals of irregular migrants. In 2009, Cyprus, Greece, Italy and
Malta adopted what is now commonly known as the Quattro Paper 147. This was a document
highlighting these Member States concerns with their asylum and migration situations, coupled with a
list of recommendations primarily addressed to the EU. On 19th April 2011, the same EU Member
States together with Spain adopted a Joint Communiqu, which reiterated their concerns in relation to
the flows of migrants and asylum-seekers reaching their territory and calling the EU for
responsibility-sharing among the Member States 148. Those southern States made multiple requests
for assistance from the Commission and their EU partners and have spoken in favour of relocating
refugees from their territories.
The European Council Conclusions of June 2009 called for the coordination of voluntary measures
for internal reallocation of beneficiaries of international protection present in the Member States
exposed to specific and disproportionate pressures, starting with a pilot project for Malta. This project,
called EUREMA for European Relocation Malta, targeted a total of 255 beneficiaries of international
protection hosted in Malta. France, Germany, Hungary, Luxembourg, Poland, Portugal, Romania,
Slovakia, Slovenia, and the UK joined the initiative to re-allocate beneficiaries with a view to
integrating them in their respective societies 149.
In April 2011, the European Commission decided to extent the project (EUREMA II). The
programme is set to run from the beginning of 2012 until the end of 2013. To bolster uptake for
EUREMA, the EU made financial assistance from the European Refugee Fund available to both
resettlement and relocation. This report has already considered how influential ERF funding can be as
an incentive to resettle or not to resettle. It is certainly also the case with regard to relocation.
While the first EUREMA project was a pilot experiment in relocation, the second EUREMA can be
seen as being a response to a specific crisis. On the 12 May 2011, the European Commission organised a
Ministerial pledging conference for relocation of migrants from Malta and resettlement of migrants from
North Africa. Commissioner Malmstrm stated that The situation is very serious in both North Africa
and in Malta and hailed the positive response from Member States as a sh ow of solidarity both in an
intra-Member State sense and also in the sense of solidarity with international partners 150.
Participation in EUREMA was considerable. Several Member States pledged their assistance,
including Germany, Poland, Spain, The Netherlands, Denmark, Ireland, Romania, Slovakia, Lithuania,
Portugal, Hungary and Bulgaria as well as Associated States such as Norway, Switzerland and
Liechtenstein with a total pledge for 356 persons. Whilst some countries have chosen to conduct
relocation on a bilateral level, other Member States (Bulgaria, Hungary, Lithuania, Poland, Portugal,
Romania and Slovakia) are participating in the EUREMA II project, for EU financing under the
European Refugee Fund, Community Actions 2011 151.
The overwhelming reason given for uptake was to express solidarity with their fellow Member
States that were under a particular strain from mass arrivals at the southern borders. 152 This
147
http://www.interno.gov.it/mininterno/export/sites/default/it/assets/files/16/0970_Final_paper_Versione_firmata.pdf
148
See EASO Monitor, http://easomonitor.blogspot.fr/2011/04/southern-eu-ms-publish-joint-communique.html
149
See the website of the Maltese Ministry for Home Affairs and National Security, http://mhas.gov.mt/en/MHASInformation/EUREMA/Pages/EUREMA-I.aspx
150
See her statement on 13 May 2011, Memo 11/295, http://europa.eu/rapid/press-release_MEMO-11-295_en.htm?locale=fr
151
http://mhas.gov.mt/en/MHAS-Information/EUREMA/Pages/EUREMA-II.aspx
152
The EASO fact-finding report on intra-EU relocation activities from Malta stated that a number of Member States said
that relocation was a co ncrete example of intra-Member State solidarity: http://easo.europa.eu/wpcontent/uploads/EUREMA-fact-finding-report-EASO1.pdf
343
explanation was particularly strong among the newer Member States which are also eager to
participate to intra-EU solidarity and show by this way their commitment in EU affairs. Certain among
the newer accession States have supported relocation while ignoring any call for resettlement. The
feeling that it is more important to show solidarity with States which are partners within the EU than
with those States outside of the Union, is tangible. Finally, relocation has also been considered by
some potential resettlement countries as a testing ground for the future resettlement of refugees, as was
the case with Bulgaria.153
Some EU Member States support both relocation and resettlement - Bulgaria; Denmark: France;
Germany; Hungary; Ireland; Luxembourg; Netherlands; Poland; Portugal; Romania; Slovakia;
Slovenia; Spain. There are States which support resettlement but not relocation - Belgium; Czech
Republic; Finland; Italy; Sweden; UK. One State supports relocation but not resettlement - Lithuania.
Finally, there is also the States which have not voiced a strong preference or support for either
resettlement or relocation: Austria; Cyprus; Estonia; Greece; Latvia; Malta.
The key question considering the merits of relocation must be whether or not relocation is been
done to the detriment of resettlement. The question relates to the potential and actual overlaps that has
occurred between the two terms.
4.2 The Distinction between Relocation and Resettlement
This section examines the potential overlap between the distinct strategies of refugee protection
relocation and resettlement. Relocation and resettlement can quite easily be distinguished by
considering the circumstances in which a refugee is transferred to a Member State. If that refugee is
moved from a country of first asylum beyond the borders of EU Member States then that transfer is a
resettlement. If a refugee has already reached the EU and is transferred from one Member State to
another then that transfer is relocation.
The distinction therefore is extremely simple but nevertheless, there has been a certain overlap and
confusion between the terms. The danger is that relocation is used instead of resettlement.
Resettlement has a protection focus. Taking refugees from a co untry of first asylum is focussing
efforts upon the most vulnerable of refugees. Relocating refugees from one Member State to another is
effectively transferring a refugee within an area which should have a uniform protection for refugees
anyway. Conducting relocation in place of resettlement therefore takes the protection focus away. The
choice for Member States may be expressed in terms of solidarity. Resettlement has been conducted to
express solidarity with international partners while relocation is carried out on the basis of intra-EU
solidarity. Member States are faced with the choice of expressing solidarity with their partners on the
EU level (relocation) or with third States (resettlement). The choice of Member States and indeed
other important stakeholders, has confirmed that relocation and resettlement both suffer from certain
overlap and a lack of clarity with regard to the distinction between them.
Slovakia for instance does not clearly distinguish between resettlement and relocation. It often
refers to both terms by using its Slovak equivalent presdovanie or presdlenie, both meaning
resettlement. However, for relocation it would be preferable to use term relokcia. The Slovak
(Contd.)
Solidarity with other Member States was the categorical reason given to Know Reset for relocation by many Member States,
see for example: Slovenia, Bulgaria, Lithuania.
153
In May 2011, the Interior Minister Tsvetan Svetanov announced that Bulgaria would be accepting two to four North
African refugees from Italy. The Minister stated that this relocation should be considered as an act of solidarity with Italy
which was experiencing an influx of irregular migrants at that time and also as a training ground for future resettlement.
See: The Bulgarian Helsinki Committee, Iliana Savova, Do We Have a Quota on Humaneness,
http://www.bghelsinki.org/en/publications/obektiv/iliana-savova/2011-08/do-we-have-quota-humaneness
However, despite the Bulgarian pledge for relocation, no persons decided to relocate to Bulgaria. Anna Andreeva, Know
Reset Final Conference, op.cit.
344
Ministry of Interiors website refers to the EUREMA project as a project aimed at the resettlement of
persons within the EU. Slovakia did plan on participating in resettlement under the 2010 ERF annual
programme; however, due to Slovakias involvement in the pilot project of relocation from Malta, it
was postponed under the annual programme of 2011. 154 In this instance, priority was given to
relocation over resettlement.
Ireland has relocated refugees from Malta. These refugees were categorised as being part of the
programme resettlement quota which exists in Ireland. 155 Places which otherwise would have been
taken by resettled refugees were thus taken by relocated refugees. The distinction between
relocation and resettlement is not made in the context of the Irish resettlement quota. However, even
when the distinction is made, resettlement numbers can be substituted for relocation. When a
Spanish boat picked up fifty-one migrants who were found at sea between Libya and Malta in July
2006, the Dutch resettlement quota, which is generally not used for relocation, was utilised. An
emergency acute humanitarian situation existed and the Netherlands decided to accept five of the
refugees for resettlement.
Internal rules within Member States can in certain circumstances dictate that refugees must be
regarded as being resettled rather than relocated. In 2007, refugees were transferred from Malta to
Portugal. These people had not been granted international protection in Malta. If they had been
granted international protection in Malta then the Portugese would have categorised them as having
been relocated. The UNHCR had recognised them as r efugees. The Portugese State then considered
these refugees as being resettled refugees. 156 Internal rules as to a refugees status pre-departure have
therefore dictated what category that refugee fits into and the distinction between terms is not made on
the basis of where the refugees are coming from.
These examples detail how the terms have overlapped among Member States implementing their
refugee protection regimes. However, the overlap does not begin and end with Member States alone,
other stakeholders have also met with some overlap. Take the example of the recent announcement by
the German State that it was pledging five thousand places for refugees fleeing the conflict in Syria.157
In September of 2013, the UNHCR called that German pledge the biggest relocation programme in
existence 158 The UNHCR here referred to it as b eing relocation on the basis that those refugees
were a humanitarian admission rather than, sensu stricto, resettlement. 159 Most other Member
States have chosen to resettle Syrians in response to the conflict. The German action is clearly not
relocation in the sense outlined in this report. The UNHCR of course are free to define relocation in
whatever terms it sees fit. What this reporting by the UNHCR does illustrate is that there is a lack of
uniformity internationally as to how distinguish relocation from resettlement.
From the perspective of EU policymakers and refugee stakeholders, making the distinction remains
a challenge. The EASO has already identified that challenge. The EASOs fact finding report on
relocation from Malta stated that concerns were expressed about the possible implication of
relocation on the resettlement quotas in the EU. It was stressed that intra-EU relocation should not be
confused with resettlement of refugees from third countries. 160 That Agency, of course, has a limited
mandate and cannot direct Member States as to how they should approach relocation and resettlement.
154
Please see the Slovakian country profile on the Know Reset website, available at:
http://www.know-reset.eu/files/texts/00166_20130919160632_knowresetcountryprofileslovakia.pdf
155
156
Written interview with the Cabinet of the Secretary of State for Internal Affairs, 24 February 2012.
157
See: http://www.know-reset.eu/?c=00697
158
See: http://www.unhcr.org/523076919.html
159
See: http://www.know-reset.eu/?c=00715
160
See page 16 of the EASO Report, op.cit.: http://easo.europa.eu/wp-content/uploads/EUREMA-fact-finding-reportEASO1.pdf
345
However, the EASO can take a r ole in raising awareness that these two protection strategies are
distinct and should not be confused.
4.3 Relocation as a Complement to Resettlement
The last section underlined the wide variety of ways in which resettlement and relocation can overlap.
This section seeks to emphasise that priority must be put on resettlement. While relocation can be a
valuable tool in complementing resettlement, it should never replace resettlement. Relocation can
complement resettlement by providing a support to Member States which are under a particular strain
from mass arrivals and perhaps also do not have the reception and procedural conditions necessary to
secure the appropriate protection for refugees. However, relocations complementary role should
remain just that complementary. The evidence suggests that relocation may have, on occasion,
impacted upon the numbers of refugees being resettled from a country of first asylum, such
interference in resettlements full potential in the EU cannot be allowed to occur. This section will first
turn to consideration of problems of relocation as highlighted by Member States in the course of Know
Resets research. It will then consider the approach of the EU as a collective before offering a
concluding paragraph as to how relocation can accomplish its task as a co mplement to resettlement
without interfering with the success of the EUs resettlement regime.
In Sweden, the Ministry for Justice stated that it is hesitant towards relocation and has assumed a
wait-and-see attitude. Sweden clearly seems to see resettlement as having twin priorities which
should not be compromised by relocation. Firstly, resettlement is seen as being a burden-sharing
operation with States of first asylum. 161 Secondly, the priority of providing protection to the most
vulnerable refugees should always remain the focus. It is felt by Sweden that there is a big difference
between resettling people from troubled countries and resettling them from a Member State where
those people should already have a reasonable level of protection. Moreover, investing in relocation
would probably mean that financial means are being redirected from resettlement to relocation.
Sweden has voiced support for a proper evaluation study of the pro and cons of relocation before
giving any consideration to committing to relocation. The Ministry further stated that one of the
reasons for relocation put forward by countries like Malta and Italy is that the refugee pressure on
them is too high, but looking at the statistics, the pressure on them is not stronger than that
experienced in Sweden. 162 The Netherlands added its voice to the Swedish view that it is important
that Member States express solidarity with developing countries who receive large numbers of
refugees. 163 Many Member States find themselves in the position that relocation and intra-EU
solidarity comes into conflict with this more international solidarity with countries of first asylum. 164
The argument could be extended that alternative measures of intra-EU solidarity exist and a Member
State could make alternative offers of solidarity. 165 Solidarity with the country of first asylum must
remain the clear priority for Member States. Financial support or special expertise might be offered in
a show of intra-EU solidarity, which does not come at the price of resettlement places available.
The problems with relocation indeed go beyond the limited confines of possibly impacting upon
the uptake and effectiveness of resettlement in the EU. The Czech Republic voiced the opinion that
relocation involves substantial administrative and logistical burdens. Perhaps even more interesting
than this though is the claim by t he Czechs that relocation is a potential risk of becoming a "pull
161
Interviews with the various Swedish stakeholders.
162
Interview with Swedish Ministry of Justice, op.cit.
163
Interview with Janneke van Etten, op.cit.
164
This conflict between solidarity priorities is touched upon in an MPC blog post, available here:
http://debatemigration.wordpress.com/2013/02/18/between-solidarity-and-the-priority-to-protect-where-refugeerelocation-meets-refugee-resettlement/
165
Interview with Andreas Ollinen, op.cit.
346
factor" for illegal migration. 166 This allegation is made on the understanding that migrants may believe
that upon reaching EU territory, they will get the opportunity of being relocated to a more desirable
Member State, perhaps even the Member State of their choice. Romania and Lithuania voiced their
belief that more needed to be done to ensure that the relocated refugees knew more about their
destination pre-arrival. Lithuania considered the exercise to have been costly and ineffective.167 In
October 2009 L ithuania refused to contribute to the EU initiative to relocate more asylum seekers
from Malta 168. However, in 2011, the Lithuanian Government decided to join the project, prepared by
Malta and funded by the European Refugee Fund and committed to accept up to six asylum seekers.169
Another important concern of Member States which receive internationally protected persons
through relocation is that the system of relocation will act as a disincentive to Member States to
improve their national asylum systems. In other words, if refugees are relocated to Member State A
because the reception conditions in Member State B are overwhelmed, then will Member State B look
upon that relocation as being a temporary assistance or as a solution?
As recently as the September of 2013, Commissioner Cecilia Malmstrm convened a Relocation
Forum to discuss the way forward for relocation and address any misgivings that Member States had
about relocation. In the Commissioners address 170 to the Forum, she stated that Relocation is not a
quick fix, it will not solve all the problems. It is one of many tools to alleviate and assist a Member
State under pressure and in severe difficulties. Other types of assistance include funding, technical
and human resources, training, contingency planning, EASO etc. Relocation is also not an alternative
to get your house in order. It is however a true expression of solidarity and I do hope that many
Member States can take part. The Commissioner thereby reinforced relocation as an act of solidarity
in light of the fact that five Member States take 70 % of all the asylum seekers, but importantly said
that it is not an alternative to national asylum responsibility i.e. each Member State developing and
maintaining their own functioning asylum system. 171 The Commissioner did not address the
relationship that has developed between relocation and resettlement. The Commissioner stated that she
had taken the decision some months ago that there could be no C ommission proposal in the
foreseeable future for a permanent legal mechanism for relocation either voluntary or compulsory.
The Commissioner thus allayed any Member States fears that relocation was about to become
compulsory. The Commissioner stated that while EUREMA II, the second relocation scheme from
Malta, was coming to an end, financial assistance would be available in the future for relocation
through the Asylum and Migration Fund. We understand that Member States dont necessarily want
EU project-managed relocation with rigid administrative requirements that is why we will no longer
have a EUREMA project, but instead we will have money available under the Asylum and Migration
Fund for relocation activities that will be much easier to implement. Relocation shall continue to
make an important contribution toward the provision of protection for refugees in the EU.
166
The Czech Republic s position on migration prepared by working group for a Parliament, to be announced to the EU
Institutions, 5 June 2011.
167
European Commission, Directorate-General Home Affairs, Study on the Feasibility of Establishing a M echanism for a
Relocation of Beneficiaries of International protection JLX/2009/ERFX/PR/1005, Final Report 2010, available on t he
internet: http://ec.europa.eu/home-affairs/doc_centre/asylum/docs/final_report_relocation_of_refugees.pdf
168
Ministry of the Interior of the Republic of Lithuania, Legal information: In the Meeting of Ministers of the Interior of
Lithuania and Malta Issues of Granting Asylum for Asylum Seekers in European Union were discussed, 28th October
2009, available on the internet: http://www.vrm.lt/index.php?id=131&backPID=129&begin_at=720&tt_news=2281&
169
Resolution on asylum seekers from the Republic of Malta, No 1082, 14th of September 2011, available on the internet:
http://www3.lrs.lt/pls/inter3/dokpaieska.showdoc_l?p_id=406687&p_query=&p_tr2=2
170
The Commissioners full address is available here: http://blogs.ec.europa.eu/malmstrom/refugeerelocation/
171
The Commissioner quoted the statistic in her blog post, available at:
http://blogs.ec.europa.eu/malmstrom/refugeerelocation/
347
In the absence of clear and cohesive guidance as to how to approach relocation so as not to impact
upon resettlement, it is left to Member States to implement these distinct terms in a way which seeks
to place protection for the most vulnerable at the heart of all measures. Relocated refugees should not
be counted as part of a Member States resettlement quota. Relocation should only be encouraged
secondary to resettlement. Funding should prioritise resettlement above relocation. The Hague
Programme, referred to earlier in this report, called for a spirit of shared responsibility to a more
accessible, equitable and effective international protection system. It seems that resettlement best
satisfies these objectives as its primary concern is to provide protection while the priority of relocation
is to express intra-EU solidarity. Resettlement is also an expression of solidarity but this solidarity is
with countries of first asylum. Countries of first asylum, beyond the territory of the EU, play host to
much larger numbers and are under a greater strain than any Member State.
Resettlement can also be used to support the EUs Regional Protection Programmes. Sweden was
one Member State which stated that solidarity with countries of first asylum must take preference over
southern Member States that have the same responsibilities to protect as Sweden. Resettlement
undoubtedly remains the preferable response to those most in need. The priority to protect those who
have not been able to gain access to European territory should remain the primary objective. Providing
such access negates the need for people to become irregular migrants during their journey to Europe,
the journey that many refugees who are relocated have been forced to undergo. Intra-Member State
solidarity, while an understandable objective in its own right, must not come at the expense of
protecting those most in need. Relocation then, must only come as a co mplement rather than as a
replacement to the numbers who are being resettled. Clarifying the important difference between the
two schemes must be an important objective into the future. As Commissioner Cecilia Malmstrm has
outlined plans to incentivise relocation through funding in September of 2013, it seems certain that
relocation will continue as an option for Member States. This means that oversight of the different
problems outlined here must be considered by Member States and the EU so as to impact upon
resettlement as little as possible.
5. Conclusion
The development of resettlement-related frameworks and policies in the EU and its Member States is
undeniable and has accelerated during the past five years. This is mainly due to the combined effect of
joint operations to respond to major refugee crises and to the EUs increased support to UNHCR
efforts to encourage States to begin to resettle refugees. EU led initiatives for multilateral operations
has been the main incentive for Member States to get involved in refugee resettlement which have no
history in resettlement.
A small majority (fourteen) of Member States are now resettlement countries, insofar as they have
committed to resettling refugees on a programme basis. Moreover, while refugee resettlement depends
on voluntary governmental decision, exclusive from any legal duty, it is not only based on an
administrative framework any longer. Refugee resettlement is growingly based on asylum and refugee
law. A quasi majority of Member States (thirteen) have included a reference to refugee resettlement in
their asylum legislation, eleven of them did so during the past decade. This does not make resettlement
a legal duty for those States, nor a right for refugees. Yet, the adaptation of legal frameworks may
facilitate refugee resettlement. This may be the case by allowing the granting of refugee status outside
the territory for instance, or designing the procedure and determining the competent institutions.
The absence of legal reference to refugee resettlement has not impeded certain Member States from
resettling in the past (in Scandinavia) and still currently (in the Netherlands) in a sustainable and
regular manner. Equally, the existence of a legal reference to refugee resettlement is not a guarantee
that the State does or will resettle. It does not constitute an evidence of but can help and support
sustainable commitment.
348
It has now become easier than in the past to legislate on refugee resettlement, since a set of
practices and experiences have been developed. Most of all, the UNHCR has published some
handbooks to guide the selection of refugees, the resettlement process and procedures as well as the
granting of status and rights and the integration of resettled refugees. The EU has come to give support
to UNHCR guidelines in prioritising and funding resettlement activities when they follow UNHCR
standards, such as the selection of refugees falling into some of UNHCR submission categories or the
granting of a status similar to refugee status. Despite those efforts to standardize and streamline
refugee resettlement, the diversity in the content of resettlement-related frameworks and policies
among Member States is still striking. Even basic standards of refugee resettlement such as t he
UNHCR mandate and its role in pre-selecting vulnerable refugees, or the granting of permanent
residence are not shared by the majority of legal references to refugee resettlement.
The Joint EU Resettlement Programme has been a g reat support to the development of
commitments in resettlement and plays an important role in the search for a concerted approach to
resettlement. Indeed, through requirements for the funding, it influences the selection targets of
Member States as well as the procedure and the rights granted. Nevertheless, its impact is limited. It is
based on a financial incentive which does not convince all Member States, and on the positive impact
of joint initiatives. The JEURP could go further, as could the EU.
The overlap between resettlement and relocation has been a n egative development in respect of
both of those distinct procedures. The evolution of resettlement in the EU has become susceptible to
the strategic use of relocation by Member States as the soft option when it is under pressure to stand
up to its responsibility as an EU partner. Relocation can be more attractive to Member States and can
be preferable to the challenge of resettlement. It is perhaps this conflict in terms which, more than
anything else, has highlighted the need for strong central governance of how resettlement is handled
by the Member States. Relocation, if it is to succeed must complement resettlement and not replace it.
The lack of reporting of refugee resettlement in independent news and media is an obstacle to
improving resettlement in quantitative and qualitative terms. Apart from the media, resettlement can
be promoted and publicised as being a public issue to be discussed by all of those which have a stake
in resettlement policymakers, NGOs, migration authorities, lawyers and refugees themselves. All
stakeholders state that resettlement is not openly discussed and that the majority of society are simply
not aware of it despite the fact that it is an issue that can be explained and advanced among the
population very easily. 172 It may be difficult to convince policy makers for a structural commitment
since not everybody knows about resettlement, including among policy makers. 173 A heightened
public understanding of resettlement would assist greatly in improving how resettlement is conducted
in all Member States.
In the Swedish context, it is very important that politicians are not afraid to stand up for refugees.
They dare saying that it is an important issue and that Sweden needs to show solidarity. Moreover,
the Minister of migration always mentions resettlement when he talks about asylum issues. Often,
at the EU-level, Sweden stands out as the odd country proposing to improve asylum policy, to
receive more refugees etc. This positive approach is considered peculiar by the other Member
States. The Member States often have to deal with negative public opinion and politicians/parties
174
that are unreceptive towards the asylum issue.
In the context of growing anti-immigration atmosphere, the influence of the media would be to
make the public opinion understand why we need to protect refugees. The key factors are to be
175
found in a public discourse more open to foreigners and refugees.
172
Interview with the Swedish Justice Ministry, op.cit.
173
Ewout Adriaens, Know Reset Final Conference, Brussels, 10 July 2013.
174
Interview with the Swedish Justice Ministry, op.cit.
175
349
5.1 Recommendations
350
The EU should fund and prioritize all UNHCR submission categories and not only five of
them.
Geographic priorities should be defined on a m ore flexible basis, be easily revised and
extended when new refugee crises, such as the Syrian refugee crisis, occur.
The EU should seek to make an impact on Member State resettlement laws and policies not
only through funding and rallying, but also through its own legislating.
A legal framework for resettlement is needed in all of the Member States.
Even if Member States want to keep resettlement voluntary, an EU Directive could

standardize some basic and fundamental elements of refugee resettlement, such as:
Resettlement shall aim at receiving vulnerable refugees on the basis of UNHCR

submission categories, and should not include integration pre-considerations,
The persons to be resettled should not necessarily meet the Geneva Convention
definition. A common definition of refugee could be adopted on t he basis of the
Mandate refugee definition.
Resettlement should be carried out in cooperation with UNHCR.
Resettled refugees should be granted a permanent residence status.
Resettled refugees should be granted rights similar to those granted with Convention
refugee status.
Resettled refugees should not be submitted to an additional application process upon

arrival or only as an option to gain more rights.
Refugee Resettlement could be incorporated in the broad protection system. It should be

linked to and based on a number of minimum requirements.
An EU Resettlement System should be developed on the model of the Common European

Asylum System.
The distinction should be made and promoted by the EU between contributing toward
refugee protection internally (relocation) and externally (resettlement). The emphasis in
financial terms should be on resettlement.
Being an Agency which has a responsibility for monitoring both relocation and resettlement
within the EU, EASO should be fully utilised as a monitor but also to give assistance as far
as this is possible.
The EU should contribute to raising awareness and generating public support to refugee
resettlement and refugee reception as a whole through media campaigns and the diffusion of
information. Awareness-raising towards policy-makers will also facilitate the commitment of
Member States in resettlement programmes.
The EU should favour more cost-effectiveness and efficiency as a result of economies of

scale in resettlement. In particular, joint resettlement selection missions should be promoted.
In addition to reducing costs and organisational constraints, it would lower refugees waiting
time and interviews.
The EU should continue to encourage twinning arrangements and projects favouring

knowledge and information exchange with regard to refugee resettlement, as well as the
exchange of practices and sharing guidelines (on the model of the Temporary Desk on Iraq),
in particular when it comes to reception and integration.
Annexes
Annex 1. Formal Basis for Resettlement and Effective Resettlement in the EU Member States
EU Member
State
Austria
Formal Basis for Resettlement

Specific provision in Law
None
None
Belgium
Governmental Act
None
*Decision of the Council of Ministers on a
specific resettlement Iraqi and
2009
Palestinians from refugee camps in Syria
and Jordan (2009)
*Decision of the Cabinet on a specific
resettlement from Libya (2011)
Bulgaria
Cyprus
Date of resettlement
Programme based
Ad Hoc Resettlement
Resettlement
2011
None
2011
None
*Council of Ministers draft decision

(2012) - Pilot programme
None
None
Asylum Act (1999), Section 90
None
None
Since 2013
Planned for 2014

None
2005
2007
Czech
Republic

Since 2008
2010
351
Denmark
Estonia
Finland
Aliens Act (2011), as amended in

2005, Section 8
None
None
None
Since 1978
None
None
None
None
Since 1985
Since 1948
Other relevant dates:
1956
1974-1984
1999
2008
Since 2008
Aliens Act (2004), Section 90, 91, 92.

None
*Decision on the geographical allocation

of the refugee quota, 17 February 2012
France
*Framework Agreement between France
and the UNHCR (2008)
Residence Act (2004), Section 22.
*Ruling of the Federal Ministry of the
Interior about Iraqi refugees (2008)
2009
Germany
Greece
*Decision on the launch of a permanent

resettlement programme and on
admission of refugees from North Africa
(2011)
None
Asylum Act (2007), Section 7
Hungary
None
Italy
352
None
*Governmental Decree (2011) Refugee
Solidarity Programme related to the
North-African crisis
None
None
None
2007
2008-2009
2009
2010
Since 2012
None
2012
None
Latvia
Lithuania
Luxembourg
Malta
None
None
None
None
None
None
None
None
None
None
None
2009
None
None
None
None
None
None
Since 1984
*Decree (2000) transfers responsibility

for the quota policy for resettled refugees
to the Minister of Justice
Netherlands
Poland
*Decree of the Minister of Justice (2010)

outlines Dutch resettlement policy
Act on granting protection to

foreigners (2003), as amended in
2011
*Government Decision (2012) Policy

Framework for Resettlement (2012-2015)
None
None
2011
2006
*Resolution of the Council of Ministers

(2007)
Portugal
Asylum Law (2008), Chapter III
Section V
Refugee Act (1996), Section 24.
Since 2007
None
*Cabinet Decision (1998) Quota
decision
*Cabinet Decision (2005) Quota
decision
Republic of
Ireland
None
Law on Asylum (2006), Article 3(5)

Romania
Since 1998
*Agreement with UNHCR and IOM

(2008): Emergency Transit Centre in
Timisoara
353
*Decision on the Resettlement of Refugees

(2008) Sets out regulation of
resettlement and states how many
refugees will be resettled during the
period 2008-2010
None
Slovakia
*2012 Decision to amend the 2008

Decision on the Resettlement of Refugees
in Romania
Humenn
Humenn
Slovenia
International Protection Act (2007),

Chapter VIII Section 70
In 2008
None

None
None
None
*Government Decree on implementation

of resettlement based on yearly quota
(2011)
Since 1979
*Royal Decree (1995) makes reference
to UNHCR requests to resettle
Law regulating the right to asylum

and subsidiary protection (2009)
Spain
*Decision of the Council of Ministers

(2010) Approves the 2010 programme:
75 refugees
*Decision of the Council of Ministers
(2011) Approves the 2011 programme:
100 refugees
354
*Communication of the Council of

Ministries (2012) - Approved a new
Resettlement Programme
None
Aliens Act (2005), Chapter 5 Section 2

Since 1950
*Spending authorization for the Migration

Board (2011) by the Ministry of Justice,
defines the resettlement quota for 2012
Sweden
United
Kingdom
2012
Nationality, Immigration and Asylum

Act (2002), Section 59
13 EU countries refer to
resettlement in Law.
*Migration Board Decision on

Resettlement (2012) - Distribution of
places, strategic and operational
assessments
None
15 EU countries have adopted
government acts related to
resettlement.
18 EU countries have had a formal basis for resettlement.
None
resettled on an ad hoc
basis.
Since 2004
resettled on a
programme basis.
16 EU countries have already resettled.
355
Annex 2. Pre-Arrival and Post-Arrival Phases of Refugee Resettlement in the EU Member States
i. Pre- arrival phase
Pre - arrival
phase
Selection criteria
UNHCR
criteria 176
National Target
Preferences
Selection process
Dossiers
Missions
Actors involved
Application Process
Before
arrival
Pre-departure activities
Upon arrival
EU countries
1
Austria
No
2011: Christian Iraqis
Belgium
No
2011: Family with Yes

children and single (2011)
women.
(2009, 2011)
2009: women at risk

and Palestinians
176
356
Selected
by -The Church
Yes
representatives
-IOM
in Iraq of the
archdiocese in -Ministry of the
Interior
Vienna
Yes
-UNHCR
(2009)
-CGRA
-State Secretary
for
Asylum
and Migration
-FEDASIL
n/a
Pre-Selection
Yes
(simplified
procedure)
2011: CO not provided.

Information pamphlets
covering
information
about Belgium were
printed but not given to
refugees.
Yes: The State accepts obligations towards refugees recognised by UNHCR according to a broader definition Mandate Refugee Status No: Geneva Convention criteria and generally
Subsidiary Protection criteria.
Bulgaria
Yes (possible)
Bulgaria is interested
in resettling
Afghani and Iraqi
refugees from
Turkey.
-UNHCR
-State Agency for

Refugees
Cyprus
Czech
Republic
No
Possibly vulnerable
persons: seriously ill
persons, children,
women at risk and
other cases, based on
specific humanitarian
factors.
Possible
Yes
- UNHCR
Pre-Selection
Yes
(simplified
procedure if
previous
UNHCR
refugee status)
Done by the Resettlement

Group when interviewing
the people in need of
resettlement in the country
of first asylum initial
information about what
they can expect from
resettlement in the Czech
Republic and to what
extent they will receive
assistance on arrival.
-The Resettlement
Group
-Minister
Interior
of
Some integration
aspects are also taken
into consideration.
6
Denmark
No
Sub-quotas: 75 urgent
cases; Twenty-OrMore for specially
sick or handicapped
refugees.
Integration criteria
included in 2005.
Supplementary criteria
of influence: language
qualifications,
education and work
experience, social
network, age,
motivation.
Yes
(Urgent
cases)
Yes
-UNHCR
Yes
-Danish
Immigration
Service (DIS)
-Danish Refugee
Council (DRC)
-Municipalities
Yes done by DIS and

Danish language teachers.
Offered to all refugees
accepted on selection
missions but not to
refugees on dossier basis.
Over one week.
357
Estonia
Finland
Yes (possible)
Annual geographical Emergenc

allocation
of
the y and
quota, based on the Urgent
need of continuity in cases
the chosen
refugee groups.
Yes
-UNHCR
Yes
Cultural orientation is the

remit of IOM. The
arrangement was
established in 2001 and ran
until the termination of the
contract in 2010.
-Finnish
Immigration
Services
(MIGRI)
The co was not arranged in

2011 and the contract is
currently being negotiated.
Currently
no c ultural
orientation is organized.
Capacity to integrate is
a factor.
10% of the quota are
reserved for
emergency cases and
urgent cases.
9
France
Yes
2008 (Iraq 500):

Belonging to a
religious minority
(especially Christian)
and link with France
(either through family
ties or knowledge of
French by at least one
family member).
Residence either in
Iraq or in a
neighbouring country:
Jordan, Syria,
Lebanon or Turkey.
358
Yes
No
-UNHCR
-Ministry
of
Home Affairs
-OFPRA
Pre-Selection
Yes
Sessions
of
cultural
introduction
can
be
organised by IOM. This
has been done only for
Iraqis and EU relocation.
When
such
activities
cannot be organised, the
IOM may distribute an
information package, of
which the Information
Leaflet
for
People
Resettled in France.
Programme-Based:
together with
protection need;
consideration of the
reception and housing
capacity in the
country.
10
Germany
Yes
2008: Focus on
members of
persecuted (religious)
minorities, victims of
violence and with
special medical needs,
single women with
children.
PreSelection
Yes
-UNHCR
Yes
No
-BAMF
Other criteria such as

capacity of
integration, ties with
Germany and family
unity.
2011: Priority to
refugees with SubSaharan origin who
fled from Libya.
11
Greece
359
12
Hungary
No
No specific
admissibility criteria.
A family (5-8 persons)
from the NorthAfrican region.
Aspects to consider
when doing
resettlement: need for
international
protection, security
reasons, integration
possibilities.
Yes
13
Ireland
Yes
Preference
Yes
Between 2005 -UNHCR

and 2008
-Minister
Justice
Equality
-Group resettlement
-balanced caseload
(mix of women at
risk, disable
persons, etc)
-community
or
spiritual leaders
14
Italy
Yes
No additional criteria.
-Minister
Foreign
Affairs
Latvia
360
Yes
Yes
No
Yes
for
and
Through the Irish

authorities
for
-Office for the

Promotion of
Migrant
Integration
(OPMI)
Yes
No, except in -UNHCR

Iraq in 2009 to -Ministry of
assess
the
Home Affairs
local situation.
-Territorial
Commissions
Pre-Selection
Yes
(Simplified
Procedure)
No
Possibly national
security
considerations.
15
-UNHCR
-OIN
16
Lithuania
17
Luxembourg
No
2009: Families with Yes

children (young if
possible),
including
single-parent families.
-UNHCR
Yes
/
OLAI did prepare some
leaflets concerning rights
upon arrival, including
healthcare and education
-Ministry
in
charge
of
immigration
-OLAI
-CARITAS
18
19
Malta
Netherlands
No
Subquota: 30 Medical
cases.
Refugees with medical
needs and women at
risk are resettled
through the TwentyOr-More programme.
Yes: 100
refugees/
year
Suspended
-UNHCR
from 1999 t o -Minister for
2005.
Immigration,
Yes: 400
Integration and
refugees/year
Asylum (quota
definition)
More emphasis will be

placed on the
which has been
applied since 2005.
Dutch Minister for
Immigration and
Asylum recently
proposed resettlement
be used as
strategically as
possible with regard to
the other purposes of
the countrys
-Ministry of
Justice
-Municipalities
-Ministry of the
Interior and
Kingdom
Relations, Ministry of
Foreign Affairs
Yes
No
Organised by COA,
consisting of three
trainings. Content:
elementary Dutch language
skill; Information about the
Dutch society; Information
about the receiving
municipality; and the
future accommodation.
For dossier-based refugees,
CO trainings are developed
and offered by IOM in
cooperation with COA.
-Resettlement
Unit of the
Immigration
and
Naturalisation
Service (IND)
- Central Agency
361
migration policy and

UNHCR to select
more higher profile
refugees such as
human rights activists
and academics.
for the
Reception of
Asylum Seekers
(COA)
20
Poland
n/a
Humanitarian aspects,
necessity to satisfy the
essential needs of
resettled refugees,
actual costs of
individual
programmes of
integration.
n/a
In the future:
-Council
of Yes
Ministers
Interview by
the Officer of -Head of the
the
Border
Office
for
Guard
Foreigners via
delegated to
the officer of
the selection
the
Border
task.
Guard outside
Poland
21
Portugal
Yes
Programme:
Yes
None so far
Continuity in
resettlement;
Privilege to citizens
coming from the
African continent and
from Eastern Europe,
but not excluding
other situations of
citizens coming from
other places, if these
justify their priority
selection, mainly for
serious humanitarian
reasons.
362
-UNHCR
- Immigration
Service /
Refugee and
Asylum
Cabinet
Yes
Yes
n/a
Non systematic distribution

of a Cultural
Orientation Leaflet for
Resettled Refugees in
Portugal.
- Ministry of
Internal
Affairs,
-Portuguese
Aliens and
Borders
Service
-Portuguese
Refugee
Council.
2011: People from

countries covered by a
Regional Protection
Programme,
unaccompanied
minors, children and
women at risk.
22
Romania
No
Potential for
integration applied in
2008, dropped in 2012.
2012 Criteria: Express
consent of the refugee
to be resettled in
Romania; Romanias
foreign policy;
Relocation
requirements at EU
level.
Minimum medical
requirements to be
defined.
PreSelection
-UNHCR
Pre-Selection
Yes
-Minister of
Administration
and Interior
Minister of
Foreign
Affairs
Slovakia
24
Slovenia
n/a
Global
migration Yes
trends, crisis areas
around the world,
integration capacities.
In addition, possible
cultural orientation and
counselling services
provided by ROI.
Possibly
-UNHCR
Yes
-Ministry in
charge on
internal affairs
Yes
Romanian NGOs involved
in integration programmes
will participate to the
selection missions to
inform refugees on
integration activities in
Romania and prepare
integration programmes.
-Romanian Office
for
Immigration
(ROI)
23
Yes
/
Yes
Informative lecture general information on
Slovenia, cultural
characteristics and habits,
on the prohibition of
polygamy and gender
equality, rights and
obligations of persons
enjoying international
protection in Slovenia.
363
25
Spain
Yes (possible)
The criteria will be

defined on yearly
basis.
Will follow EU
policies.
26
Sweden
Yes
No additional criteria.
Number of places by
country of first asylum
decided annually.
350 places for urgent
and emergency cases.
27
United
Kingdom
Yes
Regional allocation
targets, including
RPP.
Small percentage for
medical cases and a
higher percentage for
women-at-risk.
For Mandate refugees:
integration potential
and links with the UK.
364
Yes
2011 (Syria)
-UNHCR
(in the
future)
2012 (Tunisia)
-OAR (Office of
Asylum and
Refugees)
Yes, for
more
than half
of the
quota.
Yes, for less -UNHCR

than half of -Migration Board
the quota.
Yes
Possible
Yes (Migration Board

Officers)
For more than half of the
refugees selected for
resettlement, mainly those
selected via in country
selection missions.
Generally, cultural
orientation is carried out in
7-10 days.
Possible
Yes
Yes
No
By UK mission staff to
refugees explaining the
travel, reception and initial
integration arrangements.
Previously by IOM.
-UNHCR
-UK Border
Agency
(UKBA)
- Refugee Team
in the Asylum
Casework
Directorate
Yes
Yes (2011)
By IOM Information
sessions about Spain
Since 2011, a
1 day
programme
has
been
delivered by staff from the
Refugee Resettlement Unit
at the UKBA. It includes
video interviews with
refugees
previously
resettled
through
the
programme in which they
talk about their experiences
of resettling and advice for
new arrivals.
II-Post- arrival phase

Post arrival
phase
Status granted
EU countries
1
Austria
Belgium
Bulgaria
Cyprus
The Czech
Republic
Programme refugee
status or other
Specific status
Subsidiary
protection
Refugee
Rights granted
Denmark
Estonia
Other specific rights under

national law

welfare, access to education
and employment.
Potential
to
become
naturalized at a later phase

and employment.
Citizenship may be granted

on request after 5 years of
permanent residence.
6
The same as persons

under the subsidiary
protection status
The same as
refugees
The same as national citizens

and employment.
Right of permanent
residence.
(5 year-stay
permit)
4 year- residence permit
(10 year-stay
permit)

years.
(access to
permanent
residence after
7 years)
365
X (Quota Refugees)
Finland

and employment, after the
integration period.
4 year-residence permit
Direct
access
to
immigrants benefits upon
arrival

years.
9
10
France
X for health care, social

welfare and housing, access to
education and employment.
Germany
(10 year-stay
permit)

and employment.
3 year-stay permit. After 7

years a settlement permit
can be granted.
Strict
conditions
family reunification.
11
Greece
12
Hungary
13
Ireland
X (Programme
Refugees)

and employment.
Facilities
for
reunification

years to be extended to 5
years by future reform.
14
Italy

and employment.
(5-year stay
permit)
(3-year stay permit)
15
Latvia
16
Lithuania
17
Luxembourg
X Social welfare and

healthcare
18
Malta
366
for
family
19
X (Invited Refugees)
Netherlands

and employment.
years of permanent residence.
20
Poland
21
Portugal

and employment.
(Access
to
permanent
residence after
5 years)
X
(5

years.
22
Romania
23
Slovakia
24
Slovenia
25
Spain
26
Sweden
5 year residence permit.
X for health care, access to

education and employment.
X for health and social care,

access to education and
employment.

and employment.

and employment.
(5
year-stay
permit)
/
Right to permanent
residence
X
year-stay
permit)
X
Permanent Residence
Permit

years for refugees, after 5
years for beneficiaries of
subsidiary protection.
27
United
Kingdom
X for medical care and social

and employment.
Indefinite Leave to
Remain

years
367
Annex 3: EU Member States Position toward Resettlement and Relocation

EU Member
States
Supports
Resettlement
Austria
Belgium
Bulgaria
No
Yes
Yes
Cyprus
No
Czech
Republic
Denmark
Estonia
Finland
France
Germany
Supports
Relocation
No
No
Yes
No
(Except from
its territory)
/
/
/
/
/
/
Yes
No
Yes
Yes
No
Yes
Yes
Yes
No
No
Yes
/
/
No
Yes
Yes
Yes
/
/
/
/
Yes
Seems to merge both
data within resettlement.
Same for the temporary
reception.
/
/
Yes
Within the same quota
Greece
No
Hungary
Yes
No
(except from
its territory)
Yes
Ireland
Yes
Yes
Italy
Yes
Latvia
No
Lithuania
No
No
(except from
its territory)
No
Yes
Yes
(once)
No
(except from
its territory)
Yes
(once)
No
(except from
its territory)
Netherlands
Yes
Yes
Poland
Yes (in theory)
Yes (in
theory)
Portugal
Romania
Yes
Yes
Yes
Yes
Luxembourg
Malta
368
Separates
Resettlement and
Relocation
Merges Resettlement
and Relocation
Usually Yes (but used

its resettlement quota
for a emergency
relocation in 2006)
Yes
Same legal basis, same
quota
/
/
/
/
No
Slovakia
Yes (in theory)
Yes (in
theory)
Yes (terminology)
Yes
Slovenia
Yes (in theory)
Yes
Yes
Same legal basis, same
quota
Spain
Yes
Yes
Sweden
Yes
No
Yes
United
Kingdom
Yes
Not any
longer
Totals:
20 Yes
15 Yes
5 Yes
5 Yes
369


The capacity to do it better
and to do it more
Elona Bokshi

EU Comparative Report

370
KNOW RESET
Research Report

The Capacity to Do it Better and to Do it More
Elona Bokshi
European Council on Refugees and Exiles (ECRE)
371

Elona Bokshi, Refugee Resettlement in the EU: The capacity to do it better and to do it more, KNOW
RESET RR 2013/04, Robert Schuman Centre for Advanced Studies, San Domenico di Fiesole (FI):
European University Institute, 2013.

Badia Fiesolana
Italy
372
country of first asylum reports, as well as thematic reports and policy briefs. This user-friendly
Programme.
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
373
List of Contents
I. Introduction .......................................................................................................................................... 1
II. Resettlement practices and capacities across Europe ......................................................................... 7
A.
Capacity in terms of numbers: more new resettlement countries, more places? ........................ 8
B.
Capacity in terms of methods and tools ................................................................................... 18
C.
Capacity in terms of actors ....................................................................................................... 22

(i)
Pre-arrival Phase ................................................................................................................. 23
(ii)
Post Arrival Phase ............................................................................................................... 24
D.
Capacity in terms of funding .................................................................................................... 28
E.
Capacity in terms of political will ............................................................................................ 32
III. The future of resettlement in Europe ............................................................................................... 39

(i)
Quality vs. Quantity: how to increase quantity and enhance quality?................................. 40
IV. Conclusions and recommendation .................................................................................................. 44

V. Bibliography ..................................................................................................................................... 47
374
Abstract
Know Reset was an EU-wide research project 1 that aimed to analyse how resettlement is currently
conducted in the European Union, and in what ways it can be improved. The purpose of this report is
to make the case for the increased use of resettlement by European countries on two levels: firstly,
through the establishment of new national resettlement programmes in different countries and the
expansion of national programmes where they already exist; secondly, to continue common efforts at
national and EU level for a harmonized European resettlement programme, the future of which will be
negotiated in the context of the EU financial perspectives for the period 2014-2020.
The report is illustrated with examples from various Member States. Drawing from the collated
country profiles, the findings illustrate capacity for resettlement in four areas: funding; the different
actors involved; political will; and the methods used. The paper looks at each of these areas and starts
by assessing the capacity of EU Member States to commit or not to resettlement; to expand their
efforts (more resettlement places); and to conduct more effective (better quality) resettlement. This
makes up the first section. Secondly, the future of resettlement across the European Union is explored.
Finally, we formulate recommendations to improve the quality of national resettlement and to promote
a better resettlement policy in Europe.
Know Reset is co-funded by the European Commission through the European Refugee Fund (ERF) 2010
375
ACRONYMS
UNHCR
United Nations High Commission for Refugees
EU
European Union
EP
European Parliament
NGOs
Non-Governmental Organisations
JEURP
EU Joint Resettlement Programme
ERF
European Refugee Fund
AMF
Asylum and Migration Fund
ECRE
European Council on Refugees and Exiles
CCME
Churches Commission for Migrants in Europe
CO
JHA
Justice and Home Affairs
IOM
International Organisation for Migration
MS
Member States of the European Union
UKBA
United Kingdom Border Agency
EASO
EUROPEAN ASYLUM SUPPORT OFFICE
COA
Central Agency for the Reception of Asylum Seekers in Netherlands
UAF
University Assistance Fund in Netherlands
376
I. Introduction
i.
Resettlement Capacity in Europe at a glance
The scale of resettlement has changed dramatically over the last thirty years. The phenomenon of
resettlement in the international arena originated and evolved in the context of the Cold War. 2
Historical efforts across nations were exerted to help the large numbers of displaced people in the
aftermath of Second World War. Since then, Europe has been offering resettlement as a protection tool
for refugees, albeit not at a scale comparable to other countries 3 like the US, Canada and Australia. 4
UNHCR set a goal to increase the number of countries conducting resettlement and their
encouragement of new programmes had already showed some success by 2000. 5 Their programmes
were relatively small but their involvement was very important in giving new strength to this policy
tool. Since then individual EU Member States have responded to resettlement as a protection tool in
different ways. In 2002 the UK Home office announced its plan to establish a resettlement
programme. 6 By that time there were seven 7 EU Member States with some form of resettlement
programme or who had established the firm ambition to carry out resettlement. However, in addition
to this, several other Member States were in fact already resettling some refugees on an ad hoc basis at
the specific request of UNCHR. These resettlement cases were often people with an immediate need
for protection, often with a family member, in the state in question.
After years of a solely national approach to carrying out resettlement, momentum began for a
combined European approach in 2008, which demonstrated that Europe was ready for a collaborative
approach to resettlement. Through Conclusions of the Justice and Home Affairs Council that year,8 the
EU committed to resettle up to 10,000 Iraqi refugees, after a call was released from UNHCR. This
commitment represented the first joint effort of EU Member States to offer international protection to
a specific refugee population through resettlement.9 The response of the EU to the Iraqi refugee crisis,
however, showed some of the difficulties of a joint EU response without an existing decision-making
mechanism or any corresponding infrastructure. 10 The ICMC report 10.000 refugees from Iraq, May
6
7
8
More info please see also the introduction Refugee Resettlement in the EU: Between Shared Standards and Diversity in
Legal and Policy Frames Delphine Perrin and Frank McNamara, pg.7 http://www.know-reset.eu/?c=00013
A comprehensive database on Resettlement in the EU, and throughout the Member States can be found at the Know Reset
Website < http://www.know-reset.eu/?c=2>
Know Reset, Country of First Asylum Report: Tunisia, 2013 p13: burden sharing is spread unevenly between the 27 EU
Member States, since the EU received 5,000 refugees between 2011/2012 (4,700 in 2010), the vast majority are hosted by
the USA, Canada and Australia., http://www.know-reset.eu/?c=00012
Joanne van Selm, Tamara Woroby, Erin Patrick and Monica Matts, Study on The Feasibility of setting up resettlement
schemes in EU Member States or at EU Level, against the background of the Common European Asylum system and the
goal of a Common Asylum Procedure. 2003
http://ec.europa.eu/dgs/home-affairs/elibrary/docs/pdf/resettlement_study_full_2003_en_en.pdf,
Ibid.
Denmark, Finland, Netherlands, Portugal, Spain and United Kingdom.
European Council (2008), JHA Council Meeting, Council Conclusions on the reception of Iraqi refugees, Brussels, 27-28
November 2008.
10
International Catholic Migration Commission (ICMC), 10,000 refugees from Iraq: A report on joint resettlement in the
European Union, May 2010.
Churches Commission for Migrants in Europe (CCME) Twelve Arguments and Seven Proposals for the EU Refugee
Resettlement Scheme, 2009.
377
Elona Bokshi
2010, concluded that the pledge to resettle up to 10.000 refugees from Iraq had not been met and by
December 2009, only about 85 % of the refugee had effectively arrived in the European Union. 11
Building upon the public consultations carried out in the framework of the Green Paper on the
future of the CEAS in 2007, the EC announced in its policy plan of 17 June 2008 that it would make
proposals to develop an EU Resettlement Scheme in the course of 2009 (in which Member States
would participate on a voluntary basis). The new European Refugee Fund (ERF III), 12 which became
operational in 2008, provided financial assistance for the resettlement of refugees from third countries
to the EU Member States.
The second half of 2009 was of crucial importance for the future of the of EU policy on refugee
resettlement. In September 2009, during the Swedish Presidency, the EU Member State with the most
extensive experience in refugee resettlement, the EC presented its proposal for an EU Resettlement
Scheme. 13 The Stockholm program welcomed the initiative by inviting the EU institutions to
encourage the voluntary participation of Member States in the EU resettlement scheme. The
Stockholm Programme was another step further and one that reached a strong institutional consensus.
In addition, on 18 February 2009, the Commission adopted a proposal for the creation of a
European Asylum Support Office (EASO) which became operational in 2010. EASO is tasked with
providing a structural framework for the carrying out of practical cooperation activities in the field of
asylum, including activities related to resettlement.
The year 2011 was very important on the worldwide political arena, due to the uprisings in
North Africa and the war in Libya both of which created massive flows of people fleeing their
countries to seek asylum elsewhere. During the height of the 2011 Libyan civil war, Tunisia absorbed
11
12
13
ICMC 10.000 refugees from Iraq A report on Joint Resettlement in the European Union, op.cit.
Decision No 573/2007/EC.
Commission proposal (2009) 447 http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0447:FIN:EN:PDF
378
Refugee Resettlement in the EU: The capacity to do it better and to do it more
over a million people seeking sanctuary Choucha alone received upwards of 18,000 people a day. 14
In response to that, the European Commission organized a pledging conference on resettlement in
May 2011 for Member States to pledge places for the thousands of refugees waiting in camps with
poor living conditions. The pledging conference was a decisive step towards the adoption of the Joint
EU Resettlement Programme (JEURP). 15
The conference was soon followed by another call for a resettlement plan16 for refugees stranded in
Choucha unable to return to their country of origin, to which a number of MS responded collectively.
Thus began a political drive across the European Union for more collaborative resettlement approach,
continuing the joint commitment that had already started with Iraqi refugees that resulted in offers to
resettle 5000 refugees fleeing the civil war in Libya 17 who were residing in the Tunisian Transit camp,
near Choucha.
This on-going momentum for resettlement led to the adoption of the JEURP, 18 although it was almost
two years later, during which time the proposal remained stuck between institutions mainly due to annual
priority setting and because of an argument about which decision procedure to use in connection to the
implementation of the Lisbon Treaty. During these two years, it is important to emphasise the
importance of the role of the European Parliament in advocating for the adoption of the JEURP.
Up until the adoption of JEURP, resettlement was carried out by EU Member States without much
consultation and coordination among each other. There had been several trans-national resettlement-related
projects, including twinning, which were carried out within the EU over the past few years, using
European Refugee Community funds (including ERF). 19 These projects covered a wide range of activities,
such as the selection process and reception and integration of resettled refugees. Many different actors, both
governmental and non-governmental (international and local NGOs, UNHCR, IOM), from both
resettlement and non-resettlement countries participated in projects of this type, with the aim of facilitating
the collection of information and the exchange of practices between Member states. These projects and a
few joint missions, which took place between 2008 and 2009, paved the way for creating a more
favourable environment for resettlement and encouraged more Member States on board. 20
The central element of the EU Resettlement Programme 21 is a mechanism allowing for the setting
of common priorities on resettlement for 2013, as well as more effective use of financial assistance
available through the European Refugee Fund which is designed for resettlement activities. The
JEURP allowed for closer political and practical cooperation among the Member States, so as to
increase the effectiveness and cost-efficiency of their resettlement activities, and the humanitarian and
strategic impact of resettlement. The JEURP also provided the impetus for other Member States to
take part in resettlement. This political and financial incentive allowed some Member States to move
from ad hoc resettlement to annual/programme-based resettlement, for example, Belgium and
Germany, and for other Member States new to resettlement such as Hungary, to begin their efforts.
14
15
16
17
18
19
20
21
Kristopher Sobo, 2013 http://www.mediaglobal.org/2013/07/31/unhcr-helps-tunisia-with-refugees-in-wake-of-libyancivil-war/

European Parliament, Comparative Study on the best practices for the integration of resettled refugees in the EU Member
States, pg.17 http://www.resettlement.eu/sites/icmc.tttp.eu/files/EP%20study.pdf 2012
European Parliament (2011), Debate on Support to Refugees in Tunisia, 28 September 2011, Strasbourg.
Wafa Baba, Know Reset, Country of First Asylum Report: Tunisia, pg. 8, http://www.know-reset.eu/?c=00012
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2012:092:0001:0003:EN:PDF 6444/12;
http://register.consilium.europa.eu/pdf/en/12/st06/st06444-ad01co03.en12.pdf.
For more information please read Joint EU Resettlement Programme in http://www.know-reset.eu/?c=00069
http://ec.europa.eu/dgs/home-affairs/financing/fundings/migration-asylum-borders/refugee-fund/index_en.htm
States, 2012:18 www.ecre.org/component/downloads/downloads/747.html
Decision 281/2012/EU of the European Parliament and of the Council of 29 March 2012.
379
Elona Bokshi
The data gathered in the research points out that there are now more Member States (16)
conducting resettlement than ever before, however obstacles remain which hinder the capacity and
quality of the resettlement conducted.
Four Member States have only conducted ad -hoc schemes, fourteen Member States have or have
had an annual or multiannual programme.
Apart from an increase in committed resettlement places made available by more Member States
over the last thirty years, another innovative approach is that resettlement is now more regulated
and framed: 13 EU countries refer to resettlement in Law. 15 EU countries have adopted
governmental acts related to resettlement. 22
In addition to this level of formal commitment, our research has shown that socio-economic factors
remain an influential part of the decision process on behalf of Member States. This leads us to believe
that issues and challenges related to resettlement policy cannot be addressed in isolation from
broader migration trends and issues.
This means that any national public discussion on resettlement does not take place in a vacuum but
is entangled with other migration issues. The public remain largely unaware of resettlement occurring,
to the point where there is confusion regarding the difference between asylum seekers, economic
22
Know Reset, Formal Basis for Resettlement and Effective Resettlement in the EU Member States, <http://www.knowreset.eu/files/texts/00700_20130812105725_final.pdf> June 2013
380
migrants and resettled refugees. 23 Public opinion has shifted even in traditional resettlement countries
to people being more reluctant to resettle more refugees. This is partly linked with the asylum crisis
in a few countries like Belgium, for example.
The impact of the economic crisis has been specifically named in a number of cases. Policy makers
(Governments) in a few Member States (like Spain) have been cautious not to refer to resettlement
efforts openly due to the economic crisis and the fear of negative backlash from the public. The
worsening economic situation across and Eastern Europe has affected also Bulgaria and the countrys
recent initiatives in the area of resettlement.24 Other countries not engaged to resettlement are affected
by this too.
Some states have resettlement mechanisms in place and have had such mechanisms for a number of
decades, whereas other states are new to the process and have not the same level of experience. This
was reflected in the Know Reset research, in each Member State Country Profile, collated here in this
paper, where we saw real diversity in capacity. With such diverging capacities across the Member
States it still remains important that states maintain the high quality of resettlement, as well as the
fulfilment of the quantitative expectations set by quotas.
Recently, with no end to the conflict in sight In Syria, the UN agency has urged EU nations to offer
asylum to some 10,000 Syrians this year and another 30,000 in 2014. 25 To date, Germany, Austria,
France, Finland, the Netherlands, Spain, Sweden, Luxemburg, Hungary and Ireland26 are amongst
countries who have accepted to resettle Syrian refugees.
ii. About the report and method research
The research undertaken as part of the Know-Reset project examined all 27 EU Member States, both
those that have resettlement experience and those that do not, in an effort to bring about a better
understanding of resettlement and the potential expansion of resettlement practices in Europe. The
different approaches to resettlement, the historical relationship with resettlement, and the legal
framework of resettlement were thoroughly analysed in each country. As a result of the project, 27
country profiles, an online database at EU level (EU legal and policy documents directly or indirectly
linked to resettlement) and of national information27 (on different legal and administrative framework,
statistic, policy statements and debates, and reports), and tools for quantitative and qualitative country
comparison have all been published on the Know-Reset website. 28
The research covers resettlement and non-resettlement Member States of the European Union
(MS). Within the MS which conduct resettlement, there are two broad types of resettlement:
Ad hoc resettlement, which responds to situations as they happen with no pre-defined quota;
Programme-based resettlement in which MS set annual or multi-annual quotas.
In addition to this, the research was guided by two overriding questions:
23
24
25
26
27
28
What is the current resettlement policy and practice in Europe and how can EU Members
states do more and better?
Know Reset, Finnish Country Profile,

http://www.know-reset.eu/files/texts/00151_20130705130136_knowresetcountryprofilefinland.pdf
http://www.know-reset.eu/?c=00146, pg.1
http://www.unhcr.org/5249282c6.html
Ibid.
For more information please see: http://www.know-reset.eu/?c=00002
Know-Reset Website, <http://www.know-reset.eu/>
381
Elona Bokshi
Do existing resettlement systems in Europe meet the needs of refugees, and what can be
done to improve these systems?
To answer to those questions, background research was conducted in each country engaged in
resettlement, including desk and field research. Field research consisted of a series of semistructured interviews 29 with relevant authorities in each EU Member States, as well as other
stakeholders at national level. Desk research also included background statistical research. For each
EU country, data on resettlement and related phenomena on asylum and immigration were provided
by national institutions. The on-line database 30 now provides statistics for each Member State.
Background research and interviews were also conducted in other EU countries not committed to
resettlement for comparison.
By looking at both types of resettlement (programme-based resettlement and ad hoc) at two
distinct stages of the resettlement process (from pre-departure to post-arrival of refugees), the research
enabled us to compile an inventory of the legal frameworks and actual practices of each resettling EU
member state.
The first part of the paper builds on the major elements in any resettlement programme, which are
identified and explained in each sub-section. As part of this review the resettlement programmes of 14
Member States are discussed: four 31 of the traditional countries of resettlement, which are
Denmark, Finland, The Netherlands and Sweden, together with the other ten EU Member States
implementing programme-based resettlement, which include: Belgium, Czech Republic, France,
Germany, Hungary, Ireland, Spain, United Kingdom, The Netherlands, and Romania. 32 Other ad hoc
programmes and measures in other EU Member States are also considered.
Various trends emerged during the examination of differences between resettlement Member
States, which also had an impact on identifying the potential for future resettlement in nonresettlement Member States. These trends can in part explain whether and how resettlement can
quantitatively be increased (more numbers resettled), whilst at the same time boosting the quality of
resettlement programmes (better conditions and smoother processes). Trends emerged around four
distinct categories:
1. Methods used: How are quotas set by Member States, and how does this affect decisions
making? How are refugee selected, and by whom?
2. How is the setting of quotas linked to the country's overall foreign policy (provided that
there is enough evidence to evaluate this) and development objectives?
3. Actors involved: Who are the stakeholders involved in the process? What is the division of
roles between the national government, NGOs and local authorities? What human resources
are available for resettlement programmes from the national governments?
4. Funding: Is there enough EU financial assistance and/or national funding to ensure that
quality resettlement is conducted? Has the economic crisis in Europe influenced decisions to
resettle?
5. Political will: What is the overall political debate around asylum in the country, the overall
asylum situation and needs? Is there a preference for the kind of refugees accepted? How far
do public opinion and the media influence resettlement decisions? What other factors
contribute to resettlement decisions?
29
30
31
32
Some names are cited in the report, others are not when the interviewees did not wish to be named.
http://www.know-reset.eu/?c=00011
Norway is not included in the research as it is not part of the EU.
Bulgaria plans to implement a resettlement programme in 2014.
382
To assess the current and future capacity of Member States carrying out resettlement, and the
potential of future resettlement in non-resettlement Member States, these four categories, were
examined further in the first section of the paper, entitled 2013: Resettlement capacity at a glance.
It should be noted that the capacity for integrating resettled persons is beyond the scope of this
paper. Other recent reports have covered this issue in depth for example the EP comparative study on
the best practices for the integration of resettled refugees in the EU Member States33 and the new
UNHCR Guide on the Integration of Resettled Refugees. 34 The EP study examines the question of the
integration of resettled refugees in Europe, by analysing the policy framework for resettlement and
refugee integration and the practices at the national and the European level. The UNHCR Guide
explains the essentials for establishing a resettlement programme and the fundamentals for achieving
sustainable resettlement programmes.
As a result, this paper does not focus on material capacities (eg, housing, etc), although it did come
up in the research that the reception and integration of resettled refugees poses challenges to
resettlement countries, local authorities, local communities, and partners. Some important elements of
reception capacities and their impact, however, will be touched upon in the course of the paper as a
crucial cross cutting issue such as the lack of specific reception/accommodation facilities.
The first part of the paper builds on the major elements in any resettlement programme, which are
identified and explained in each sub-section. As part of this review the resettlement programmes of 14
Member States are discussed: four 35of the traditional countries of resettlement, which are Denmark,
Finland, The Netherlands and Sweden, together with the other 10 EU Member States implementing
programme-based resettlement, which include: Belgium, Czech Republic, France, Germany, Hungary,
Ireland, Spain, United Kingdom, The Netherlands, and Romania, 36 Other ad hoc programmes and
measures in other EU Member States are also considered.
The second section entitled The Future of Resettlement in Europe explores the possibility to
conduct more and better resettlement across the European Union. Finally, the conclusions of the Know
Reset findings are included, followed by a set of recommendations for more effective resettlement in
Europe.
II. Resettlement practices and capacities across Europe

Sub-section A looks at the question of whether the number of resettlement places made available
has increased or not in parallel with the expansion of the number of EU resettlement countries.37 One
would think that there would be a considerable increase in the number of resettlement places
automatically with the expansion in the number of EU resettlement countries, but the research
indicates that is not necessarily the case.
Sub-section B looks at the method used in selecting refugees and in setting the quotas which from
the research also impacts on the capacity of host member states to resettle. The national Governments
are the main actors in this phase.
Although national governments are responsible for the selection of refugees for resettlement,
Regional and Local Authorities play a central role in offering reception and integration support once
33
34
35
36
37
Stateshttp://www.resettlement.eu/sites/icmc.tttp.eu/files/EP%20study.pdf 2012
http://www.unhcr-centraleurope.org/pdf/resources/legal-documents/unhcr-handbooks-recommendations-andguidelines/unhcr-guide-on-the-integration-of-resettled-refugees.html
Norway is not included in the research as it is not part of the EU.
Bulgaria plans to implement a resettlement programme in 2014.
Please note that the statistics gathered in the framework of this project covers the period 2000-2011.
383
Elona Bokshi
refugees have arrived. The success of national refugee resettlement programmes thus depends on the
commitment, ability and partnerships of cities, municipalities and regions. In addition to this, it is also
important to highlight the major role that NGOs play in the whole resettlement process. Sub-section C
assesses the level of cooperation between these actors, the services they provide and the extent of their
involvement on the effectiveness of resettlement. The analysis of this section clearly shows that
cooperation between stakeholders not only varies from one country to another but also within each
country.
A further section on the economics of resettlement elaborates upon the type of the information
necessary to understand how much resettlement costs. Financial incentives continue to play an
important role in encouraging resettlement across the EU Members States, so the existing funding at
EU and national level will also be important and is looked at in sub -section D. This section will also
analyse the impact that the ERF has had in Member States to increase the number of refugees resettled
in each of them. Going back to the paper Twelve Arguments and seven proposals for the EU Refugee
Resettlement Scheme published by CCME on 29 June 2009, 38 it is interesting to note that this
research indicates the same results, namely that: Member states (especially the smaller ones or poorer
ones) have often been reluctant to engage in resettlement because they believe that the infrastructure
for a resettlement programme may be too costly.
Crosscutting aspects of political reasoning and decisions about resettlement are analysed in subsection E. This sub-section analyses not only the current political socio-economic factors affecting EU
Member States engaged in resettlement; but also the future political trends in both resettlement and
non-resettlement EU countries relating to political decisions regarding their commitment or lack of, to
resettlement. The impact of public opinion and media is also explored in this sub section. It seems
that with strong public support and demonstrable political will, adequate resettlement possibilities and
good cooperation with the regional and local authorities,39 European resettlement efforts may better
respond to dramatic resettlement needs.
A. Capacity in terms of numbers: more new resettlement countries, more places?
According to UNHCR the number of people currently in situations of displacement has reached 45
million worldwide, the highest figure for 14 years. While global resettlement needs now stand at
691,000, not including the massive outflow of refugees fleeing the crisis in the Syrian Arabic
Republic, the number of annual quota places from UNHCR submissions40 sits at 86,000. This
highlights the huge disparity between resettlement needs and state response. 41
In the context where the global protection needs are larger than the willingness and capacity of host
countries to resettle, the question who to resettle and how many is a pressing and critical one for
EU Member States. The evidence found in the course of this research highlights many factors which
emerge around the four distinct categories examined above: method used, actors involved, political
will and funding. A few of them related to capacity in terms of numbers and methods used will be
elaborated upon this section.
38
39
40
41
These are available at:

http://www.ccme.be/secretary/NEWS/090629%20RR%20CCME%20considerations%20and%20recommendations%20E
U%20RR%20scheme%20FINAL.pdf
Interview with Janneke van Etten, Senior Policy Officer at the Ministry of the Interior and Kingdom Relations, Migration
Policy Department , Asylym, Reception and Return, Netherlands.
UNHCR Resettlement Handbook, June 2011 Chapter 6: UNHCR Resettlement Submission Categories
http://www.unhcr.org/3d464e842.html
UNHCR, Projected Global Resettlement needs 2014. http://www.unhcr.org/51e3eabf9.html
384
The research also suggests that a link between the number of asylum seekers and of resettlement
arrivals exists, even if it varies from one country to another. Even though the evidence is not clear,
there seems to be a point at which an increasing number of asylum seekers impacts the government's
decision to engage in resettlement or vice versa. Resettlement programmes can also impact the number
of asylum seekers arriving in the EU. For example, France saw the number of asylum seekers
increasing very significantly over several years (from 35,520 applications in 2007 to 57,113 in 2011),
which causes difficulties in terms of reception and accommodation. Under these circumstances, it is
difficult to envisage more cases of resettlement. In an interview, the Finish Refugee Advice Centre
considered that It would be good if the EU could create mechanisms through which countries that
receive less asylum seekers would be motivated to increase their resettlement quota. Refugees and
asylum seekers are often seen as two separate groups and a holistic approach is lost. More evidence is
found in the Belgian case where the number of persons to be resettled is a political decision. Various
factors are relevant, including the number of regular asylum seekers and the situation of the reception
network. In 2009 but especially in 2011, the reception network and the national asylum system in
Belgium were under very severe pressure, which led to a relatively restrictive number of resettlement
places. Although the choice of countries has not been based on strategic choices connected to Belgian
Foreign Policy so far. 42
In 2000, the UK Home Secretary Jack Straw, proposed an EU-wide programme that would have
impacted the number of asylum seekers arriving in Europe and in 2002 the UK government published
a white paper Safe Borders, Safe Haven proposing reforms to the UK's immigration system. These
included provisions to develop a resettlement programme based on quotas in order to open a legal and
safe route to the UK for vulnerable refugees and to avoid them falling into the hands of smugglers and
traffickers.
The table below gives a snap picture of the number of refugees granted protection during the last
decade in the European Union. Despite the arguments above, the numbers show that it is the countries
receiving more asylum seekers who also resettle more refugees.
Deciding how many refugees to resettle is in many ways about defining the nature of the
programme as well as the image 43 of the resettlement country in the global refugee protection system.
42
43
Written interview with Ewout Adriaens, op.cit.

Ibid.
385
Elona Bokshi
For example, in the Swedish context, it is very important that politicians are not afraid to stand up for
refugees and openly say that Sweden needs to show solidarity. In addition to this, politicians always
include resettlement in the talks about asylum issues as an important issue. 44 Since the resettlement of
refugees plays an important role in the EUs external policies on asylum, the involvement of Romania
in the resettlement programme was driven also by the desire to assume more responsibility as an EU
Member State. 45 The research shows that there is no implementable guideline in determining how
many resettled refugees would be a good number for any given state. This is manly linked with the
way Member States decide on the annual numbers and their levels of setting a quota, a target or a
ceiling. The decision on the national annual budget also impacts on the annual numbers along with
political will and the capacity for reception and integration. Sweden, for example, in contrast with
most other member states, links a specific amount of resources to each refugee entering the country,
rather than making a standard budget available. The UK is aspiring to increase the quota by 1000 per
year when this becomes affordable. The present financial climate suggests that additional money for
resettlement is unlikely to be available in the near future and the focus will need to be either: increased
funding from Europe; or reducing the levels of support and accommodation to refugees in order to
increase the numbers resettled within the existing budget.46
The adoption of the Joint EU resettlement Programme, in March 2012, was a positive step towards
increasing the number of resettlement places made available by EU Member States. However, the
resettlement capacity has not significantly increased in parallel with the expansion in the number of
EU resettlement countries. Efforts by EU member states in resettlement are still limited particularly
compared to the global resettlement needs as well as their potential capacity.
A comparison of the two graphs/maps below proves that although the EU map of resettlement
countries 47 is expanding with more Member States committed to resettlement, the rate has not kept
pace with the number of refugees resettled. If we refer to the data gathered by the Know Reset project
in 2011 48 (4,325 refugees) then the EU resettled 1,062 refugees less in that year than in 2010 (5,387
resettled refugees).
44
45
46
47
48
Interview with the Swedish Justice Ministry.

Interview with the RUMANIAN OFFICE OF IMMIGRATION, op.cit.
Interview with Dave Atkinson, Refugee Team, London and South East Region, UK Border Agency 16/05/12.
Know Reset Website 2013 <http://www.know-reset.eu/?c=00001>
Know Reset, Resettlement in the EU in 2011, 2013, <http://www.know-reset.eu/?c=00689>
386
387
Elona Bokshi
As a result, we can say that despite an increase in the number of countries resettling, Europes
overall contribution to global resettlement remained approximately the same (7.9 % of the total
number of refugees resettled in 2007 as compared to 2011 and 8.3 % in 2012). 49
The total number of individuals that European Member States have committed to resettle in 2013 is
approximately 5,500. 50
14 Member states 51 implement resettlement programmes, many with relatively small numbers. In
December 2012, the Hungarian Government announced the establishment of an annual resettlement
programme thus becoming one of the newest States in Europe to resettle, together with countries like
Spain, Belgium, Germany and Bulgaria. New resettlement countries are initially able to offer only
a very limited number of places, as they require time and resources to build their capacity to develop
and implement their resettlement programmes. However, for resettlement to fulfil its function as a
meaningful demonstration of solidarity with countries of first asylum and as a useful component of a
comprehensive durable solutions strategy, resettlement numbers need to be more significant in
comparison with the number of refugees waiting for resettlement in the country of first asylum.
It is of paramount importance that Member States at least maintain their pledges. Hungary for
example, considered the resettlement of a big family in 2012-2013 as a pilot programme but at the end
resettled only one refugee. 52 Likewise, in Bulgaria the difficult economic and political environment
meant that the official launch and the implementation of the resettlement programme that had been
approved since 2010, had to be postponed. 53
The graph below demonstrates clearly the share of resettlement within the EU for the last decade. It
also indicates the size of the impact which the traditional European resettlement Member States 54
have with regard to the number of resettled refugees.
49
50
51
52
53
54
ICMC, Welcome to Europe: A Guide to Resettlement 2013

http://www.icmc.net/system/files/publication/welcome_to_europe_a_guide_to_resettlement_a_comp_64641.pdf
Ibid.
Know Reset, Formal Basis for Resettlement and Effective Resettlement in the EU Member States, <http://www.knowreset.eu/files/texts/00700_20130812105725_final.pdf> June 2013
Hungarian Country profile, http://www.know-reset.eu/?c=00155
Anna Andreeva, Bulgarian State Agency for Refugess, Know Reset Conference, Brussels, 10 July 2013.
Denmark , Finland, Netherlands and Sweden (Norway not included in here it is not part of the EU).
388
The decision to resettle a refugee from another country is taken by the government of the
resettlement country. The resettlement country decides on the numbers of refugees it intends to
resettle, on the nationalities of the refugees resettled, on the countries from which resettlement takes
place and on specific categories of refugees it wants to resettle. Resettlement is generally carried out
with the UNHCR acting an intermediary.
While the general and basic decision to resettle or not seems to be quite straightforward, another
question on how to set quotas still remains open: should the Member States apply a quota, a ceiling or
a multi-year target for resettlement?
Before going through the challenges as to why the available annual quotas are not fulfilled, it is
important to emphasise the differences between the settings of levels as described below:
A quota has an advantage as it gives a precise quantity for measuring the success or failure of
resettlement programmes. A fixed quota system can also become a disadvantage either when it cannot
be filled, or proves insufficient to the needs in reality. Similarly, a ceiling sets up an upper limit as
well as expectations for the programme. European Members States do not currently apply a ceiling,
but other countries like the US do. 55 A target level has the advantages of flexibility and range, with
less opportunity for any failure (in numbers) in the programme.
At present, resettlement programmes in Member States such as Denmark and the Netherlands are
based on quotas planned on a multi-year basis. Additionally, recently, Germany has decided on a 3
year-quota. Other resettlement programmes in Member States such as Finland, Sweden, the UK,
Portugal and Ireland are set on an annual basis, but with fixed quotas, often fixed many years ago.
France has had the same fixed quota since 2008. Finally, resettlement programmes in Belgium, the
Czech Republic, and Spain, are based on a quota decided every year. For Hungary, the first "quota"
was a test so there is no information on how that will be applied in the future. Furthermore, Bulgaria is
55
goal of a Common Asylum Procedure, 2003
389
Elona Bokshi
a non-resettlement country but will participate in the joint EU Resettlement Programme by developing
and implementing a small-scale (20 refugees) pilot resettlement programme in 2014. 56
As stated in many country reports, the available specified numbers of resettlement places within a
defined period are rarely fully filled in most of the countries. The numbers are set annually, and any
places not filled are simply lost. This may seem to be a common feature yet the research shows that
the motives differ from one country to another.
Taking the traditional European resettlement countries, which have a long experience of
resettlement, as examples, they made a quota of over 7,000 refugees available in total during the
period 2008-2011. However, as we shall see later on, not all these places were actually filled.
The graphs which also point out that in recent years (e.g. 2009-2011) the traditional resettlement
Member States have kept more or less the same pace in resettling refugees. However, in some of the
non-traditional Member States 57 there has been an significant decrease in numbers.
56
57
Declaration of the State Agency for Refugees with the Council of Ministers, 24 March 2011.Bulgaria equal partner in
the building of the Common European Programme on Resettlement of Refugees, confirmed the 23 and 24 March, 2011 in
Sofia. http://www.aref.government.bg/?cat=13&newsid=399 [accessed 14 November 2011]. Available only in
Bulgarian.
Non-traditional Member States included in this graph are Czech Republic, the UK, Ireland and Portugal.
390
The few examples examined below describe the challenges in filling the quotas. In Finland since
2001, the quota has been fixed at 750 refugees per year. This quota has never been filled but the
number of resettled refugees varies from year to year. Ireland is another example, which has fixed a
resettlement quota of 200 persons per year, which was filled until the economic crisis began (in 2009
Ireland resettled 192 refuges and during the last few years between 20 to 49 refugees have been
resettled per year).
Filling the quotas has also been a consistent problem in the UK, where the quota of 750 was
achieved for the first time in 2011/2012, mainly because of budget issue. For Sweden unused quotas
cannot be rolled over to the following year. The quota in Sweden is not always reached mainly
because of logistical reasons.
In addition to this Romania also committed to resettle a maximum of 120 refugees for the duration
of the Programme (3 years), in annual quotas of 40 refugees, which it failed to fulfil. Only 38 refugees
were resettled in the context of this provision, representing the quota due in 2009 and the programme
was subsequently suspended. Resettlement was fully funded by the ERF. 58 The quotas due for 2008
and 2010 have not been fulfilled due to the delayed approval of Government Decision no. 1596/2009
on the resettlement of refugees in Romania, as well as due to the economic and social situation
resulting from the global economic crisis. 59
The exceptions to this are found in Denmark that has a three-year programme quota (1500
refugees /3 years) and the Netherlands, which has fouryear programme quotas (2000 refugees /4
years).
In the case of the Czech Republic, the system is based on annual quotas and was chosen due to its
flexibility as it could be changed each year according to the current situation. Between the years 2008
2010, on the basis of the National Resettlement Strategy, 81 Burmese refugees from Malaysia and
Thailand were resettled; in 2008 9 families were resettled and in 2010 it was 8 families. In 2011 no
58
59
Interview with the Romanian Office for Immigration (ROI), 23 January 2012.
Ibid.
391
Elona Bokshi
resettlement activities were implemented, in the same year the Ministry of Interior committed to
resettle- under the Czech ERF annual programme for 2012- 40 persons in 2012. 60
Challenges were also identified in Spain. Despite the willingness to resettle, especially after the
formal approval of the resettlement programme (2010-2011) in the Council of Ministers, Spain failed
to carry out any resettlement until 17 July 2012, when Spain resettled 80 refugees following the
UNHCR Global Resettlement Solidarity Initiative in 2011. 61
As mentioned earlier Hungary could not maintain its pledge to resettle one big family and in the
end resettled only one refugee.
It is also worth briefly mentioning the added value of the past ad hoc programmes that offered
resettlement to many refugees in need. As many of Member States have moved away from ad hoc
resettlement to annual/programme-based resettlement, they will not be examined under this
section.
The information above and the Know Reset country profiles clearly demonstrate that that
difference in the numbers of resettled refuges and the loss in the quotas can be attributed to a
number of factors such as reception capacities, socio economic situation, financial means etc. The case
of Finland deserves particular attention. According to the Finnish authorities, this is mainly due to the
lack suitable candidates proposed by UNHCR and the lack of flexibility in changing allocation
decisions to include candidates from other regions. Since the Finnish Government policy regarding
selection is explicitly based on humanitarian criteria and not on integration perspectives, it is unclear
why the set of quota cannot be fulfilled. It may also be linked to the reluctance of the municipalities to
resettle refugees and the fact that they do not get enough compensation from the state for the
integration services they provide. The municipalities may also refuse to resettle refugees with special
needs (medical or other) on the grounds that they are unable to provide adequate services due to a
lack of resources. There have also been complaints from resettling municipalities that the information
provided by UNHCR on submitted cases with special needs has been insufficient and, at times, not
updated. This can lead to expectations of refugees and those of the receiving staff being very different
and can in turn negatively impact upon the integration process. Some municipalities may also feel
uncomfortable in resettling refugees with a different skin colour due to negative attitudes locally, both
among the population and the policy makers. It is important to point out that the Finnish
municipalities are very independent from the central state and cannot be forced to resettle against
their will. The decision to resettle is taken through a political process in the municipalities.62
In the case of Ireland, the resettlement of refugees for the year 2012 has taken place and official
figures will be released at the end of the year. The reason for the failure to meet the quota in recent
years has been put down to Irelands current economic difficulties. Thus the quota of 200 persons is in
name only at present, with annual quotas being fixed on a year -by -year basis: for example a quota of
50 persons was fixed in 2010 (with 5 places reserved for medical cases). 63
Furthermore, it is equally important to note that the statistics provided in the above graphs are
related to the number of refuges already resettled in the host Member States and are not the numbers
referred to in their pledges or the settled annual quotas. As we shall see, there is a disparity in
60
61
62
Know Reset, Czech country report, http://www.know-reset.eu/?c=00148

Know Reset, Spanish country Report, http://www.know-reset.eu/?c=00168
Know Reset, Finish Country Report, http://www.know-reset.eu/?c=00151
Collated information from the interviews with stakeholders. Ann-Charlotte Sirn-Borrego, (ECRE ) Qualitative National
report for Finland , May 2012
63
Know Reset, Irish Country Report 2013, http://www.knowreset.eu/files/texts/00164_20130705130333_knowresetcountryprofileireland.pdf >
392
numbers between the established annual quota and the number of refugees effectively resettled
in each Member States.
In some Member States, a roll-over of unfilled places can occur. Some other states count the
number of people selected in a year, regardless of the precise moment of their travel; others count
people who arrive during a given year, and others the quota committed. For example in Sweden,
another reason for not reaching the quota is that Sweden counts refugees that actually arrived in
Sweden as fulfilled quota, not those who were selected but not transferred (because of conflict etc.) 64
For this reason, the statistics used in this project highlight to some extent the difficulty in comparing
data. There is a disparity in the yearly figures provided by UNHCR and Know Reset due to this
difference in counting. Comparing the figures for the year 2010, provided by UNHCR and Know
Reset project, we see that there is a difference in the number of resettled refugees of 382. UNHCR
data says that in 2010 4 707 refugees were resettled instead of 4.325 which is the figure provided by
Know Reset. Therefore, the way the number of resettled refugees is calculated is crucial as it impacts
what we actually know concerning the total number of refugees resettled. This also impacts the
judgements made to increase numbers or not of resettled refugees each year.
However, despite the fact that the total number of resettled refuges per year is a drop in the
ocean in view of global resettlement needs, we should not forget that it offers a chance for a new
beginning for every resettled refugee.
If Member States decide to have a common system of level setting for an EU programme, it is
suggested that they establish a collective target range and a bidding process allowing them to
determine their own target within the collective target.
Planning for total arrivals would be useful, particularly if the total number of arrivals might be
high. Allowing flexibility in distribution of places would be advantageous.
The following Recommendations were drawn up on the basis of a comparative overview from the
Know Reset Country Profile data.
64
The research indicates that the existing quotas should be used as baseline figures not as a
ceiling.
Multiyear planning (e.g. three years) should be implemented in terms of numbers (flexible
quota) and also in terms of priorities. This would give more certainty to UNHCR, local
authorities and NGOs and enable them to plan their integration efforts more effectively. If
substantial changes take place in terms of the refugee groups most in need of resettlement,
the plans could be altered during the period. This would also mean a better allocation of
funds for different projects run by NGOs.
By introducing a multi-year quota, the yearly national and international bureaucratic

decision- making process could be avoided and resources could thus be better directed into
planning, developing and implementing the scheme. However, for some Member States,
especially the smallest and the poorest countries, multi-year budgeting is not yet an existing
option due to the economic crises.
Governments need to secure their annual or multiyear targets of the resettlement quota.
Establishing the quota and maintaining them. This is especially important in a few new
Member States engaging in resettlement. For some it might be necessary to conduct an
evaluation of their resettlement programmes and its different stages to find out the reasons
for the backlog. Questions such as the following should be taken into consideration: Is it a
lack of resources? Could the cooperation and coordination between the different
stakeholders, both national and international, be improved? What other steps could be taken?
Interview with Mr. Oskar Ekblad (OE) Migration Board, the Unit for Asylum Procedures
393
Elona Bokshi
B. Capacity in terms of methods and tools

Not being able to fulfil the quotas is linked to the selection methods and selection process.
As clearly described in the EU comparative legal report Refugee Resettlement in the EU between
Shared Standards and Diversity in Legal and Policy Frames 65 the decision to resettle a refugee from
another country is taken by the government of the resettlement country. The legal and political nature
of this decision is discussed further in the aforementioned report where it usefully reminds us that: the
resettlement selection decision is in itself administrative in nature and is discretionary.
Most of the countries view resettlement generally as a tool of international protection for individual
refugees. The selection criteria/goals are very broad and vary from country to country, but are in
essence to support UNHCR in providing humanitarian protection for vulnerable refugees. This was
also the case with the recent approval of JEURP harmonized specific EU resettlement priorities,
specifying the nationalities of refugees and the countries from which resettlement should take place as
a priority, and for whom EU funding is available. The new Member States engaging in resettlementalong with the more experienced - responded to those priorities and especially to the EU call to resettle
refugee from the Shousha camp in Tunisia.
While incorporating UNHCR resettlement criteria and case submission as the basis of the selection
process, some governments shy away from receiving refugees that they think might have less
integration potential or may require more financial and public services support66. This integration
potential concept has been the subject of much debate among stakeholders in resettlement and
especially in the Member States in which this criteria it is still present in national legislation. Several
countries find integration potential to be important, though none has a real measure for it. In this
view, it is worth highlighting the few cases of the application of the integration potential. In the
Netherlands for example, the integration potential, viewed as the willingness and ability to integrate
into Dutch society, has played a role in selecting refugees for resettlement since 2005. 67 In the Czech
Republic, some integration aspects are also taken into consideration such as: the willingness of the
refugee in question to be resettled to the Czech Republic and the willingness to integrate into the
Czech Republic. 68 For Finland the refugees motivation to integrate is seen as an important factor too.
However, the Danish Government has recently committed to remove the integration criteria69 and
Romania recently abolished the integration potential criteria. The Integration potential can be
problematic in determining who should be resettled, as there is no clear way of measuring integration
potential or ensuring it is not discriminatory.
Despite the fact that the over-riding selection goals are based on UNCHR recommendations/criteria
and EU priorities, any additional selection criteria adopted by Member States remain an equally
important factor in implementing both ad hoc resettlement and resettlement programmes. A few
examples from the country profiles can be taken to illustrate the above statement. The Belgium
national report states that until now the number of selected refugees for resettlement was a political
choice and was dependant on a number of factors, including reception conditions. The decisions
regarding the target groups to be resettled were also based on Belgium Foreign Policy as well as to the
65
66
67
68
69
Refugee Resettlement in the EU: Between Shared Standards and Diversity in Legal and Policy Frames, Delphine Perrin &
Frank McNamara (EUI) http://www.know-reset.eu/?c=00013
International Catholic Migration Commission (2008), Welcome to Europe: A Guide to Resettlement
Know Reset, Netherlands Quantitative report.
Know Reset, Czech Country Profile, 2013 http://www.know-reset.eu/?c=00148
Know Reset, Danish Country Profile 2013, http://www.know-reset.eu/?c=00149
394
availability of EU funds. 70 For the Czech Republics foreign policy, Burma is among the priority
countries. Since the approval of its national resettlement programme the Czech Republic has resettled
only Burmese refugees from Malaysia and Thailand. Likewise, the Governments of the Nordic
countries meet in matters of overall policy for regular consultations within the framework of the
Nordic Council for Refugee Affairs (NSHF). Sweden does not set clear priorities for resettlement
selection, though in practice priority might be given to candidates with close family already residing in
Sweden. Another example is Finland in which a major goal in selecting refugees is the development of
communities within Finland, leading to a focus on particular ethnic groups, nationalities or refugee
situations over several years. It has also to be noted that the Finnish resettlement program is part of
Finlands humanitarian foreign policy and Finland remain a traditional UN country. 71
Based on the aforementioned information, in general, we can conclude that certain countries have
established their own additional criteria that are taken into account; this includes aspects of their
country specific asylum policy and foreign policy, the reception capacity and integration services that
are available. Lastly, it is interesting to see that in some member states security issues are also applied
as criteria in resettlement procedures. As an example the Finnish Security Intelligence Service as an
operative police authority responsible for national security issues, is now part of, amongst other state
actors, the preparation of a proposal for the Government on the territorial allocation of the refugee
quota 72. Additionally, security issues are also present in Sweden where bottlenecks occur for not
reaching the quotas. As mentioned by Oskar Ekblad (OE), now resettlement from Syria is completely
blocked; Kenya is also considered as a critical area since end-2011; recently protest movements in
Thailand impeded transfer of quota refugees.
Different member states apply also a sub-system of quota places reserved for medical cases and
urgent cases. For example Denmark has 75 places for dossier submissions, which can be either urgent
or emergency priority cases.
Selection methods and its impact at national level on quotas
The vast majority of the countries use a dossierbased (on file only with no face-to-face interview)
decision process and/ or a personal interview carried out during a selection mission in the country of
asylum. In addition to selection missions, the face-to-face interview can take first place locally with
the immigration officers based in their respective embassies.
In summary, most of countries in Europe choose refugees by using both methods although
preference is given to selection missions. The exceptions are France and Portugal, whose decisionmaking is based only upon dossier review. In the case of Portugal, the selection process on a dossier or
mission basis is not specifically provided for in Portuguese legislation. Portugal has been carrying out
resettlement decisions only on a dossier review basis. 73 In France the Asylum Service of the Ministry
of International Affairs takes the decision on individual cases after consulting every year with
UNHCR. From the interviews with stakeholders it was shown that France refuses half of the dossiers
submitted. 74
In the case of Finland, a limited number of cases are accepted through dossier submissions, while
the remaining quota refugees are selected during interview missions, conducted in each location. As an
70
71
72
73
74
Know Reset, Belgian Country Profile 2013, http://www.know-reset.eu/?c=00145

Interview with Arja Kekkonen, Negotiating Officer, Finish Ministry of the Interior, Migration Department Unit,
International Protection Unit.
Ibid.
Know Reset, Portuguese Country Profile 2013,
http://www.know-reset.eu/files/texts/00163_20130705130237_knowresetcountryprofileportugal.pdf
Matthieu Tardis, France Terre dAsile, 31 May 2013.
395
Elona Bokshi
exception to normal procedures, in emergency and urgent cases, refugees are admitted to Finland
without a personal interview on the basis of a written statement by UNHCR. In Sweden, in contrast to
other resettlement countries, a small majority of the quota is selected through dossier selection.
From the review of existing resettlement programmes we can make the following conclusions:
Selection missions are considered important in the resettlement selection process as it had
proven difficult to fulfil the quota solely through dossier selection. A large number of
rejections are based on the lack of information provided by UNHCR in the dossiers. This was
the case in the Netherlands where the selection missions were temporarily suspended from
1999 onwards and resumed in 2005. Now Governments have a more a proactive approach to
this, by making use of the selection missions, as they are considered to enhance the gathering
of relevant information for a large group at once, as well as on their region of origin.
One disadvantage can be that these selection (interview) missions might only be possible in
one or two locations and only a few times in a year. For example, countries like NL, FI and
SE usually undertake 4 to 5 selection missions each year.
The dossier based selection can be quick, and (in theory) relatively inexpensive, as no travel is
involved for selectors or for refugees. As explained above, relying solely on the UNHCR
submitted dossiers can lead to rejection not only due to the lack of information, but also as the
selection officers do not become acquainted with the situation in regions of origin. The challenge
for dossier selection is that the information provided should be precise and up-to-date so that the
municipality of resettlement is able to organize adequate reception arrangements.
Video conferencing: Recently some resettlement countries have begun to explore the
possibility of using video-conferencing to conduct selection interviews when access to
refugees is complicated or impossible. By removing the need to travel to a specific refugee
situation and organising the practical aspects of a selection mission, video conferencing may
significantly reduce the human and financial resources required for selection interviews. 75
However, the Welcome to Europe report indicates that conducting interviews via video
conferencing present new challenges such as: not being euqippe with the right technical
equipment, refugees unfamiliar with this type of technology. 76In addition to this, video
conferencing is considered not such an appropriate method for sensitive cases 77.
In the UK, all applicants are interviewed by UK Home Office officials (in the UK Border
Agency, UKBA) based on the UNHCR submissions. Where there is a pressing need for the
resettlement of a particular group and where it may not be appropriate for the UKBA staff to
travel to a host country to carry out the selection mission, the UKBA can conduct dossier
selections. Dossiers can be prepared containing details of cases which UKBA can accept
without conducting a resettlement interview. In future, some interviews may be conducted
using remote video conferencing facilities.78 The UK has begun to explore the possibility of
using video-conferencing to conduct selection interviews when access to refugees is
complicated or impossible. Moreover, selection interviews through video conferencing (in
theory) could be less expensive. 79
75
76
77
International Catholic Migration Commission, Welcome to Europe: A Guide to Resettlement 2013

Ibid.
Ibid.
78
Know Reset UK Country Profile2013, http://www.knowreset.eu/files/texts/00170_20130919160801_knowresetcountryprofileunitedkingdom.pdf
79
Know Reset, Uk country Report, http://www.know-reset.eu/?c=00170
396
While considering the methods used, it should be also noted that although a number of very
important steps have been taken over recent years and the elements of the Joint Resettlement
Programme are now in place, the current lack of joint activities and practical cooperation between
Member States increases the financial costs of resettlement in each country. A costly initial
infrastructure for resettlement was cited as a constraint for several Member states to engage in
resettlement. The latter has impacted upon the decisions of Member States like Portugal or Czech
Republic to introduce small resettlement quotas. Some of the activities like selection missions for
example, could be carried out jointly by, or in close cooperation with other Member States. The
example of the Netherlands is crucial to this process. The Netherlands has conducted a number of joint
missions in the past, assisting in the momentum leading up to the JEURP. These have taken place with
Czech Republic (2007) Belgium, Luxembourg, and Romania (2008), as well as Bulgaria and Slovakia
(2009). This gave those Member States the opportunity to learn and observe how to conduct
resettlement, and what is needed in order to carry out resettlement, including the use of quotas and the
importance of reception conditions. 80
As described above, selection missions are usually carried out by government officials, often from
the Ministry of Interior or Home Affairs. Participation of civil society and municipalities is still very
limited in the selection of refugees for resettlement. 81 It is increasingly apparent that other actors
should be involved, in order to ensure that the information gathered about refugees can be of benefit
to the preparations for reception, before arrival in the resettlement country.
The effectiveness of quota fulfilment can be improved by strategically planning the whole
process of resettlement (as all the actors involved have to know exactly what to do in
specific situations that occur). More specifically, this could include:
At EU level:
80
81
Twinning projects with experienced countries and new/potential resettlement countries
The EU should coordinate member states resettlement programmes when it comes to the
priorities and the selection process
Twinning arrangements between EU Member States would continue to allow for sharing
lessons learned from many years of experience. Practical cooperation in resettlement should
continue to be promoted by the European authorities. For example new resettlement Member
States would learn from traditional resettlement countries and could advise other European
countries that are starting resettlement programmes. At the same time, NGOs and UNCHR
should not address resettlement issues without taking into consideration national policies
towards asylum seekers.
The EU should do more to stimulate national governments to focus on the integration issues
of resettlement rather than on its selection process and criteria.
Know Reset, Netherlands Country Profile, http://www.know-reset.eu/?c=00161

See Chapter B Capacity in terms of actors.
397
Elona Bokshi
C. Capacity in terms of actors

Although national governments are responsible for the selection of refugees in carrying out predeparture activities, regional and local authorities and NGOs play an important role in the postarrival
stage, primarily in offering reception and integration support once refugees have arrived.
Every resettlement programme involves a variety of stakeholders. The quality of refugee
resettlement relies also, amongst other things, on the capacity for Member States to address the needs
and concerns of the stakeholders in the process: UNHCR, IOM, NGOs, Local Authorities,
Government Ministries, and finally Refugees themselves. This section will assess the level of
cooperation between these actors, the services they provide and the extent of their involvement on the
effectiveness of resettlement.
The Know-Reset findings have shown that collaboration between stakeholders varies at different
stages (pre-arrival and post arrival) of the Resettlement process. In most of the Member States the
government body responsible for the pre-arrival phase (selection of refugees and their transfer) is not
responsible for the post arrival phase (including here reception and integration). In the Pre-arrival
phase (i) refugee resettlement primarily involves UNHCR, IOM and the various ministries of the
Member State, whilst in the post-arrival phase (ii) resettlement involves local actors such as
Municipalities/Local Authorities, NGOs and in some occasions82 Refugee Community Organisations
(RCOs).
Before discussing the actors involved in the two phases of resettlement (pre-arrival and postarrival), it is worth mentioning the partnership mechanism of the resettlement process called the
Annual Tripartite Consultations on Resettlement (ATCR). This is held by UNHCR and brings together
States, NGOs and UNHCR to discuss global refugee resettlement planning. It provides the opportunity
to raise awareness among states 83 regarding resettlement, and gives a space for all three stakeholders
to work together and interact. UNHCR has also encouraged the twinning of establishment and
emerging resettlement states to develop and strengthen resettlement and integration programmes.
Twinning in the context of resettlement can be described as any partnership activity between states,
NGOs, services providing organizations, international organizations and./or UNHCR which aims to
encourage a new(er) resettlement state to develop or strengthen its resettlement programme. Twinning
partnerships have ranged widely in their focus and duration, and while most are funded by states, some
have attracted external funding, including EU support, for example under the ERF. 84
It is also worth briefly mentioning the emerging role of the European Asylum Support Office
(EASO), which will be fully explored in the last section. Currently assessing its role in the
resettlement process, it has been suggested that EASO could contribute by establishing criteria for
quality resettlement. Its exact role is not clear among the stakeholders interviewed, however,
suggestions include providing and maintaining a space and coordination for the tripartite character
(NGOs, UNHCR, and governments) 85 described above. Some Eastern states would welcome the
organisational and logistical support of EASO 86 but at this time EASO is seen as not having enough
presence in the area of resettlement.87
82
83
84
85
86
For example, in the Czech Republic these include the Association of Citizens Assisting Emigrants and the Burma Centre
Prague.
International Catholic Migration Commission, Welcome to Europe: A Guide to Resettlement 2013
States, 2012.
Ibid.
Know Reset 2013, Czech Republic Country Profile 2013.
398
(i) Pre-arrival Phase

The main actors in the pre-arrival phase in all cases are UNHCR and the Member State ministry
dealing with resettlement, which is mainly the Home Affairs department also known as the Ministry of
the Interior (MoI). For example the Swedish Migration Board acts on behalf of the Swedish
government and works in close cooperation with UNHCR to draw up guidelines for the resettlement
programme. In this case, and most others, trained members of staff are needed. This is also the case in
Portugal where the national reports show that better national capacity would be needed to conduct prearrival planning. 88 For Portugal and in most other cases, this requires a firmer and more structured
commitment on the part of all relevant public authorities and Ministries not just the Ministry of
Interior but also the Ministry of Economy and Employment/Institute of Employment, and the Ministry
of Education, as there has to be a structured and coherent policy at all levels of administration.
Working with the national governmental administration are international organisations, notably
UNHCR and IOM who play important roles in the pre-arrival stages. UNHCR 89 collaborates with the
governmental ministries during the selection process90 whilst in most occasions IOM provides medical
screening and arranges travel documentation. Rarely are NGOs or Local Authorities involved in these
early stages.
An exception to this is in Denmark where the Danish Refugee Council, an international NGO,
works closely with the government to select refugees, which are ultimately decided by the governing
body within the ministry.
In most cases the findings have shown willingness for NGOs and Local Authorities to be more
involved at this stage of the resettlement process. In addition to this, there should be a level of
collaboration between all actors and pooling their expertise would allow for better identification of the
integration needs of the groups to be resettled.
Collaboration was also a key concern for NGOs in the UK, which suggests that collaborating with
Local Authorities is important particularly in the planning of support for refugee arrival. In addition to
this, much like Denmark, their inclusion in the pre-arrival phase would be welcome, as they are
currently only involved at the post arrival phase (see below). In Germany meetings at the local level
are attempted but this is limited, and collaboration is often unequal. An example of collaboration can
be found in Belgium, which runs stakeholder meetings three times a year allowing for evaluation and
planning. Local Authorities and municipalities are however, still not involved to the fullest.
A rare example of Local Authorities or municipalities being involved in the pre-arrival phase is
Finland where, in the recent years, they are involved in the selection missions. By including
municipalities in the selection mission, Finland hopes to resolve some difficulties at the local level,
such as integration into society. 91
(Contd.)
http://www.know-reset.eu/files/texts/00148_20130705130024_knowresetcountryprofileczechrepublic.pdf,
Hungary Country Profile http://www.knowreset.eu/files/texts/00155_20130729172455_knowresetcountryprofilehungary.pdf,
Finland Country Profile http://www.knowreset.eu/files/texts/00151_20130705130136_knowresetcountryprofilefinland.pdf
87
88
89
90
91
Know Reset, Spain Country Profile 2013,

http://www.know-reset.eu/files/texts/00168_20130705130432_knowresetcountryprofilespain.pdf
Portugal quantitative and qualitative reports, Joo Crte Real Vasconcelos (ECRE).
In the case of non-resettlement countries who have had some experience in resettlement (Austria, Luxemburg, Poland),
only Austria and has had no relationship with UNHCR regarding resettlement. From the resettling countries, Hungary has
not had a relationship with UNHCR.
This is not the extent to which UNHCR plays a role. They will have negotiated with the member states previously, and
worked with them in an advisory role to ensure resettlement can take place. These include meetings such as the ATCR.
Finish country profile.
399
Elona Bokshi
Similarly, Cultural Orientation (CO) in the pre-arrival phase is a crucial aspect of refugee
integration; it assists in the expectation of refugees and has potential for local actors to meet refugees
before they arrive in the territory. In this instance, Local Authorities or local NGOs would be well
placed to provide this, as in many cases they deal with the integration of the resettled refugees in the
post arrival phase. Despite this added benefit, CO is hardly present in the pre-arrival phase of
resettlement. Where it does appear it is often conducted by IOM in the case of Finland, France,92
Spain. In the case of Finland the arrangement with IOM was established in 2001 and ran until the
termination of the contract in 2010. The orientation was not arranged in 2011 and the contract for 2012
is currently being negotiated.
As with the above, refugees themselves in this phase play no active role, and are passive recipients
to the decisions of Member States. Member States decide who are settled and where they can resettle.
Being aware of the new host country before arrival is crucial for the refugee. The Netherlands
conducts integration interviews to ensure that refugees will align with Dutch society. This however
should not replace the role of actors in the preparation of refugees for resettlement. Knowledge of the
local surroundings would also be beneficial and require delivery from local actors not necessarily
government or international organisations. On the whole, cultural orientation and integration
screenings can be a tool for refugees also, to avoid misinformation or high expectations. This relies on
resources at the local level, as well as at the national level. This is not always possible, as in Hungary
where the stakeholders cannot see the possibility for NGOs to be involved at all in any stage due to
political and economic reasons.
There is a need for a certain level of expertise to conduct effective preparation in the pre-arrival
phase, which requires training and time. Czech NGOs for example, state that the governmental group
charged with conducting resettlement is only composed of representatives from ministries and does
not include other stakeholders who also have expertise in resettlement, affecting the quality of the
decisionmaking. For the Czech Republic, as with all Member States that resettle, there is room for
improvement in the pre-departure activities in particular the selection of people in need of resettlement
and the quality of information for the host country provided to those people. Consequently, there is
only a little knowledge about the pre-arrival activities among the stakeholders interviewed.
Many aspects of the resettlement processes should be addressed by Member States, starting with a
proper and strategic planning of activities, deep coordination of all stakeholders involved and a
stronger involvement of NGOs, local groups and Local Authorities. Moreover, the current
development at the EU level offers some instruments including financial incentives, which would help
to use resettlement in a more strategic way, which will be discussed in the section C. Capacity in
terms of funding. This is particularly the case in the Czech Republic, but can be said for many if not
all of the resettling countries.
(ii) Post Arrival Phase
In the post-arrival phase, NGOs and Local Authorities emerge as main players, providing essential
services, as well as ensuring refugee integration. 93 The roles and functions of Municipalities and
NGOs vary from country to country. They usually have different and complementary roles in the
reception and integration process. During this process it is essential that they are provided with
relevant information on the refugees backgrounds and needs.
NGOs in Spain for example have a very active role once the refugee arrives in the territory: CO and
integration sessions are carried out, and municipalities are involved once refugees have been
92
93
Pre/Post Arrival Table: Know Reset, http://www.knowreset.eu/files/texts/00717_20131106153806_countrycomparisonpreandpostdeparture.pdf

For more details please read each country profile section Rights granted .
400
welcomed into the reception centres. In most Member States, CO is often conducted in reception
centres, where refugees are placed as soon as they enter the territory. CO in the post-arrival phase is
considered equally important as the one in pre-arrival as it is the first step in the integration process.
Most of the Member States provides CO in the post-arrival phase but they apply their own model.
Due to diversity in the numerous models applied for the CO in European Resettlement countries
the body delivering CO also varies: from Government to municipalities, NGOs, and in a few cases
IOM. On occasion previous resettled refugees have also been involved in cultural orientation for
example in Berlin, the Iraqi cultural association El Rafedein was officially incorporated into the
integration process of newly arrived resettled Iraqis. Refugees already established in Belgium were
invited for knowledge-sharing during cultural orientation, in addition to representatives from external
organizations/institutions. Another example is the Burma Centre in the Czech Republic.
Similarly, refugee communities generally do not have much of a role in the Netherlands. Their
involvement in resettlement is quite limited but a number of communities were mentioned as being
involved in providing support to resettled refugees, in particular to the Bhutanese Community. Further,
IOM involves the Somali community in family reunion cases (mainly in the framework of a CO
project targeting this specific caseload) and the Burmese community is actively involved supporting
refugees on arrival.94
Likewise, in Denmark, especially the resettled refugees from Burma have organized themselves all
over Denmark through the local churches and have established new churches, which is very important
for their role in society. One of the stakeholders interviewed sees a clear connection between which
groups are selected for resettlement and their prospects of integrating into Danish society. The Chin
community from Burma and the Congolese refugees have, due to their cultural background, which is
similar to the Danish, been able to integrate well. Also the Burmese refugees who fought for
democracy at home feel more at ease in a democracy such as the Danish.95
Preparing the receiving community for the arrival of refugees is another important part of
resettlement process. Preparation of the local community is conducted by both municipalities and
NGOs, as is the case for Finland. In other cases it is conducted by NGOs like in Portugal 96or by
municipalities in the case of Denmark. In the Netherlands, this is mainly done by means of
information provision through local media in advance of refugees arrival to a municipality. The
Dutch Council for Refugees (together with the municipality) also informs the relevant stakeholders
(like schools, family doctors, social services, etc). 97 The case of Germany is also important to be
mentioned: in some places a working group was established especially for Iraqi refugees at Lnder and
at local level with all crucial stakeholders (local state authorities and NGOs) involved. Here, all
relevant information was shared and it proved to be very efficient. However, this was more the
exception than the rule. It also depended on the Lnder and on how fast they would transfer
information to the local level. Information on special needs, e.g. housing or medical needs, was not
always communicated. 98
Similarly the training by local providers is very important too but even in this case it varies from
country to country. In the case of Finland, training falls within the competence of different relevant
ministries. Training is also organized by NGOs and associations such as: the Finnish Refugee Council,
the Family Federation of Finland, the Finnish Red Cross, and the Finnish Association for Mental
94
95
96
97
98
Netherlands Quantitative Report.

Interview with Hans Henrik Lund, Churches Integration Ministry (abbreviated KIT in Danish),
As in the case for Portugal. Know Reset, Portugal Country Profile 2013,
http://www.know-reset.eu/files/texts/00163_20130705130237_knowresetcountryprofileportugal.pdf
The Netherlands Country Profile.
Germany Country Profile.
401
Elona Bokshi
Health. For the UK the current funding available for integration services is not sufficient to allow for
the delivery of much training to local service providers. In addition, information received by NGOs
about refugees before they arrive is not always sufficiently accurate and thorough to plan reception
services that fully meet the needs.99
Likewise, responsibility for the resettled refugees once in the local setting is hard to identify as
each Member State operates differently. Again, in the example of Finland, refugees are placed directly
in the municipalities, rather than in a reception centre, leaving responsibility for the resettlement with
the municipalities from the start. A similar case is found in Sweden where the municipality is fully
responsible for refugee settlement and integration, and will prepare an individual introduction plan for
each refugee in cooperation with the local employment office.
In the Netherlands, placement of refugees has emerged as being not entirely satisfactory. This is
partly a result of the government policy (the Housing Allocation Act) which obliges every municipality
in the Netherlands to make part of their housing stock available each year for the accommodation of
permit holders and the Central Agency for the Reception of Asylum Seekers (COA) s housing
arrangements for resettled refugees are determined by the municipal supply of available living
accommodation. Resettled refugees are, therefore, placed in small towns and villages which can lack
facilities to support integration. For example, there is no adequate public transport, individuals are far
away from their family members, education and employment opportunities might be limited and also the
opportunities to meet refugees mental health needs are limited. It was noted that there were some
improvements with the new reception system. COA is now more flexible concerning the needs of
refugees allowing them to be housed closer to their family members. Some progress has also been noted
by University Assistance Fund (UAF) with regard to housing arrangements and the education needs of
resettled refugees. Following developments in the new reception system, referrals to the UAF education
and careers support services are now being made by COA in advance of refugees arrival and the scope
of UAF in housing arrangements has been widened.100 A recent change has taken place in the Dutch
resettlement policy, aimed at the direct placement of refugees in the municipalities. New changes in the
policy in the short term are not expected.101
Likewise, the lack of planning and the lack of any specific reception and integration scheme are seen
as a crucial issue in France. Agencies and NGOs in France who are working on reception and integration
need better information about resettlement and the profiles and needs of resettlement refugees in order to
organize the reception conditions accordingly, especially for medical cases. So far, NGOs have received
this information at the very last minute and there have been quite dramatic situations in many cases as a
result when refugees have needed serious and urgent treatment upon arrival.
Upon arrival, housing and access to French language have been identified as the main problems by
the refugees themselves. Indeed, the lack of planning by the authorities has an impact on the
reception conditions. France believed that its reception and asylum system was good enough for
resettled refugees and the government did not even consider the possibility to design a specific
reception system for them. Obviously, this was not the case and it created unfairness within the
national reception system. 102
Education and language learning programmes for resettled refugees is another important pillar of
the integration processes. Language courses are run by municipalities or/and other contractors, NGOs
and volunteers in most countries. For example in NL, UAF cooperates with municipalities with regard
to negotiating joint arrangement for refugees education pathways. However, many Member States fail
99
UK Country Profile
100
101
102
Ariane Den Uyl (ECRE) National Report, February 2012

Policy Department, Asylum, Reception and Return,
Matthieu Tardis,( ECRE) national quantitative national report, April 2012
402
to provide adequate translator services and/ or language classes as they face many challenges.
Amongst these challenges the lack of capacity of human resources and the failure of the service
providers 103 remains quite similar factor in most European resettlement countries. There is a need for
more funding and training to deliver language classes, as seen in the UK, where there is a clear gap in
the national resettlement programme. As integration is seen as a two-way process in the European
Union, 104 both the refugees and the Member States need to be prepared.
The lack of interest of the French authorities in resettlement has been remarkable. Interestingly, in
France some civil society actors are also reluctant to participate in resettlement operations, which can
be attributed to a particular ideological and political logic. Indeed, several NGOs working for the
promotion of immigrants rights do not participate in such operations in principle on the grounds that
they see them as downgrading refugee law. Resettlement is viewed as a way to circumvent Frances
international responsibility and as such may constitute a tool for externalising its immigration policy,
by creating a double process of refugee selection. 105
In general, as with the pre-arrival phase, different stakeholders involved in resettlement process need
specific training in resettlement as a necessary tool to better understand resettlement. In some
cases problems occurred when staff members of the municipalities and/or immigration authorities were
uninformed or insufficiently informed about the arrival of resettled persons and/or the legal status of the
refugees. Sometimes there was no clear division of tasks between involved services, authorities and
institutions. In addition to this, training for public sector staff on the local level is needed especially when
a municipally is starting resettlement. The local actors need extensive training to improve, adapt and
increase structures that are necessary to meet the challenges of a multicultural society. 106
Cooperation with different stakeholders is essential, as there are many facets associated with
successful integration, providing housing, medical care, employment, and training. Each of these
aspects can often be the responsibility of different actors, NGOs, Local Authorities or State level
officials. This cooperation varies greatly throughout the Member States. For example, in Finland,
Denmark and the Czech Republic, the cooperation between municipalities and NGOs is viewed as
being successful, however in Belgium for example, NGOs and State level cooperation appears to work
well, with the exception of the local municipalities. For all resettlement member states, ensuring better
cooperation amongst the central government, local authorities, NGOs and refugees involved in
resettlement will only improve the process of refugee integration.
In some Member States, there is an absence of a government led coordination structures
involving all relevant stakeholders (Government, Municipalities, UNHCR, IOM, NGOs, refugees)
offering on-going policy and operational guidance that impacts on the overall consistency and quality
of the reception and integration system. In addition to this, collaboration between state authorities
and NGOs differs from place to place.
Furthermore, in a few Member States carrying out resettlement, civil society has no influence on
the selection of the overall groups to be resettled, and often lacks b asi c information about the
governments and the Ministrys decisions and activities regarding resettlement. Whereas, especially
in the Member States new to resettlement, there is limited involvement of municipalities in core
reception and integration services such as accommodation, language training, and professional
training or job placement/provision.
103
104
105
106
Other factors, could capacity in time, lack of funding, place of residing etc.
See European Union Common Basic Principles, Principle No.1 http://ec.europa.eu/ewsi/en/EU_actions_integration.cfm
Interview of Matthieu Tardis with Claire Rodier. On the position of GISTI, see especially: La rinstallation des rfugis,
instrument europen de lexternalisation des procdures dasile, Note de travail, November 2005, available at:
http://www.gisti.org/IMG/pdf/nt_reinstallation-des-refugies_2005.pdf
Finland country profile , http://www.knowreset.eu/files/texts/00151_20130705130136_knowresetcountryprofilefinland.pdf
403
Elona Bokshi
Translators are not often available and authorities in general do not cover expenses for
translation. In addition to this, volunteers, especially native speakers, were found to be overburdened
by the great need of complex and time-consuming accompanying and counselling assistance
There needs to be more collaboration between state authorities and other stakeholders
throughout the resettlement process. This could include sharing good practices and
experiences from other EU countries; In addition to this, the cooperation between local
authorities and NGOs providing integration assistance it is viewed as very important.
All relevant stakeholders should be provided with the necessary information about the
refugees, and the responsibilities of different stakeholders should become regulated.
UNHCR Dossiers could also be shared in advance with NGOS and Municipalities to plan
integration measures. This will allow stakeholders to respond adequately to the needs of
Refugees.
NGOs and Local Authorities need to be involved the pre-arrival phase, this could
include the selection process or cultural orientation. NGOs and local authorities have a role
to play in creating a welcoming society and States should value the expertise and
experiences of NGOs to prepare the local communities to welcome refugees and to help in
the process of integration.
Training for stakeholders is needed: this could be organised with topics such as: the
resettlement procedure, competences of stakeholders, cultural background, specifics of
providing assistance to resettled people, as well as resettlement and national procedures.
In the EU member States that have recently established resettlement programmes it has been
suggested that there should be training prior to the start of the implementation of
resettlement programmes; This must include twinning projects, sharing of good practices
with more experienced countries;
Trainings could be organised for service providers in municipalities (communes) and public
welfare office to explain resettlement and national procedures.
Cultural Orientation for resettled refugees is very important prior to departure, focusing on
the host society and resettlement services provision. This will better manage peoples
expectations and avoid prejudicial frustrations upon arrival. Cooperation with local
authorities or local NGOs can ensure this.
Translation services for refugees and cultural training for all stakeholders dealing with
refugees is important to ensure efficient integration.
Promotion of resettlement policy and practice within the society in order to receive as
strong as possible support from the host society.
Resettled refugees could have a major role during the post-arrival phase in the facilitation
of the resettlement process.
D. Capacity in terms of funding

In order to encourage resettlement financial incentives will continue to play an important role.
Furthermore, funding remains crucial to any service delivery by including the costs incurred at all
levels. Identifying sustainable funding has also an impact in programme planning and using the
available resources as well as possible.
The financing of resettlement remains still very complex. From several interviews with government
and non-government officials and research, it can be concluded that there is a need to know the cost of
refugee resettlement programme although, in reality, serious data limitations preclude a full
404
estimation of costs of resettlement activities. As a result it is not possible to make a meaningful crosscountry comparison but only to identify the current national and EU funds available in each member
state. Due to the lack of possibilities to access the specific budget line in national public budgets, it
was not possible to obtain the following data in each country:
a) Cost related to pre arrival activities,107 including staff costs.
b) Cost related to post arrival activities,108 including staff costs and the costs of integration
and reception. 109
c) Fixed costs per refugee or fixed levels of compensation to local authorities.
d) Other related costs impacting the whole resettlement process. 110
The research indicates that although the refugee resettlement programmes should be essentially
funded by Member States, many of them still rely mostly on the European Refugee Fund (ERF).111 An
exception to this is Denmark, which relies on its own national fund as it has opted out from ERF.
Amongst many other factors examined in this paper and which have contributed in creating the
momentum for resettlement, the possibility to obtain funding for resettlement through the ERF has
played an important role. In general, the ERF with a budget of 630 million for the period 2008-2013
has supported EU countries to cover diverse activities related to resettlement, such as the selection of
refugees as well as reception and integration programmes for resettled refugees. 112
ERF funding for resettlement is allocated through three channels:
1) National Programmes- the major parts ERF funds are allocated to national programmes
(where Member States include refugee resettlement in national ERF programmes 113). An
ERF contribution normally cannot exceed 50% of the total costs of the specific action.114
2) The ERF provides Member States with a lump sum of 4000 Euros for each resettled
refugee.
3) A small percentage of the ERF (amounting to 4% of available ERF resources) is centrally
managed by the European Commission and is used to build knowledge, promote practical
cooperation and political support for resettlement between Member States through the
transnational projects mentioned earlier in pg.30.
Some states finance their own structures and activities, while other Member States fund other
actors (mainly from civil society). While going through each country profile, the research indicates
that in most countries the budget covering resettlement activities is part of the general budget for
107
For more details refer to the country profiles section III 3 Resettlement implementationhttp://www.knowreset.eu/?c=00003
108
Ibid.
109
Regional and municipal budgets need also to be examined.
110
111
goal of a Common Asylum Procedure. 2003
http://europa.eu/legislation_summaries/justice_freedom_security/free_movement_of_persons_asylum_immigration/l14567_en.htm
112
113
114.
For more information : The ERF for the period 2008-2013 established by Decision NO 573/2007/EC enables the
financing and actions related to resettlement under the article 3(9) and 3(7). In addition article 13(3) provides for
additional financial allocations of 4000 euros per refugee in case of the resettlement of certain vulnerable categories or
persons from Regional Protection Programmes (RPPs).
http://ec.europa.eu/dgs/home-affairs/financing/fundings/pdf/allocations_eu_state_for_each_fund_en.pdf
Under specific conditions (for Cohesion Fund countries and actions falling within specific priorities), the EU cofinancing can reach 75 %. In each beneficiary State, the national authority responsible for the management of the Funds
provides information on programme implementation, on the National Programmes and on the beneficiaries of the Fund.
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Elona Bokshi
migration and asylum. It is mixed with/ indistinguishable from the whole budget of the relevant
department or institution in charge of migration and asylum. For example, the Dutch resettlement
programme is financed from the budget of the Ministry of the Interior, including the funds that are
available to the Immigration and Naturalisation Service and the Central Body for the Reception of
Asylum Seekers (COA). 115The COA is granted a budget of 250.000 for all resettled refugees. In
Sweden each year the Government allocates funds, in a separate budget line, to the resettlement of
refugees. 116 Due to this clear budget line it was possible to gather some data regarding the cost per
refugee, which may vary on the basis of refugee category. 117
ERF funds are also poured into this budget and no data could be gathered if they are strictly used
for resettled refugees. In addition to this, some programmes and projects have been directly financed
through ERF and central governments. For example the Gateway Protection Programme is match
funded by the UK government (the UK Border Agency) and the European Refugee Fund.118 The
project for support and reception of resettled refugees (run by Vluchtelingenwerk Vlaanderen) in
Belgium was similar: It cost 308.405,32 euros of which 154.193,43 were from the ERF. 119 The
contribution Finland currently receives from the European Refugee Fund is directed to the HAAPA
project 120 that supports the education of social and health personnel in municipalities. Money has been
distributed to 11 municipalities. 121
It is should be noted that the above-mentioned projects could not exist without the financial support
of the ERF (national actions).
While Member States like Netherland, Sweden, Finland, Denmark have a significant national
budget to finance resettlement programmes, data shows that EU Member States that have recently
established resettlement programmes will continue to rely heavily upon EU funds. In the case of
Bulgaria and Portugal the national funds allocated for restatement activities represents 25 % of the
national funds and 75% are from ERF contributions.
Furthermore, no national budget is foreseen for resettlement in Belgium, which means that it will
rely completely on what is available on EU funds.122 The same goes for Hungary: The Office of
Immigration and Nationality does not plan to complement the ERF support by matching funds
additional to the basic support provided to all refugees in the country. 123 Resettlement to Romania is
also funded only through ERF.
Though Resettlement in France is State-funded, the government is already applying for the
dedicated funds available under the ERF.124 However, there is no information about how this money is
used bearing in mind that vulnerable refugees do not benefit from extra-services. 125
115
116
117
118
119
120
121
122
123
124
125
Policy Department , Asylym, Reception and Return, NL, February 2012.
Netherland country profile http://www.know-reset.eu/?c=00161
Sweden country profile http://www.know-reset.eu/?c=00169
Interview with UK Borders Agency, Dave Atkinson, Refugee Team (May 2012)
Fedasil, Jaarverslag 2009 (Annual Report 2009), http://www.fedasil.be/home/attachment/i/19890, at pg.29
http://www.resettlement.eu/sites/icmc.tttp.eu/files/Creating%20Welcoming%20Communities_HAAPA%20Finland.pdf
Interview Arja Kekkonen, Negotiating Officer, Finish Ministry of the Interior, Migration Department Unit, (January
2012)
Interview with Claudia Bonamini Project Coordinator at Vluchtelingenwerk Vlaanderen, March 2012.
Hungary country profile http://www.know-reset.eu/?c=00155
Moreover, 90 % of the EU relocation programme was funded by ERF.
Interview with Matthieu Tardis, France terre dasile, April 2012, National report, Matthieu Tardis, France terre dasile
( ECRE ) April 2012, France country profile, http://www.know-reset.eu/?c=00152
406
Likewise, Bulgaria is carrying out its first resettlement activities in 2013, which also include the
development of administrative capacity. These should/are to be fully funded by the 2012 annual
programme of the ERF and by the state budget. In the course of the research it was not possible to
secure concrete figures for the amount funded from the state budget line. It has to be noted also that
the financial stimulus of 6000 Euros for every resettled refugee, provided by ERF, is considered an
important aspect of Bulgarias ambition for small -scale resettlement in 2014.126
ERF funds are also important to Germany, more than half of them are distributed to the Lnder.127
At National level, the Federal State also finances resettlement activities mainly to cover the selection
and transport costs of the refugees from the countries of first asylum, the selection missions and as
well as integration courses and other costs mentioned in the country profile 128. As mentioned above,
funds are also distributed at the local level. Municipalities in each Lnder cover costs related to
integration support packages like housing, etc. 129 Even in the case of Germany it is impossible to give
precise costs of resettlement activities as there is no separate budget line on resettlement.
In general, funding for activities are public funds and there are not enough available for specific
projects. As pointed out also above, the central government allocates funds at the local level to
municipalities to cover some of the costs related to the post -arrival phase activities. For example in
Sweden the Migration Board distributes financial resources to the municipalities who are responsible
for the organization and implementation of introduction programme. In the case of France, authorities
are co-financing reception and integration projects run by NGOs such as France Terre DAsile, Forum
Refugis with ERF funds. 130 In other cases like in Finland and the Netherlands, most of the refugee
cases are shouldered by the municipalities that receive the financial quota per refugee. In the
Netherland NGOs are dependent on municipalities for funding their work with resettled refugees. The
central government has recently made additional funding available for municipalities but this is
currently only a temporary measure covering the period of two years: 2,000 is allocated to a
municipality for each resettled refugees with an additional 1,000 for a child. The only funding for
NGOs from the central government is the national ERF programme. 131.
In UK, the UKBA meets the full costs of resettlement in the first year. Costs include an integration
support package, which covers housing, healthcare, education, language classes and casework support
services. NGOs work closely with the participating local authorities and provide many of these
services to resettled refugees. NGOs are currently funded to provide resettled refugees with a twelve
month package of integration support. Local Authorities participate on a voluntary basis and after the
initial twelve months, the relevant local authority and government department are responsible for any
further costs. 132
However, the research also indicated that in most country profiles it was not possible to gather
information about the funds distributed to the local authorities.
Stakeholders interviewed are largely positive about the achievements of the ERF, in particular
for its support for resettlement infrastructure. We can conclude that ERF III funding has not only
improved the existing resettlement activities but it has also increased the number of refugees
resettled.
126
127
128
129
130
131
132
Bulgaria country profile

Antoaneta Dedikova, National report summary of interviews, pg. 5
Written Interview with Daniel Stbel Innenministerium Baden-Wrttemberg, January 2012.
For more information please read German country profile.
Interview with Matthieu Tardis, France terre dasile, April 2012.
Interview with Ariane den Uyl, Policy Officer, Dutch Refugee Council, (March 2012).
UK Country Chapter, p. 3. Available at http://www.unhcr.org/40ee6fc04.html (Last visited 31 May 2012).
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Elona Bokshi
Nevertheless, the lack of allocation of the necessary financial resources makes it difficult to
accomplish the objectives of the integration process. For example, for the UK the current funding
available for integration services is not sufficient to allow for the delivery of much training to local
service providers.
Likewise, for most of the EU non- resettling countries the financial incentives remain
crucial in their decision to pursue resettlement or not. For example, the public institutions of
Latvia are still in the process of further optimizing and decreasing their budget due to the economic
crisis of 2008-2012. These budgetary cuts make the introduction of any resettlement programme
extremely unlikely. 133
A more detailed and more controlled budgeting of the funds allocated by the ERF for each
resettled person could contribute to the improvement of the reception and integration
services and a better functioning of the system itself. This is especially true because of the
fact that while ERF funding represents one of the biggest incentives to carry out
resettlement, it is questionable whether the free handling of the sums in question is
necessarily a positiveelement. As the UNHCR warned, this can result in discrimination
among refugees. 134 Is it better to have the funds used for the improvement of refugee
reception as a whole or for resettled refugees specifically (which could be discriminatory).
Sources of funding for resettlement need to be diversified and there should be an adequate
structural base for funding municipalities so that they can allocate sufficient funds to local
NGOs or funding for NGOS needs to be allocated directly from the central government
Less bureaucracy around ERF funding would be helpful as would increased funding.
E. Capacity in terms of political will

The difficult economic situation and the growth of negative attitudes towards foreigners have prompted
stricter policies towards migrants, including the flow of refugees. Economic difficulties have also cut
into the availability of State services for the integration of resettled refugees. In addition, the recent
popular support for restrictive policies, demonstrated in several countries, can be seen to undermine
political support for efforts to establish any responsibility sharing mechanism for resettlement.
This section will provide a picture of the political willingness of Member States to provide more and
better quality resettlement by assessing the following aspects: the political debate; the effect of socioeconomic factors; the influence of public opinion and media. Each of these aspects is a cross-cutting
theme in the political reasoning for resettlement, which will be apparent throughout this section.
Over the course of the Know Reset project, the overall political discourse and decisions in the EU
Member States shifted the view of immigration towards more restrictive policies. 135 This can be also
seen through the tendency to decrease the number of protection statuses granted in comparison to the
increased numbers of asylum applicants in a number of Member States.136
Despite this shift in restrictive immigration policies, Member States have continued to commit to
resettlement. During 2007 in France, for example, a decrease in asylum applications may have
133
134
135
136
Article Finance Minister: Latvia has consolidated 2.3 billion lats in three years, December 5, 2011, available at
http://bnn-news.com/finance-minister-latvia-consolidated-2-3-billion-lats-years-42711 (last time checked on February 16,
2012). Interview with the State Secretary of the Ministry of Interior, op.cit.
Interview with Zsuzsanna Pusks, UNHCR office in Hungary, April 2012.
See Country Profiles for France, Italy, UK and Netherlands.
Data gathered from the know reset statistics for the year 2010/2011.
408
prompted the government to overcome the reluctance for other forms of protection, such as
resettlement. Though only the government can provide the real reasons for its commitment to
resettlement and they could be influenced by many different factors,137 a year later, France, (along
with other Member States) committed to its first resettlement experience. Another example is in
Denmark. When the elections prompted a change in political governance in 2011, there was a shift in
the immigration perspective as the new Government in office pledged to ease up previously strict
regulations towards asylum seekers. Though Denmark has been reputed to be particularly strict in
terms of its immigration law and policy, when we look at refugees, Denmark has contributed to
finding durable solutions through resettlement for many years.138
Meanwhile, in Germany, after observing an extreme rise in the number of the asylum seekers from
Serbia and Macedonia in September 2012, Germanys interior minister called for tighter rules for
processing their applications. Nevertheless, as far as resettlement is concerned, Germany has practiced
ad hoc resettlement for many years without ever committing to an official annual quota. The adoption
of a permanent resettlement programme, in December 2011, was an unexpected breakthrough after
years of lobbying for a permanent resettlement programme by different stakeholders. It seems that the
most important factors in leading the German government to rethink its position were the mainly
positive experiences of the ad hoc resettlement of Iraqi refugees in 2009/2010 at the local level, and
the developments at the European level with the campaign for resettlement to Europe. 139
According to the stakeholders interviewed, Swedish immigration policy is characterized by a broad
political consensus. Curiously, the far-right party the Swedish Democrats is positive towards
resettlement; basically they want to restrict the reception of refugees only to Convention refugees and
quota refugees. 140 Generally, the party wants to reduce overall immigration to Sweden by 90 percent. 141
On an inter-state level, the JEURP, goes much further than to offer a financial incentive, more
importantly it determines a common EU resettlement priority, as well as fostering political will
through cooperation - eventually allowing the EU to pool resources for resettlement, and encouraging
joint missions based on successful previous ventures. It is worth highlighting the importance of
twinning projects and joint selection missions between Member States, which have provided
another method for knowledge exchange on resettlement, and have encouraged Member States who
were not conducting resettlement to begin the process. For example Hungarian government officials
participated in a Hungarian-Finnish twinning project and visited the evacuation Emergency center in
Timisoara several times. In her interview, Ms. rpd Szp, 142 stated that the twinning project paved
the way for the Hungarian government to be prepared to actually carry out a resettlement programme.
By learning from the Finish experience she highlighted that: A positive Finnish experience was not to
try integration in the capital, but in a smaller place, where the local community can take a part in the
integration. This seems to be working. The families or groups really integrate in society this way and
not in their local diaspora, from which they might have wanted to detach anyways.
Throughout this report references are made to relevant national practice in which the complexity
and diversity of resettlement at national level is clearly demonstrated. This leads us to conclude that
we cannot talk about a u niform EU policy tendency yet. It underlines the fact that the selection
criteria discussed earlier in this paper have been driven not only by UNHCR and ERF/JEURP
137
138
139
140
141
142
Interview with Matthieu Tardis, (ECRE) France Terre Dasile, March 2012.
Eva Singer, Danish Refugee Council (ECRE) National Report, April 2012.
Margarete Misselwitz (ECRE) Qualitative national report, March 2012 - Interview with Kerstin Becker (German Red
Cross), March 2012.
Swedish country profile http://www.know-reset.eu/?c=00169
Parliamentary Protocol (2011/12:44). Dated 8 December 2011, retrieved at: http://beta.riksdagen.se/sv/DokumentLagar/Kammaren/Protokoll/Riksdagens-protokoll-2011124_GZ0944/
Office of Immigration and Nationality in Hungary, April 2012.
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Elona Bokshi
criteria but also by the criteria and political will at national level. In many cases, this can lead to a
positive decision such as accepting medical cases, 143 the elderly or unaccompanied children.
As illustrated in several national practices, some States expect refugees to have a certain capacity to
integrate 144 in the new host country. Nevertheless, the traditional EU resettlement countries all have
quotas for emergency cases and it can even be considered a flagship policy for the Nordic countries. It
shows their willingness to take persons in particularly vulnerable positions.145 In the case of Finland,
vulnerability criteria are often taken into account already in the allocation decision. UNHCR is informed
so that they are able to propose certain groups (for example, women-at-risk). The elderly are usually not
taken alone but as part of a family. Individual children without a caregiver have been admitted if the
need for international protection has been very strong, although as a main rule this does not happen. 146
The same goes for Sweden. While there is no specified sub-quota, Sweden accepts limited numbers
of unaccompanied children within the resettlement programme. Nevertheless, this category remains
problematic. Their number has increased dramatically in recent years and they need very particular
help. The Swedish state offers large sums of money for the resettlement of these children but this type
of resettlement is often hard to organise as a lot of planning and local resources are needed. This
category can also compete with unaccompanied minor asylum seekers.147
Contrary to the above examples, in general, cases of people with serious mental health issues are
not accepted in Ireland. This is due to difficulties accessing appropriate services in the Irish Mental
Health sector. Issues arise as many of the cases referred through resettlement speak minority
languages and it can be difficult to provide services through an interpreter that is not specifically
trained to interpret in a mental health environment. In an interview, the resettlement officer in Ireland
stated that Therefore, in the best interests of the applicant we do not accept persons with serious
mental health issues. 148
Additionally, few Member States have been known to make their choice on the basis of a particular
religious background or a particular ethnicity. Where the latter is mostly justified by having previously
resettled a group of the same ethnicity, the former (selecting particular religions) is seen as
discriminatory. An example can be found in the German national practice. The German decision to
give priority to members of the Christian minority for resettlement provoked discussion in the
countries of first asylum as well as in Germany. Also, the ability to integrate in Germany has been
criticised by different stakeholders. As resettlement is intended for the most vulnerable refugees, the
humanitarian purpose should have absolute priority. 149
The graphs below illustrate the selection criteria based on two target groups: women at risk and
religion.
143
144
145
146
147
148
149
Swedish Country Profile, http://www.know-reset.eu/?c=00169

Please see also the subsection Capacity in terms of methods and tools, pg 25
Collated information from interviews in Finland, Sweeden and Denmark.
Interview with Monica Harju, Senior Adviser, Asylum Unit, Finish Immigration Service.
Interview with Oskar Ekblad (OE), Head of Unit, Swedish Migration Board.
Interview with Martina Glennon (MG) (Assistant Principal Officer) and Elaine Houlihan (EH) (Executive Officer),
Resettlement Unit, Office for the Promotion of Migrant Integration.
German country profile http://www.know-reset.eu/?c=00153
410
The worsening economic situation across Europe has had a detrimental effect on political
willingness to engage in pressing asylum and refugee issues, such as resettlement. Several Member
States, who have been affected by the crisis, clearly stated that they are relying on an improvement in
the economic stability of their country to assess what progress can be made in resettlement, but that
they at least have the political will to continue.
Members States like Cyprus, Greece and Malta and are not viewing resettlement as an immediate
option, not only due to the severe financial crisis but especially because of the large number of
asylum applications they receive. 150
150
Collated information from interviews and country profiles in those Member States
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Elona Bokshi
Likewise, flows of asylum seekers to Luxembourg have risen sharply since 2011 (mainly Roma
from Serbia). Given this situation and the high percentage of foreign residents already present in the
country, Luxembourg is not considering an increase of its capacities for resettlement.151
The graph below shows that the number of people seeking asylum in the European Union is on the
rise and that refugees continue to be confronted with widely diverging standards in the member
states, be it in terms of reception conditions or regarding the asylum procedure. 152
Source: Eurostat, Asylum and new asylum applicants by citizenship, age and sex Annual aggregated data
(rounded),migr_asyappctza, extracted on 30 July 2013
In fact, as we will see, public and media opinion are strongly linked to the economic factors that
states refer to when adopting a more cautious approach to resettlement. In Belgium for example, there
was a very visible problem for the reception of asylum seekers who could be found sleeping on the
streets. Public opinion was that Belgium was too generous in granting asylum and this made it too
difficult for a political decision to accept more refugees through resettlement. 153
Despite this example, in many Member States resettlement itself and efforts to resettle refugees are
relatively unknown to the general public. In Germany, the public has little knowledge of resettlement,
but during the resettlement of Iraqis were surprisingly welcoming. 154 Similarly, in Denmark, although
the public is generally not aware of the difference between resettled refugees and other refugees, this
is not seen as a problem. When people are explained there is a generally positive attitude, because it is
easier to understand why refugees living in camps in some countries need to come to Denmark for
better protection. The national media do not write very much about resettlement but sometimes local
151
152
153
Interview with Mrs Welter (OLAI), 14 May 2012 and Caritas-Luxembourg, Interview of 14 March 2012.
European Refugee Policy Pathways to Fairer Burden-Sharing For additional information, please visit: www.svrmigration.de/Research-Unit
Salom Phillmann (ECRE) Belgium Qualitative National Report, February 2012.
154
Margarete Misselwitz (ECRE) Qualitative national report, March 2012.
412
media may report about the activities of the local volunteer groups.155 Likewise, most people in the
Netherlands do not know that their country has a resettlement programme. Those who do know about
it consider it to be something positive. Resettlement is hardly present in the mainstream media and is
usually covered only by local media when, for instance, a group of resettled refugees arrive to a
municipality. 156
In the case of Portugal, since it has a small number of asylum seekers and an even smaller number
of refugees benefiting from international protection, this issue does not really attract the attention of
public opinion and media. 157
Additionally, when resettlement is acknowledged by the public as asylum in general (as in Hungary
below), or a clear distinction is made between refugees (as in Finland below), with both scenarios
being potentially harmful to increase political will. In Hungary, when asylum seekers cross the border
they are reported by the media as criminals and not as potential refugees. To this effect, the Hungarian
Government has considered asylum matters primarily in the context of the fight against irregular
migration and the protection needs of refugees have been given lesser priority than security and law
enforcement objectives.158 Yet, when it comes to the public discussing a case of resettlement, the
Hungarian state could be seen by the public as having acted on a humanitarian basis, generously
offering help and participating in global burden sharing.
The Finnish public is less hostile to quota refugees than other beneficiaries of international
protection since it is widely considered that those persons come from serious conflict situations and
have been individually chosen by Finland. However, with more immigration into Finland over the last
few years, this distinction is becoming less clear as there is confusion between refugees and
immigrants. 159
Resettled refugees are often bound to be more readily accepted by the general public than their
spontaneously arriving peers, although the situations from which they flee may not be different. As
such, resettled refugees can bring positive connotations to the term refugee which could also benefit
asylum seekers.
If relations with the regional media are fostered accurately, local opinion can be favourable to
resettlement, as in the case of the Czech Republic. When it comes to public opinion in Czech
Republic, we need to separate the general opinion with the local one. The local community can be
open towards resettlement and resettled families. No xenophobic behaviour seems to be noticed,
although there is a difference in reactions towards refugees from well-educated communities and lesseducated ones. People seem to be more sceptical towards those from less-educated communities.
Nevertheless, relations seem to improve once people get to know each other. The regional media has
been quite involved in promoting stories of resettled families. Furthermore cooperation with the
regional and local media is considered excellent.160
It is difficult to define whether political reluctance to migration across Europe has encouraged
negative media opinions towards asylum seekers or vice versa, or to what extent the economic crisis has
provided an umbrella excuse to reduce efforts in this area. In both cases, resettlement is difficult to
justify to the public to a certain extent. In the non-resettling states, such as the Baltic region for example,
155
156
157
158
159
160
Eva Singer, Danish Refugee Council (ECRE) National Report, April 2012.
Ariane den Uyl, Policy Officer, DRC, April 2012.
Joo Vasconcelos, (CPR) Qualitative national report, April 2012.
Mria Barna (ECRE) National Report for Hungary. April, 2012.
Ann-Charlotte Sirn-Borrego, (ECRE ) Qualitative National report for Finland , May 2012.
Pavla Merhautova (ECRE) National Qualitative report, April 2012.
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Elona Bokshi
capacity in terms of financing 161 plays a role in this process, as does public opinion. 162 There is no
political will to increase even knowledge on the topic, and a dearth of reliable information as to what
resettlement is and what it entails remains, proving a legal and social challenge. These challenges are not
confined to the Baltic region and feature to greater and lesser extents in other non-resettling states.
Thus, political will for resettlement is dependent on all of the abovementioned cross-cutting
factors. However, despite these cross cutting aspects, there is a commitment to resettlement. The final
decision rests on the capacity of the Member State and its commitment to humanitarian protection.
For the new MS engaging in resettlement like Bulgaria, Romania, Belgium and Hungary for
example, the national Governments 163 have demonstrated their political will by deciding to take part in
the EU resettlement programme, confirming the importance of establishing a mechanism for
responsibility sharing with other EU Member States and third countries unable to provide adequate
protection for refugees and to integrate them. In the case of Romania, there is a more specific reason
because the decision to resettle was influenced by the political will to strengthen Romanias status as a
partner in the area of refugee protection. Since resettlement plays an important role in the EUs
external policies on asylum, the involvement of Romania was also driven by the desire to assume
more responsibility as an EU Member State. 164 For other countries like Germany or the Czech
Republic- already mentioned earlier- the main reasons to commit resettlement were based on previous
experiences successful experiences. 165
During the course of the research several challenges were highlighted from different stakeholders
interviewed. In many countries the general public is not informed about resettlement allowing for
misunderstandings about the need for resettlement. There is a huge lack of knowledge about
resettlement. Most people cannot distinguish between labour migrants, quota refugees and reunified
family members, for example. These categories are all mixed up in discussions and people feel that
migrants (independently of their type) are taking their jobs. However, when you start explaining the
difference, people can show great compassion for refugees and a willingness to help. Additionally, the
media can confuse resettlement with migration further increasing the confusion of the public. In
several cases, the local media have not promoted resettlement leading to an absence of local support.
Likewise, the economic crisis has meant that the issue of refugee resettlement is pushed further down
the political agenda. In terms of the allocation of places, refugees can be selected on the basis of their
religion, age or medical condition. Where this can be a sign of generosity of Member States, it can
also be seen as discriminatory. In addition, migration is seen by some Member States through a lens of
security. Non-resettlement states may know little about the process or the challenges.
In conclusion, the following Recommendations were drawn up on the basis of a comparative
overview from the Know Reset Country Profile data:
161
162
163
164
165
Interview with the State Secretary of the Ministry of Interior161, Republic of Latvia, Mrs. Ilze Ptersone-Godmane,
January 2012.
Interview with the Ministry of Internal Affairs, February 2012.
Collated information from interviews, country profiles.
Information provided by the Romanian Office of immigration formal reply to the Know Reset questionnaire, op.cit.
Collated information from interviews, country profiles for Germany and Czech Republic.
414
All stakeholders need to devise a media strategy, to ensure that the public is aware of
resettlement.
This strategy must be carefully worded as not to confuse the public on other asylum issues,
and should avoid creating a division between types of refugee (resettled or otherwise)
The local media should be informed of the situation in order to promote resettlement at a
local level
Relations with journalists should be built and nurtured
Refugees should engage with the press.
Civil society and governments need to work together with the media to ensure that the
political debate shifts towards protection and humanitarian responsibility rather than security
and border control. This will increase the publics positive perception of resettled refugees
and refugees in general
The security aspects of migration and irregular migration should be removed from
discussions on resettlement.
III. The future of resettlement in Europe

How resettlement will evolve in the future still remains unclear both for resettling and non-resettling
EU member states. Issues still to be addressed include whether there will be an increase in the
number of places for resettling MS and if more MS will engage in resettlement or not. Depending
on the different circumstances at national level, the research indicates that even the governments from
the traditional resettlement countries may be cautious about increasing the number of places they offer
and may continue to resettle along the lines of numbers to date. The reasons for that vary from country
to country. The few examples examined below describe the challenges in increasing the capacity in
numbers. The Netherlands will maintain their 4yearly quotas of 2000 resettled refugees (500/year)
for the foreseeable future. 166 In the case of Finland, due to the constant challenge in reaching the
annual quota, it seems that the government will address this issue first.167 As also highlighted in pg 17,
the UK aspires to an increased quota of 1000 per year when this will be considered affordable. 168
For other Member States recently engaged in resettlement programmes, reception capacity and the
lack of financial resources might impede their governments from maintaining their commitments or
further committing to increasing quotas for resettlement.
In some Member States, contrary to the governmental view, stakeholders believe that more can be
done, be it higher numbers or within the process itself, and the aim of being more proactively
involved. 169 Furthermore, public understanding and support, including in the media, will remain a
factor leading to more political will for resettlement. 170
For non-resettling countries, resettlement does not currently seem high on the political agenda and
this might continue to be the case for the near future.171 The impact of the JEURP and the possibilities
it brings along may still be a push factor towards resettlement for some non-resettling Member States.
However, countries like Malta or Cyprus not only have no plans for resettlement but are actively
166
The Netherland country profile http://www.know-reset.eu/?c=00161,pg. 12
167
168
169
170
171
Finland country profile http://www.know-reset.eu/?c=00161, pg. 15

UK country profile http://www.know-reset.eu/?c=00170
For more information see other sections.
For more information, please see the section on political will.
Please note that the time frame for conducting the interviews was between the end of 2011 till mid-March 2012.
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Elona Bokshi
engaged in negotiations with the EU regarding the relocation of refugees from their territory. 172
Likewise Greece and Italy will continue to struggle to manage refugee arrivals and develop their
reception and protection capacity while dealing with the economic crisis.
(i) Quality vs. Quantity: how to increase quantity and enhance quality?
Drawing on the analyses of Member States policies and practices presented in each country profiles
and on their capacities in different terms, this chapter seeks to highlight the national directions and
steps taken at national level that could also be taken at EU level.
The policy developments and the legal frameworks examined in EU comparative reports shows an
evolution of the framework for resettlement at both EU level and national level for MS engaged in
resettlement.
The primary focus of EU policy has until now been to mobilize more Member States to engage in
resettlement as well as to increase the number of resettled refugees per country and as a total in
Europe. As demonstrated in sub-section D Capacity in terms of funding, the financial contribution
made available by the EU through the ERF, had also an impact on increasing the numbers and to the
sustainability of resettlement. At the same time the analysis shows that the quality of resettlement has
been emphasised less at the EU level but not necessarily at the national level.
A successful programme?
Taking into consideration the EP argument 173 that the success of resettlement programmes should be
measured not only on the basis of the number of persons resettled but also on the implementation of
measures to support their integration, the research tried to evaluate how successful resettlement has been
in each MS engaged in it. However, it has not been possible to come to any firm conclusion as to the
success of past resettlement experiences. The experience varied widely from one country to another
and depended also how success is defined, and there were no standard agreed indicators in place.
In most of the Member States engaged in resettlement, different policies have been pursued in the
last few decades with various level of success. Most of the stakeholders interviewed confirm that there
is a need to evaluate past resettlement experiences and develop follow-up measures at every stage.
National resettlement evaluations can lead the different stakeholders to initiate new projects or
policies. A good example of this is the Netherlands. Findings from the 2008 WODC report (Dutch
Ministry of Justice Research and Documentation Centre on the policy and social position of resettled
refugees from a national and international perspective) demonstrated that resettled refugees were
underrepresented in the higher levels of education and that their participation in the labour market was
low. The report findings were one of the reasons for UAF to initiate the project on resettlement of
refugee students. 174
Hungary illustrates a different scenario. There have been criticisms of the integration system that
can be even more crucial for resettled refugees. 175 Recent commitments and measures adopted by
Hungary in the past few months in order to participate in resettlement programmes are a promising
172.
173
174
http://www.know-reset.eu/?c=00147, pg. 4
ibid, European Parliament (2010 a).
Jasminka Rogic and Ariane Den Uyl, Dutch Refugee Council, (ECRE) National Report Resettlement in
NetherlandsApril 2012.
175
Maria Barna, (ECRE) MENEDK HUNGARIAN ASSOCIATION FOR MIGRANTS
416
start to improve integration across the board. Hungary is now entering a critical period to see how
resettlement will evolve and how its programme will become more established. 176
When it comes to the Danish example, it is not only the national stakeholders 177 who consider the
Danish refugee resettlement programme successful but also other countries who have referred to it as a
good model, especially the three-year quota. Similarly, all Swedish stakeholders strongly agreed that
resettlement is a success by stating that it has helped to protect thousands of people. Paradoxically,
Romania has the only resettlement programme considered successful by all the actors involved, with
the exception of the resettled refugees. 178 Resettled refugees were in general disappointed by the
integration system in Romania.179
Likewise, the failure to successfully resettle refugees convinced the Government of Bulgaria after
sharing expertise with first-time resettlement countries in Europe. Bulgaria took a decision to postpone
a pilot resettlement programme after learning about the unsuccessful resettlement of Bhutanese and
Burmese refugees in countries resettling for the first time in Central Europe. The failure was arguably
due to culture and language barriers and led to an inability to effectively integrate the newly resettled
refugees in these countries. 180 Therefore, officials from the State Agency for Refugees are seeking to
accumulate knowledge and acquire the necessary expertise. 181
Even though the capacity of integrating resettled persons is beyond the scope of this paper, several
examples from different Member States show clearly that in order for resettlement to be a truly
durable solution, states should focus on strengthening their integration capacity and the
receptiveness of receiving communities to improve outcomes. As Ewout Adriaens from CGRSFEDASIL 182 said in his interview Resettlement can only be considered successful when the resettled
refugee is integrated in the resettlement country. Successful positive experience of past ad hoc
resettlement programmes can lead to a decision to adopt a permanent programme as happened in
Germany.
Capacity to resettle more?
As mentioned above, in some Member States, contrary to the governmental view, other stakeholders
believe that more can be done, be it higher numbers or within the process itself, and aim to be more
proactively involved (pg. 51). The shared opinion is that the current resettlement quota in several
countries like the Netherlands, Denmark, Finland and Germany, could be increased and that, on the
whole, all EU countries should do more to contribute to 'burden-sharing'. NGOs engaged in
resettlement across EU Member states have been active in lobbying governments to expand the
number of resettlement places. However, the political will to do so is often lacking. When asked if a
country had the capacity to resettle, several respondents from the national authorities answered that
this was a budgetary issue and one of reception/integration capacity.
Views have also been expressed that, given the current political and economic climate in different
EU Member States, it may even be preferable at present to keep the current quotas and (at least)
ensure that the existing resettlement activities will continue.
176
177
178
179
180
181
182
Hungary country profile http://www.knowreset.eu/files/texts/00155_20130729172455_knowresetcountryprofilehungary.pdf

Different sources, interviews with the stakeholders, danish national reports, country profiles.
Romanian country profile; http://www.know-reset.eu/?c=00165
Ibid.
Bulgaria Country profile http://www.know-reset.eu/?c=00146
Written interview with Ewout Adrians, CGRS-FEDASIL, 4 May 2012.
417
Elona Bokshi
What is vital to emphasise in any resettlement discussions and possible further developments
is that resettlement must not impact negatively on other systems of refugee protection.
Furthermore, the EU definitely has a capacity to resettle more than it does.
Role of the EU and EASO
The research also examined the role the EU could play to help member states to resettle refugees. In
addition, stakeholders were asked to share their views about the role that the EASO could play in
encouraging more states to engage.
Besides providing essential funding, it was thought that the EU could also undertake policy work,
exchange of information on different practices and take on the role of informing governments in any
future annual programme. The Joint EU Resettlement Programme was also viewed favourably, as a
chance for countries to work together, to focus on certain groups of refugees, and again, to share or
exchange practices. MS are eager to share the responsibility of resettling refugees.
It was felt that the EU should have a role in improving the quality of reception and integration
programmes. It was observed that national governments are very focused on the selection process
and not enough on the integration processes for resettled refugees. The EU could do more to
stimulate national governments to focus on the integration aspects of resettlement.
The creation of a platform for the exchange of good practices and practical cooperation, involving
all relevant stakeholders that would be helpful. Certain misgivings were raised about the possibility of
the EU having any other role than providing funding as there is too much economic and social disunity
within the EU Member States. The adoption of a common EU resettlement programme was generally
seen as an important incentive to motivate member states. Likewise, by establishing priorities at EUlevel, the strategic use of resettlement is strengthened. Additionally, interviewees felt the EU could
buddy up actors in resettlement across different EU states and facilitate skills sharing.
At the same time both UNHCR and NGOs raised their concern that the EU should not
establish its own resettlement system parallel to UNHCRs one.
Denmark is not part of ERF and since the Danish programme has run independently for many
years, the Danish civil society generally thought that the EU should play a role in promoting
resettlement in the member states, but that NGOs should not focus on the EU but on national plans.
With regards to the EASO, the interviewees felt that EASO could have a role in advocating for
more resettlement particularly advocating for EU states not currently involved in resettlement to
consider it. And, also to co-ordinate and push for more resettlement from the Regional Protection
Programme priority groups possibly using mechanisms linked to funding.
EASO was largely seen as not having enough presence in the area of resettlement at the moment.
Potentially they could also have a role in the co-ordination and logistical aspects of resettlement and
support implementation of resettlement programmes at the local level. EASO can finally play a very
important coordinating role in the future in the fields of collecting best practices, organising
workshops/seminars, doing of studies and reports, drawing up training and preparing a module of the
European Asylum Curriculum concerning resettlement, as well as evaluating operations at EU level. It
was also noted that EASO is underfunded, which affects its capacity for practical involvement in
resettlement. It was stressed that its role and policy should not conflict with those of UNHCR and the
positive achievements so far in resettlement.
418
Future funds: The Asylum and Migration Fund (henceforth AMF) 2014-2020
EU resettlement policy post-2013 is being negotiated and soon to approved within the framework of
the Asylum and Migration Fund (AMF) 2014-2020. 183 In November 2011, the Commission issued a
proposal for a regulation establishing the AMF for the period 2014-2020, which will replace the
current funds in the area of migration and asylum (the ERF and the EIF and the European Return
Fund). 184 It also aims to cover more comprehensively different aspects of the common Union asylum
and immigration policy, including actions in or in relation to third countries.185
The AMF proposal, which is still under negotiation at the time of writing this report, foresees a
system providing a fixed amount to Member states for each person they resettle ( 6000, instead of
4000 currently). A higher amount of 10 000 will be allocated for each person resettled according to
common Union resettlement priorities as well as for some categories of vulnerable refugees, such as
women and children at risk, separated children and persons with medical needs or in need of
emergency resettlement. These sums will be allocated to the Members States every two years on the
basis of a pledging exercise and following the establishment of common EU resettlement priorities. To
encourage the resettlement efforts of Member States, the fund also foresees financial support for a
wide range of resettlement activities, such as the development of infrastructures and services including transit and processing centres (See Annex 2 of the AMF) and the conduct of selection
missions (Article 7 AMF). 186
Article 17 of the AMF describes the elements of a Union Resettlement Programme which is
foreseen and whose aim will be to increase the current figures, to strengthen resettlement systems
and to enhance resettlement where the EU has an added value. The fund will support the
establishment of appropriate infrastructure and services, training of staff, joint missions and predeparture measures and post-arrivals assistance. The Commission will establish Common EU
resettlement priorities on the basis of set categories; the regions for 2014-2015 eligible for extra
allocations have already been identified.
The Asylum and Migration fund needs to be attractive to Member States in order for them to
increase their resettlement capacities and the number of people they resettle. In August 2012, ECRE
published a policy paper, which provided comments and recommendations on the Commission
Proposals on the future EU funding in the area of migration and asylum. With regard to resettlement,
ECRE stated that the AMF will only reach this goal effectively if the administrative burden for
Member States is minimal, and if specific incentives are put in place for Member States that are new
to resettlement. A system similar to the recently amended European Refugee Fund, which foresees
higher financial incentives for such Member States, could be adopted in the AMF. 187 Instead of taking
the form of higher lump sums, these incentives could take the form of a higher EU contribution (90%)
for resettlement activities carried out by Member States that are starting resettlement.
The AMF proposal also foresees funding for Union Actions (see Art. 21), i.e. transnational actions
or actions of particular interest to the Union, and that these actions could deal with resettlement.
From informal information received it seems that the AMF negotiations are in their possibly last
stages. The discussions will deal among other things with Resettlement (including probably a decrease
183
184
185
186
187
Com (2011) 751, Proposal for a REGULATION OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL
establishing the Asylum and Migration Fund.
Ibid.
Ibid.
ECRE Policy paper (August 2012) COMMENTS AND RECOMMENDATIONS on the Commission Proposals on the
future EU funding in the area of migration and asylum.
Decision No 281/2012/EU of the European Parliament and the Council amending the European Refugee Fund, 29 March
2012.
419
Elona Bokshi
in funding for resettlement, family members and resettlement, and resettlement vs. humanitarian
admission). It is quite likely that funding for resettlement and external dimension will be significantly
decreased. Funding for resettlement would probably decrease by 50 %.
Additionally, it is noteworthy to mention that initially 3,9 million were foreseen for the AMF.
This amount will be reduced following the reductions in the EUs long term budget 2014-2020 (MultiAnnual Financial framework).
Public opinion and the role of media
Another important cross cutting issue already examined in the sub-section Capacity in terms of
political will is the role of public opinion and the media. As mentioned earlier there is a general lack
of knowledge of resettlement programmes and what they entail amongst the general public in all EU
resettlement Member States. This is in contrast to the predominantly negative public attitudes towards
asylum and immigration in general. Evidence collected during our research suggested that while
taking decisions to increase support for resettlement and/or expand the number of resettlement places
or simply to engage in resettlement, national politicians take into consideration the public opinion.
Therefore, it is also important to have awareness-raising activities and positive media coverage
of the issue.
Despite the important role of the media, as highlighted above, the opinion differed in MS as to how
much they should be engaged. Some were of the view that there should be more media attention to
inform the public about resettlement and that raising awareness about this group of refugees has the
potential to also increase public awareness of refugee issues in general. On the other hand, doubts
were raised because more awareness might actually have a negative impact. Non-compulsory
programmes, such as resettlement, might be viewed by the public as an economic burden and as a
result be affected by the current budget cuts by governments. In order to promote resettlement, any
discussions and media attention on resettlement need to make sure that the right messages and
information is given out to general public, making clear distinctions between resettlement (and
what this exactly involves) and other mechanisms for the protection of refugees. Both the
protection and durable solution aspects of resettlement need to be clearly explained.
IV. Conclusions and recommendation

The research has shown that that socio economic factors remain an influential part of the decision
process on behalf of Member states and that any national public discussion does not take place in
vacuum but it is entangled with other migration issues. Going back to the 2005 ECRE paper188
Towards a European resettlement Programme, you can find a number of interesting
recommendations with regard of the current resettlement capacity that still hold today such as, for
example, the confusion between resettlement and asylum in general by the public and media. In view
of the attention given to asylum numbers in Europe, including by the public, the number of refugees
resettled to Europe under any expanded resettlement activities will likely be of significant concern to
European states. For resettlement to fulfil its functions as a meaningful demonstration of solidarity
with countries of first asylum and as a useful component of a comprehensive durable solutions
strategy, resettlement numbers need to be significant, and proportional to Europes prosperity relative
to countries of first asylum. At the same time, however, for resettlement to be well managed, reasoned
consideration needs to be given to the number of refugees that current structures can resettle in a given
188
ECRE paper, 2005 Towards a European Resettlement Programme http://www.ecre.org/topics/areas-ofwork/resettlement/103-the-way-forward-towards-a-european-resettlement-programme.html
420
year, how these structures need to be developed to accommodate additional numbers, and the process
whereby the level of resettlement commitment should be determined189.
The EU has become an important player here and the EU resettlement programme is an important
incentive to motivate all member states to engage. Likewise, by establishing priorities at EU-level, the
strategic use of resettlement is strengthened. Recommendations from the EU to resettle should be
stronger in order to implicate Member States further and remind them their responsibility to provide
protection to refugees. Similarly, EASO should become an important actor in contributing to the
increase of the quality and quantity of resettlement.
As reflected also in the ECRE paper, 2005 Towards a European Resettlement Programme at this
stage, it does not seem possible to answer the question how many refugees Europe should resettle. The
research indicates that there is no implementable guideline in determining a natural limit to the
number of refugees that a country can resettle. Resettlement commitments have, historically, been
limited only by the political will to commit the necessary resources. So, an increase in the number of
resettled refugees might be difficult (but not impossible) to be achieved both practically and
politically; but any increase in European resettlement activities should be progressive, with multi-year
programmes, in order to ensure the establishment of the necessary structures.190 Views have also been
expressed that, given the current political and economic climate in different EU Member States, it may
even be preferable at present to keep and fill the current quotas effectively and (at least) ensure that
existing resettlement activities will continue.
From the review of existing resettlement programmes we can conclude that there is great diversity
in approach towards resettlement. Unsurprisingly, there also seems to be a disparity in numbers
between the established quotas and the number of refugees actually resettled in each Member State.
The way the number of resettled refugees is calculated is crucial as it impacts what we actually know
concerning the total number of refugees resettled. Despite different methods of calculation, the
research clearly indicates that the numbers of resettlement places available has not increased in
parallel with the expansion of the number of EU resettlement countries. New resettlement countries
are initially able to offer only a very limited number of places, as they require time and resources to
build their resettlement capacity. Furthermore it appears that the available specified numbers of
resettlement places within a defined period are rarely fully filled in most of the countries. Lastly, it is
important to remember that resettlement should only be used to complement existing European and/or
national refugee protection systems and not undermine them.
A number of different measures have been identified as necessary or desirable in order to increase
support for resettlement: better and faster cooperation between EU countries, transfer of knowledge
and experiences in resettlement involving all the relevant stakeholders, awareness that resettled
refugees have many different needs, involvement of municipalities in lobbying for increased support,
setting up of private or joined sponsorship schemes, and more funding opportunities for NGOs and
municipalities receiving resettled refugees.
An essential component of any resettlement programme remains, still, the political will to actively
engage in this process. Additionally, funding at both European and national levels will continue to
remain an important incentive. In order for resettlement to be a truly durable solution, states should
focus on strengthening their integration capacity and the receptiveness of receiving communities to
improve outcomes.
NGOs involvement at the decision-making stage should be considered in all Member States
engaged in resettlement. Moreover an active role should be given to NGOS in facilitating pre-
189
190
Ibid.
Ibid.
421
Elona Bokshi
departure activities. The decision-making process should also involve refugee communities to make
Members states more aware and sensitive to the many issues faced by refugees in need.
In answer to the still open question how many refugees Europe should resettle we can only say:
with strong public support and demonstrable political will, European resettlement activities may be
sufficiently generous to better respond to the resettlement needs existing in regions of refugee origin.
We can and should do more.
422
V. Bibliography
European Union Documents
European Commission (2004), Common Basic Principles,
http://ec.europa.eu/ewsi/en/EU_actions_integration.cfm
European Commission (2003), Study on The Feasibility of setting up resettlement schemes in EU
Member States or at EU Level, against the background of the Common European Asylum system
and the goal of a Common Asylum Procedure. Van Selm, Joanne; Woroby, Tamara; Patrick, Erin
and Matts, Monica
http://ec.europa.eu/dgs/home-affairs/elibrary/docs/pdf/resettlement_study_full_2003_en_en.pdf
European Commission (2009), Communication from the Commission to the European Parliament and
the Council on the Establishment of a Joint EU Resettlement Programme Brussels, 2.9.2009 COM
(2009) 447 final, September 2009
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2009:0447:FIN:EN:PDF
European Council (2008), JHA Council Meeting, Council Conclusions on the reception of Iraqi
refugees, Brussels, 27-28 November 2008
http://www.consilium.europa.eu/ueDocs/cms_Data/docs/pressData/en/jha/104360.pdf
European Parliament (2007), Decision No 573/2007/EC of the European Parliament and of the
Council for establishing the European Refugee Fund for the period 2008 to 2013 as part of the
General programme Solidarity and Management of Migration Flows and repealing Council
Decision 2004/904/EC, 23 May 2007
http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:L:2007:144:0001:0021:EN:PDF
European Parliament (2011), Debate on Support to Refugees in Tunisia, 28 September 2011,
Strasbourg.
http://www.europarl.europa.eu/sides/getDoc.do?pubRef=-//EP//TEXT+CRE+20110928+ITEM010+DOC+XML+V0//EN>
European Parliament (2012), Comparative Study on the best practices for the integration of resettled
refugees in the EU Member States,
http://www.resettlement.eu/sites/icmc.tttp.eu/files/EP%20study.pdf
European Parliament (2012), Decision No 281/2012/EU of the European Parliament and of the
Council amending Decision No 573/2007/EC establishing the European Refugee Fund for the
period 2008 to 2013 as part of the General programme Solidarity and Management of Migration
Flows, 29 March 2012
European Parliament Decision No 281/2012/EU of the European Parliament and the Council
amending the European Refugee Fund, 29 March 2012.
European Comission (2011) 751, Proposal for a REGULATION OF THE EUROPEAN
PARLIAMENT AND OF THE COUNCIL establishing the Asylum and Migration Fund
http://ec.europa.eu/home-affairs/news/intro/docs/751.pdf
423
Elona Bokshi
Articles and Journals

Kristopher Sobo (2013), UNHCR helps Tunisia with refugees in wake of Libyan civil war , July 31,
http://www.mediaglobal.org/2013/07/31/unhcr-helps-tunisia-with-refugees-in-wake-of-libyancivil-war/
NGO Documents
UNHCR
Resettlement
Handbook:
http://www.unhcr.org/46f7c0ee2.pdf
Division
of
International
Protection
(2011),
International Catholic Migration Commission (2010), 10,000 refugees from Iraq: A report on joint
resettlement in the European Union- http://bit.ly/1bAyACI
Chris Friesen (2013), NGO statement to 2013 Annual Tripartite consultations on resettlement, July
http://www.issbc.org/system/cms/files/642/files/original/FINAL__ATCR_NGO_Plenary_Remarks_-_JULY_1._2013.pdf
http://www.icmc.net/system/files/publication/welcome_to_europe_a_guide_to_resettlement_a_co
mp_64641.pdf
http://www.icmc.net/system/files/publication/welcome_to_europe_a_guide_to_resettlement_a_co
mp_64641.pdf
Fedasil, (2009), Annual Report 2009,
http://fedasil.be/sites/5042.fedimbo.belgium.be/files/FEDASIL_RapportAnnuel2009_FR.pdf
ECRE paper, 2005 Towards a European Resettlement Programme
http://www.ecre.org/topics/areas-of-work/resettlement/103-the-way-forward-towards-a-europeanresettlement-programme.html
ECRE Policy paper (August 2012) COMMENTS AND RECOMMENDATIONS on the Commission
Proposals on the future EU funding in the area of migration and asylum
http://www.ecre.org/component/content/article/68-publications/303-ecre-comments-on-thecommission-proposals-on-the-future-of-eu-funding-in-the-area-of-migration-a-asylum.html
Database documents
Country Profiles:
Scharf, Manuela (EUI), Austria Country Profile
http://www.know-reset.eu/files/texts/00144_20130902161914_knowresetcountryprofileaustria.pdf
Fischler, Fenya (EUI) and Phillmann, Salom (ECRE), Belgium Country Profile http://www.knowreset.eu/files/texts/00145_20130704132512_knowresetcountryprofilebelgium.pdf
Kodjabacheva, Iva (EUI) and Dedikova, Antoaneta (ECRE), Bulgaria Country Profile
http://www.knowreset.eu/files/texts/00146_20130704132551_knowresetcountryprofilebulgaria.pdf
Eleftheriadis
Konstantinos
(EUI)
Cyprus
Country
Profile
http://www.knowreset.eu/files/texts/00147_20130902161952_knowresetcountryprofilecyprus.pdf
Misovska, Veronika (EUI) Merhautova, Pavla (ECRE) Czech Republic Country Profile
http://www.knowreset.eu/files/texts/00148_20130705130024_knowresetcountryprofileczechrepublic.pdf
424
Herlitz Anders (EUI) Singer, Eva (ECRE) Denmark Country Profile ,<http://www.knowreset.eu/files/texts/00149_20130705130055_knowresetcountryprofiledenmark.pdf>
Roots, Lehte (EUI) Estonia Country Profile
http://www.know-reset.eu/files/texts/00150_20130902161535_knowresetcountryprofileestonia.pdf
Jacobsson, Johanna (EUI) , Sirn-Borrego, Ann-Charlotte (ECRE) Finland Country Profile
http://www.know-reset.eu/files/texts/00151_20130705130136_knowresetcountryprofilefinland.pdf
Silga Janine (EUI) Tardis, Matthieu (ECRE) France Country Profile http://www.knowreset.eu/files/texts/00152_20131002124833_knowresetcountryprofilefrance.pdf
Scharf Manuela (EUI) Misselwitz, Margarete (ECRE) Germany Country Profile http://www.knowreset.eu/files/texts/00153_20130902162028_knowresetcountryprofilegermany.pdf
Eleftheriadis,
Konstantinos
(EUI)
Greece
Country
Profile
http://www.knowreset.eu/files/texts/00154_20130902161658_knowresetcountryprofilegreece.pdf
Csehi, Andrea (EUI) Barna, Mria (ECRE) Hungary Country Profile http://www.knowreset.eu/files/texts/00155_20130729172455_knowresetcountryprofilehungary.pdf
McNamara, Frank (EUI) Gillan, Shauna (ECRE) Ireland Country Profile http://www.knowreset.eu/files/texts/00164_20130705130333_knowresetcountryprofileireland.pdf
Puccio Laura (EUI) De Donato, Maria (ECRE) Italy Country Profile http://www.knowreset.eu/files/texts/00156_20130925142808_knowresetcountryprofileitaly.pdf
Gromovs, Juris (EUI) Latvia Country Profile
http://www.know-reset.eu/files/texts/00157_20130902161627_knowresetcountryprofilelatvia.pdf
Silga, Janine (EUI) Luxembourg Country Profile
http://www.knowreset.eu/files/texts/00159_20130902162104_knowresetcountryprofileluxembourg.pdf
McNamara, Frank (EUI) Malta Country Profile
http://www.know-reset.eu/files/texts/00160_20130902153811_knowresetcountryprofilemalta.pdf
Fischler Fenya (EUI) Rogic Jasminka (ECRE) The Netherlands Country Profile
http://www.knowreset.eu/files/texts/00161_20130902162211_knowresetcountryprofilethenetherlands.pdf
Silska Magdalena (EUI) Poland Country Profile
http://www.know-reset.eu/files/texts/00162_20130906095018_knowresetcountryprofilepoland.pdf
Campino, Ana Rita (EUI) Crte Real Vasconcelos, Joo (ECRE) Portugal Country Profile
http://www.knowreset.eu/files/texts/00163_20130705130237_knowresetcountryprofileportugal.pdf
Moraru, Madalina (EUI) Mocanu Andrea (ECRE) Romania Country Profile http://www.knowreset.eu/files/texts/00165_20130705130409_knowresetcountryprofileromania.pdf
Misovska, Veronika (EUI) Slovakia Country Profile
http://www.knowreset.eu/files/texts/00166_20130919160632_knowresetcountryprofileslovakia.pdf
Bardutzky, Samo (EUI) Slovenia Country Profile
http://www.knowreset.eu/files/texts/00167_20130919160551_knowresetcountryprofileslovenia.pdf
Aine Ni Bhriain, Niamh (EUI) Castillo Reyes (ECRE) Spain Country Profile http://www.knowreset.eu/files/texts/00168_20130705130432_knowresetcountryprofilespain.pdf
425
Elona Bokshi
Ostling Alina (EUI) Joseph George (ECRE) Sweden Country Profile

El-Enany, Nadine (EUI) Bernhaut, Jeremy (ECRE) United Kingdom Country
http://www.knowreset.eu/files/texts/00170_20130919160801_knowresetcountryprofileunitedkingdom.pdf
Profile
Know-Reset Website, http://www.know-reset.eu/

Know Reset, A comprehensive database on Resettlement in the EU http://www.know-reset.eu/?c=2
Know Reset, Formal Basis for Resettlement and Effective Resettlement in the EU Member States,
http://www.know-reset.eu/files/texts/00700_20130812105725_final.pdf June 2013
Baba, Wafa, Investigation in first asylum country: Tunisia Shousha Camp, http://www.knowreset.eu/files/texts/00713_20130812100541_carim-knowresetrr-2013-02.pdf 2013
Chattha, Ilyas Refugee Resettlement from Pakistan: Findings from Afghan Refugee Camps in the
North West Frontier Province (NWFP),
http://www.know-reset.eu/files/texts/00696_20130530122128_carim-knowresetrr-2013-01.pdf
Elliott, Hannah, Refugee Resettlement: the view from Kenya: Findings from field research in Nairobi
and Kakuma refugee camp,
http://www.know-reset.eu/files/texts/00695_20130530121940_carim-knowresetrr-2012-01.pdf
Ariane Den Uyl, Dutch Refugee Council, (ECRE) National Report Resettlement in Netherlands.
April 2012.
Know Reset, Resettlement in the EU in 2011, 2013, http://www.know-reset.eu/?c=00689
Perrin Delphine & Frank McNamara (2013) Refugee Resettlement in the EU: Between Shared
Standards and Diversity in Legal and Policy Frames
426
PART IV
COUNTRY OF FIRST ASYLUM REPORTS
427

Refugee resettlement:
the view from Kenya
Findings from field research
in Nairobi and Kakuma refugee camp
Hannah Elliott

Country of First Asylum Report

428
KNOW RESET
Research Report
Refugee resettlement:
the view from Kenya
Findings from field research in Nairobi
and Kakuma refugee camp
Hannah Elliott
429

Hannah Elliott, Refugee resettlement: the view from Kenya - Findings from field research in Nairobi
and Kakuma refugee camp, KNOW RESET RR 2012/01, Robert Schuman Centre for Advanced
Studies, San Domenico di Fiesole (FI): European University Institute, 2012.

Badia Fiesolana
Italy
430
the 27 E U Member States. The team involved in the project, gathering members of the EUIs and
Programme.
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
431
List of Contents
Executive Summary
1. Introduction ............................................................................................................................ 1
2. Methodology .......................................................................................................................... 1
3. Contextual Analysis ............................................................................................................... 3
Kenyas refugee population ................................................................................................... 3
Research sites contexts ........................................................................................................... 5
Kakuma refugee camp ........................................................................................................ 5
Nairobi ................................................................................................................................ 6
Legal framework for refugees in Kenya ................................................................................ 7
Possibilities for durable solutions for Kenyas refugees ........................................................ 9
The role of resettlement.......................................................................................................... 9
4. The Resettlement Landscape In Kenya ................................................................................ 10
History of refugee resettlement from Kenya ........................................................................ 10
Contemporary resettlement situation ................................................................................... 11
Resettlement processes from the camps and Nairobi ........................................................... 12
5. European Countries Resettlement Processes From Kenya ................................................. 15
Overview .............................................................................................................................. 15
Referral and selection processes .......................................................................................... 15
Post-selection ....................................................................................................................... 18
Experiences of UNHCR and implementing partners of European resettlement .................. 20
6. Refugee Narratives, Perspectives And Experiences Of Resettlement ................................. 22
Who seeks resettlement? ...................................................................................................... 22
Who does not seek resettlement? ......................................................................................... 22
How is resettlement sought? ................................................................................................ 23
Selection stage ...................................................................................................................... 24
Resettlement interviews stage .............................................................................................. 26
Pending cases ....................................................................................................................... 27
Experiences of those being resettled .................................................................................... 28
7. Conclusions And Recommendations ................................................................................... 29
References ................................................................................................................................ 31
Websites cited ...................................................................................................................... 32
List of interviews cited ......................................................................................................... 32
Other communications cited................................................................................................. 35
Annex 1. Refugee population in Kenya according to location, 2007-2012 ............................. 35
Annex 2. Refugees submitted for resettlement, 2007-2012 ..................................................... 36
Annex 3. Refugees departing for resettlement, 2007-2012 ...................................................... 36
Annex 4. Kakuma refugees: paths to resettlement ................................................................... 37
Annex 5. Urban refugees: paths to resettlement ...................................................................... 38
432
Acknowledgements
Firstly, I would like to thank all the refugees who shared their stories and trusted me to use them
responsibly. Very many thanks go to those assisting me as r esearch assistants and interpreters in
Nairobi: Kemal, Zahra, James, Alfred and Didier, and in Kakuma: Tut, Daniel, Boru, Gobena, Sagale
and Jama. Thanks too to staff from UNHCR, implementing partners and the Department of Refugee
Affairs who took time out of their busy schedules to speak with me. Thanks in particular to UNHCR
staff in Kakuma who kindly facilitated my visit to the camp and hosted me during my stay. Thanks
also to staff at the Netherlands Central Agency for the Reception of Aslyum Seekers (COA), the
Netherlands Embassy, the Swedish Migration Board, the British High Commission and the Danish
Immigration Services, as well as staff from the U.S. Resettlement Support Centre and U.S. State
Department PRM for meeting with me and explaining their work around resettlement. Finally, thank
you to those friends whom I relied upon for sharing contacts and making the initial introductions to
agency staff and research assistants which were vital for the research.
Abstract
This report presents the findings of field research in Kenya under the KNOW RESET project, which
maps and analyses legal and policy frameworks as well as p ractices related to resettlement to
European countries. The research in Kenya was a component of this broader project, which included
research in 27 EU member states and three countries of first asylum: Kenya, Pakistan and Tunisia.
Research was carried out in Nairobi and Kakuma refugee camp between June and October 2012 and
involved interviews with refugee and resettlement actors, including those participating in resettlement
to European countries. The report broadly explores and presents Kenyas resettlement landscape, the
positions, roles and practices of European resettlement countries within that landscape, and the
perspectives and experiences of refugees around resettlement.
433
Acronyms
CIS
Citizenship and Immigration Services (U.S.)
COA
Central Agency for the Reception of Asylum Seekers (Netherlands)
CPA
Comprehensive Peace Agreement (between the Government of Sudan and the SPLM)
CWS
Church World Service
DRA
Department of Refugee Affairs
EPLF
Eritrean Peoples Liberation Front
GIZ
Deutsche Gesellschaft fur Zusammenar
GOK
Government of Kenya
HIAS
Hebrew Immigrant Aid Society
ICMC
International Catholic Migration Commission
IND
Immigration and Naturalisation Directorate of the Home Office (U.K.)
INS
Immigration and Naturalisation Service (U.S.)
IOM
JERP
Joint European Resettlement Programme
JRS
Jesuit Relief Services
OAU
Organisation of African Unity Convention (1969)
OLF
Oromo Liberation Front
PRM
Bureau for Population, Refugees and Migration (U.S.)
RCK
Refugee Consortium of Kenya
RRF
Resettlement Registration Form
RSC
Resettlement Support Centre (U.S.)
RSD
Refugee Status Determination
TB
Tuberculosis
TFG
Transitional Federal Government (Somalia)
UNHCR
United Nations High Commissioner for Refugees
USRP
United States Refugee Programme
434
Executive Summary
Overview
This report is the outcome of field research in Nairobi and Kakuma refugee camp which sought to map
Kenyas refugee resettlement landscape, with a particular focus on resettlement to European countries.
The report presents Kenyas resettlement landscape, the role of European countries within this
landscape and how European resettlement policies and practices are experienced on the ground from
the perspectives of UNHCR and its implementing partners. In addition, the report explores refugees
experiences and narratives around resettlement. The report makes recommendations to UNHCR and
European countries around how European resettlement policies could be improved to ease the burden
on Kenya as country of first asylum, to increase the efficiency of European resettlement processes in
Kenya and to render the resettlement process a smoother and less anxiety-producing experience for
refugees. The research was co-funded by the European Union and managed by the European
University Institute and the European Council on Refugees and Exiles.
Background
Kenyas refugee population lies at 630,926 refugees and asylum seekers, in addition to an unknown
but likely high number of de facto refugees. The majority of Kenyas refugees reside in its two desert
refugee camps Dadaab, in North Eastern Province, and Kakuma in North Rift Valley Province as
well as a large number in Kenyas significant cities, most notably Nairobi.
Kenya has signed and ratified the 1951 United Nations Convention relating to the status of refugees
as well as the 1969 Organisation of African Unity Refugee Convention. However, up until 2006,
Kenya lacked any national legislation on refugees. Since the influx of large numbers of refugees from
neighbouring Somalia, Ethiopia and Sudan in the early nineties, Kenyas official stance towards
refugees has been characterised by draconian policies aiming to contain the refugee problem and
refugees movements, including an encampment policy which restricted refugees and asylum seekers
to residing in camps. Following sustained advocacy by UNHCR and civil society organisations, in
2007 Kenya adopted the Refugee Act 2006, through which the 1951 UN Convention and the 1969
OAU Refugee Convention were implemented at the national level. The Act lays out Kenyas national
policy towards its refugee and asylum seeking population, yet there continue to be grey areas, such as
the situations in which refugees are able to reside outside of the camps. Refugees continue to move
between the camps and the cities unofficially, risking police harassment and arrest.
Possibilities For Durable Solutions
UNHCR identifies durable solutions to the refugee problem as local integration, voluntary
repatriation and resettlement. In Kenya, opportunities for durable solutions are limited. The countrys
encampment policy and measures to restrict refugees movements significantly curtails opportunities
for local integration. Refugees face harassment and discrimination in urban centres, especially those
who have a distinctive appearance, such as South Sudanese, Somalis and Ethiopians. Furthermore,
local integration appears not to be an envisaged or desirable solution for the Government of Kenya,
which regularly makes statements about the burden its Somali refugee population places on the
country, and has made it clear that the only opportunity it sees for them is repatriation.
UNHCR facilitated the voluntary repatriation of southern Sudanese refugees from Kakuma
following the signing of the 2005 C PA between the Sudans, but this has largely been unsuccessful,
and has since been halted due to large numbers of new arrivals from South Sudan flowing into the
camp fleeing ethnic violence. Rwandan refugees in Kenya will likely soon face proposals of
435
repatriation, since the country is deemed by the international community to now be safe, and the
Rwandan government has requested their return from neighbouring countries and for UNHCR to
invoke the cessation clauses for Rwandan refugees. But very few of Kenyas refugees are actually able
to return to their country of origin, especially its predominantly Somali population.
Of the three durable solutions, resettlement is often the only real option for refugees in Kenya. Yet,
it is an opportunity limited to just a fraction of Kenyas refugees less than one per cent. Resettlement
to a third country is generally highly desired by refugees, but for many remains a dream. This dream
has been fostered and nurtured by resettlement programmes in the camps, through which resettlement
becomes something tangible and consequently perceived as attainable. This environment encourages
refugees to perform vulnerability in order to show their eligibility for resettlement to UNHCR, and to
make projects out of resettlement seeking, which are actively worked on through certain practices or
methods, such as regular visits to UNHCR and implementing partners, writing letters to submit to
UNHCR offices and collecting papers documenting their suffering, mistreatment or the unfairness of
UNHCRs policies and practices. For refugees in camps especially who may have little control over
their lives, daily engagement with such a project may be one of few ways they feel able to gain some
agency and autonomy, and maintain some hope in an otherwise bleak situation. Agencies are
constantly navigating this environment, trying to uphold their credibility with UNHCR or resettlement
countries by identifying which refugees are indeed the most vulnerable. The result is a palpable culture
of disbelief or doubt, whereby refugees are often assumed to be strategically bending the truth in order
to be resettled. This is strongly felt by refugees, who can feel that they are constantly suspected of
lying or cheating, and that agencies are trying to catch them out so as to dismiss their claims.
Kenyas Resettlement Landscape
There have historically been two channels through which refugees are resettled from Kenya: due to
protection needs where no alternative solution can be identified, and through resettlement programmes
targeting specific groups. Since 2006, UNHCR has been implementing a protracted refugee
resettlement programme from Dadaab and Kakuma camps. Refugees are selected for resettlement
interviews based on their year of arrival, starting with the earliest arrivals from 1992 up t o 2006
arrivals. In Kakuma, the protracted refugee resettlement programme is currently coming to an end, and
is to be replaced with a more traditional, protection-based resettlement programme. This programme
will involve colleagues in the community services unit carrying out needs-based assessments of
refugees, from which refugees potentially in need of resettlement can be identified for referral to the
resettlement unit.
Resettlement from Kenya in recent years has largely taken place from Kenyas (and indeed the
worlds) largest refugee camp, Dadaab. In previous years, UNHCRs targets for resettlement were
high due to the vast numbers of refugees living in Dadaab, many of whom were protracted cases. In
2011, 10,000 individuals were targeted for resettlement, with 8,000 of those refugees selected from
Dadaab. However, heightened insecurity in Dadaab over the past two years has led a number of
countries to withdraw their personnel from conducting resettlement interviews in the camp, curtailing
UNHCRs target figures from Kenya in 2012 to 3,750, with only 750 refugees coming from Dadaab.
This has created a real challenge for UNHCR, as resettlement countries scramble for refugees from a
much smaller pool of candidates in order to meet their resettlement quotas. Furthermore, many of
Dadaabs protracted refugees are most in need of resettlement, but remain largely inaccessible.
In 2011, 3,581 refugees departed Kenya to be resettled in a third country and 10,518 refugees
cases were submitted for resettlement. Of those who departed, the vast majority (2, 083) were resettled
to the U.S., 541 to Canada, 329 to Sweden, 208 to the U.K., 182 to Australia, 81 to the Netherlands, 58
to Norway, 10 to New Zealand, and 89 to other countries. Generally, the U.S. and Canada are
deemed the biggest players in resettlement, followed by Australia, the UK and Sweden.
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Resettlement To European Countries

While numbers of refugees resettled to European countries are low, these countries do offer UNHCR
important alternatives to the U.S.; although the U.S. offers more than enough resettlement places, it is
unable to process cases quickly, even in emergencies such as immediate protection needs or medical
issues. European countries, on the other hand, are in special circumstances able to resettle cases in a
matter of weeks, or sometimes even days. Sweden is renowned as the fastest country of resettlement,
and has been able to turn cases around within as little as one to two days.
While European resettlement is highly valued due to countries abilities to resettle cases i n short
spaces of time and their systems of allocating portions of their quotas to dossier cases and emergencies,
agencies can experience difficulties around the time and resources spent meeting the resettlement needs
of European countries relative to the number of refugees that these countries resettle. In addition, the
U.S. experiences a lull in resettlement referrals at the beginning of the year because UNHCR channels all
of its resources into responding to the missions of European countries. UNHCR operates in this way
because, in spite of long security checks, the U.S. will accept large numbers and is relatively open
compared to European countries, which are often deemed to be more choosey. The U.S. in particular
then tends to get a surge of referrals towards the end of the year, once all European resettlement places
have been filled. Since the U.S. is UNHCRs biggest resettlement customer, the prioritising of
European countries which resettle much lower numbers can seem illogical. Nevertheless, especially for
cases urgently requiring resettlement, or groups or nationalities which are less likely to be accepted by
the U.S., such as Oromo and Eritreans, UNHCR feels that prioritising European countries resettlement
needs is important and necessary. This can result in a hectic first half of the year as referrals are being
made, until European countries missions are completed and quotas are filled, including for dossier and
emergency cases. Thereafter, UNHCR is able to continue referring cases t o the U.S., and faces the
difficult situation of keeping any new emergency cases that arise on hold as they await the new fiscal
year to begin referring to European countries again. This can be particularly stressful, since some of
these cases may be in life-threatening situations, and yet there tend to be no immediate opportunities for
resettlement in the second half of the year.
IOM reported similar challenges around working with European countries, each of which has its
own systems and schedules which can prove cumbersome to deal with when the numbers actually
resettled are relatively few. Except for the UK, which budgets for its resettlement programme three
years in advance, European countries provide IOM with very tentative hints about the numbers they
might resettle when at the planning stage for the following year. IOM can also experience some
challenges around a lack of standardised procedures from European countries. For example, some
countries require thorough medical checks from IOM, while others do n ot. A standard medical
examination for all refugees which would help prevent outbreaks, better screening to avoid
complications in flight and prevent problems after arrival.
Kenyas resettlement infrastructure, which European countries are able to use to meet their own
resettlement quotas, is almost entirely funded by the U.S. Although this is logical, since the U.S. is
UNHCRs and IOMs biggest customer in resettlement, there is a sense that European countries
should be more committed to supporting this infrastructure financially, since it depends upon it for its
resettlement requirements. As it stands, should the U.S. stop resettling from the region, this
infrastructure could not be maintained with the relatively insignificant and ad hoc funding that
European countries provide; there is a sense that European funding could not be depended upon for
UNHCRs or IOMs operations.
While European countries are highly valued for their capacity to take dossier and emergency
submissions and for the speed with which they can resettle refugees, they are also perceived as being
somewhat choosey about the refugees they accept for resettlement, and not necessarily according to
individuals and families vulnerability. For example, the UKs decision this year to only take Oromo
refugees from Kenya and the Netherlands request for non-Somali refugees were experienced
437
problematically by UNHCR, since third countries seen to be favouring or discriminating against

specific ethnic groups undermines UNHCRs efforts to make resettlement appear fair and entirely
according to need and causes refugees to complain about what they perceive as bias and racism (see
following section). Countries assessing the integration potential of refugees were also criticised,
since they tend to select refugees according to their education levels and language skills as opposed to
on a needs-based assessment.
Refugee Narratives, Experiences And Perspectives Of Resettlement
Many more refugees seek resettlement than are actually successful in achieving it, and refugees were
found to have their own explanations for why some refugees are successful and others are not, or why
some refugees go through the selection process and depart within a relatively short space of time while
others can wait for a number of years. Many informants felt that selection and rejection of refugees
occurs unfairly, which they explained in a number of ways. Some informants suggested that
resettlement occurs arbitrarily and that selection is largely based on chance or luck, often according to
the officer one is received by. Unfairness was also articulated as being due to UNHCR and
resettlement countries favouring certain nationalities or tribes, particularly in Kakuma since refugees
are acutely aware of who is and who is not being resettled due to the close proximity in which people
live in the camp. Favouring certain ethnic groups was often explained as racism by informants from
South Sudanese and Ethiopian Nuer communities; informants pointed out that brown refugees such
as Oromos and Somalis were being resettled but black refugees were not, even if, like the Ethiopian
Nuer, they shared the same nationality with those who were being resettled such as the Oromo. Some
informants asserted that other refugees bought or stole other peoples resettlement places, especially in
the camps, or that people would fake situations of insecurity, or change their ethnicity strategically
having observed that certain ethnic groups were more favoured than others. Refugees also cited
mistrust of UNHCR, or suspicion of corruption within the organisation, as being behind resettlement
decisions. Congolese Banyamulenge refugees in Nairobi expressed concern that during interviews
with UNHCR and resettlement countries their stories were not being accurately translated; interpreters
tend to be Rwandan Kinyarwanda or Kirundi speakers, languages which are closely related but not
identical to the Banyamulenge mother tongue Kinyamulenge.
These explanations, although in some cases seemingly irrational, do not arise out of nowhere.
Especially for the Oromo, a history of persecution may lead refugees to mistrust and be paranoid about
the activities of all authorities. Similarly, for South Sudanese and Ethiopian Nuer who have fled
countries where their people have been discriminated against racially, it is understandable that refugees
would make sense of their apparent unfair treatment through the frame of race. In addition, many
refugees have come from contexts where corruption is part of everyday business, and so to suspect
agencies of engaging in corrupt activities around resettlement is quite rational. Corruption accusations
may also be a legacy of the resettlement scandal of 2000. In addition, a general perception of UNHCR as
working against refugees may be fostered by its role around RSD; from arrival in Kenya, asylum seekers
are interviewed and their claims questioned and judged by UNHCR. This goes some way towards
explaining why UNHCR may receive such strong criticism from refugees as compared to implementing
partners, which are able to focus their time and resources on supporting refugees as opposed to
determining whether they qualify to receive their support or not. Accusations of corruption, inhumanity
and mistreatment by UNHCR or inaccurate translation by foreign interpreters are used by refugees to
make sense of the often frustratingly slow processes they undergo with the agency, not only for those
who have resettlement cases but also for those who are seeking the most essential protection tool and
prerequisite to resettlement, the mandate. Informants were also well aware of the culture of disbelief
within UNHCR and implementing partners, and resented constantly having to perform their vulnerability
to prove their eligibility for resettlement under the critical eyes of agency staff.
438
A significant number of refugees interviewed had had an initial resettlement interview with
UNHCR but then had not received any feedback for many months, or even years. In such situations,
refugees are able to enquire about the status of their cases at field post in Kakuma or resettlement unit
desking days in Nairobi, though some reported receiving contradictory information from caseworkers.
For refugees whose cases have moved beyond UNHCRs assessment and selection process, queries
about their cases may not be answerable at field post, as t he cases are now with the countries of
resettlement to which they have been referred.
A number of refugees who had gone through interviews with RSC and INS had waited for long
periods of time without any information about their cases, as UNHCR was not always able to inform
them of the status of their cases. For refugees referred by UNHCR to European countries, acceptance
is more likely and if they are unsuccessful, refugees are informed within a short space of time. That
said, one informant who had been recommended for resettlement to the Netherlands was not called for
interview, which implies that his case was rejected by the Netherlands at the initial screening stage. He
expressed anger and frustration to have seen others be interviewed without being informed why he
was not called himself. A number of other informants felt, or had been informed by UNHCR, that their
complex family situations were causing their cases to be put on hold. Many refugees have come from
contexts whereby orphaned or abandoned children are absorbed into other family units, whether these
are part of extended family configurations or wider clan networks. These tend not to be recognised as
constituting genuine families by UNHCR and resettlement countries, which require proof of their
authenticity through further investigations.
Conclusions And Recommendations
To Unhcr
Clearer communication on the statuses of refugees cases, especially in situations where they
are pending for long periods, would help to reduce the confusion and anxiety of this liminal
period for refugees. Although it is understandable that UNHCR and resettlement countries
would not communicate the reasons for refugees being rejected resettlement for purposes of
keeping selection criteria secret (so that refugees are not able to mould their cases to these
criteria), not knowing why one was rejected, especially after the stress of going through
multiple interviews, and the resulting lack of closure can be traumatic for refugees. Similarly,
where refugees are screened out when UNHCR submits the RRFs to a country, they should be
informed of the fact, and advised why they were not selected for interview.
UNHCR and resettlement countries ought to have high standards when it comes to selecting
interpreters and be mindful of Congolese refugees (especially Banyamulenge) concerns
around translation, ensuring that appropriate interpreters are employed.
For refugees and asylum seekers in Nairobi, support with transport costs to multiple interviews
for both refugee status determination (RSD) and resettlement would ease the financial
pressures on refugees, especially during the period they await the mandate when they are not
entitled to other forms of support from UNHCR or implementing partners. UNHCR might also
establish field offices in enclaves where numerous refugees reside in which RSD and
resettlement interviews could be conducted.
To European Resettlement Countries
European countries play an important role in Kenyas resettlement landscape, resettling

refugees from nationalities which may not be considered by bigger resettlement actors and
making provisions for emergency and dossier referrals. European countries should increase
439
their quotas for emergency and dossier referrals in order to meet the resettlement needs of
refugees in acute insecurity and medical situations.
440
European countries coordinating and spacing their missions throughout the year would enable
UNHCR to spread its attention more evenly between resettlement countries and avoid having
to channel all of its resources into meeting the resettlement requirements of European
countries at the beginning of the year to the detriment of larger resettlement actors. If
European countries coordinated their missions together, sending a mixed team from various
countries two to three times a year, UNHCRs preparation for and hosting of these missions
would be more time and cost-effective.
European countries would also make IOMs work easier to plan and manage should they
provide more notice on the numbers they intend to resettle each year.
Standardised medical procedures, coordinated by IOM, would help to reduce the risk of
outbreaks, complications in flight and health problems on arrival.
UNHCR and implementing partners would benefit from more standardised policies of
European countries; as it stands, countries each have their own policies and requirements, and
meeting them can prove cumbersome, especially due to the small numbers of refugees that
these countries resettle and the relatively little funding they provide for these numbers, which
is often subject to change.
UNHCR would save significant time and resources should there be an agreement between all
resettlement actors about what information is required in the refugee referral form (RRF).
Currently, UNHCR completes all forms with the maximum information required since it is not
always clear which countries these forms will be submitted to. Information on the political
situation in refugees countries of origin, for example, could probably be removed from the
form, since all countries have information and publications on these countries from their own
foreign offices. UNHCR would also benefit from more notice from European countries about
their resettlement numbers and the dates of their missions in order to target the RRFs more
effectively, tailoring each to the needs of the country of submission.
In order to assist UNHCR with its human resources issue, European countries could share a
small clerical office in Nairobi with a Kenyan team through which to channel RRFs,
coordinate selection missions and arrange interviews. This would be more cost-effective than
employing UNHCR staff, who are often overqualified for this kind of work.
European countries might benefit from sharing best practices on resettlement, including on
how to conduct missions and on cultural orientation programming. Countries could learn from
each other by sending personnel to shadow other countries resettlement missions in Kenya
and cultural orientation classes. This would also apply to countries which currently do not
regularly resettle refugees, or at least do not currently carry out selection missions in Kenya.
1. Introduction
This report forms a co mponent of the research for the Know Reset Project, which maps policy and
legal frameworks and actual practices related to resettlement to 27 EU member states. The projects
broad aim is to build the knowledge for better policy-making around resettlement at the EU-level as
well as to individual EU member states. In addition to researchers exploring resettlement policies and
practices from 27 EU member states, the project also involved research from three countries of first
asylum Kenya, Pakistan and Tunisia. This report presents the findings from field research in Kenya.
The research aimed to explore and understand how resettlement, and specifically European
resettlement, is operating in Kenya, and how the resettlement policies and practices of UNHCR and
resettlement countries are experienced on the ground. The research sought the perspectives from a
range of actors involved in resettlement, including refugees themselves, refugee agencies and
European consulates in order to gain a comprehensive view of Kenyas resettlement landscape and the
position and role of European resettlement within it. Tying together the perspectives of these various
actors, the research aimed to provide insights into how European resettlement policies could be
improved to ease the burden on Kenya as co untry of first asylum, to increase the efficiency of
European resettlement processes in Kenya and to render the resettlement process a smoother and less
anxiety-producing experience for refugees.
2. Methodology
Interviews were carried out with refugees and resettlement actors in two settings in Kenya Nairobi,
where, according to UNHCR figures, 55,581 refugees (the significant majority of Kenyas urban
refugees) reside, and Kakuma refugee camp, which currently hosts 102,767 refugees and asylum
seekers. 1 While the Dadaab refugee camp complex hosts the vast majority of Kenyas refugees and
asylum seekers 474, 154 deteriorating security conditions prevented research in the camp. In
addition, since these security concerns have recently curtailed resettlement from the camp (explained
further in the following section), Kakuma was felt to be a more conducive site for the study.
In both Nairobi and Kakuma, informants were accessed via research assistants from the
predominant refugee communities (often community leaders or interpreters for refugee agencies 2),
who were also able to assist with translation. The sample of informants interviewed cannot, then, be
said to be representative, since they were selected from assistants own pools of contacts and
associates. In addition, it is important to note that often the most vulnerable refugees perhaps most in
need of resettlement may not be accessible through such channels. Not all informants in either Nairobi
or Kakuma were yet officially recognised as refugees in Kenya; a number of informants were waiting
to receive or renew their mandates, and in Nairobi some had avoided UNHCR entirely or chosen not
to renew expired mandates out of frustration with the long waiting time involved and transportation
costs of regular trips to UNHCRs offices. Informants accounts could not be directly triangulated with
or verified by UNHCR records, in part because not all were known or recognised by UNHCR, as well
as due to confidentiality reasons. 3 The value of the data gained from these interviews can be found in
informants narratives and discourses around resettlement, regardless of whether or not what was said
1
UNHCR, 2012d, Kakuma camp population statistics, 5 October 2012.
With the exception of the research assistant for the Somali refugee community in Nairobi who is a Kenyan Somali.
No names were recorded in order to assure informants of the confidentiality of their information, and pseudonyms have
been used for all refugees. Some informants, however, did request that I record their name in the hope of some kind of
assistance and follow-up after the interview. In such cases the informants were advised that this would not be possible,
and any positive outcomes from the research would be more general in terms of resettlement policy than directed towards
individual refugees or asylum seekers.
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Hannah Elliott
was true or false according to the practices of UNHCR and other agencies around resettlement. It
should be noted that, as previous studies have found, 4 informants responses to the researcher (a
foreigner) may have been especially emotive in order to elicit a sy mpathetic response, with some
hopes that this might bring them support, whether material, in the form of advocacy, or with
resettlement itself; some informants, in spite of being advised of the nature and objectives of the
research, requested that their names be recorded and submitted to European countries for resettlement.
One should remain cautious of internalising a culture of disbelief,5 however, and assuming that all
refugees create stories in order to seek resettlement. Such a culture certainly exists amongst the casehardened staff of UNHCR and other refugee agencies, in which refugees are often viewed as storytellers, manipulating the truth and reproducing narratives of victimhood in an attempt to be resettled.
Refugees narratives and discourses around resettlement should not necessarily be read as true or
false, but as offering insights into how the refugee situation is experienced, understood and made
sense of by refugees.
42 refugees and asylum seekers were interviewed in Nairobi. Eleven of the refugees interviewed
were officially registered in either Kakuma or Dadaab refugee camps but were living in Nairobi for
livelihood or education purposes, or had medical conditions which could not be adequately addressed
in the camps. Others were officially registered as urban refugees by UNHCR and had been granted
mandates in Nairobi, having signed a f orm declaring their ability to sustain themselves in the city
independently of UNHCR support. Interviews were mainly conducted with the four predominant
refugee communities in Kenya 6: Somalis (of various clans, including minority clans such as Somali
Bantu, Benadiri and Asharaff), Ethiopian Oromo, Congolese (various ethnic groups from North and
South Kivu, including Banyamulenge) and Southern Sudanese (4 Dinka and 6 N uer informants). In
addition, one Eritrean and one Burundian Tutsi refugee were interviewed in Nairobi. Gender equity
was sought, with18 women and 24 men interviewed.
Interviews in Nairobi were mostly carried out in the enclaves in which the various communities
predominantly reside. For Somali and Ethiopian refugees, all interviews were conducted in Eastleigh,
a vibrant and multi-cultural neighbourhood with a booming economy, fuelled in part by Somali
transnational business ties and diaspora remittances. 7 The Congolese refugee community, as well as
the Rwandan and Burundian communities, tend to be less concentrated in one neighbourhood or area
than Somali and Ethiopian refugees, and reside in numerous estates across Nairobi, including Kayole,
Kangemi, Kawangware and Satellite, dispersed amongst Kenyan nationals. 8 Interviews with
Congolese refugees were conducted in the city centre and in Kayole in eastern Nairobi. The South
Sudanese refugee community similarly tends to reside in a number of different areas across Nairobi,
including Donholm, Komorock, Kawangware, Githurai and Ruiru, amongst others. 9 Interviews with
members of the South Sudanese Nuer community were conducted in Donholm in eastern Nairobi and
the Dinka community in Kawangware in western Nairobi. Interviews were carried out in public places
such as ca fes, restaurants and salons as w ell as i n informants homes. Some refugees and asylum
seekers were understandably cautious about sharing their stories, especially in cases where their
security was threatened (particularly for Oromo refugees who often live in fear of Ethiopian security
agents said to be operating in the city). However, a majority of informants were compelled to tell their
stories in great detail, especially around their frustrations with the resettlement situation in Kenya.
4
E.g. Campbell at al, 2006, Congolese refugee livelihoods in Nairobi.
As described in Trueman, 2010, Ethiopia exports more than coffee.
According to UNHCR statistics, 2012a, Statistical summary as of August 2012.
See Lindley, 2010, The Early Morning Phonecall. While the Ethiopian refugee community is particularly concentrated in
Eastleigh, there are also significant communities of Amhara refugees in particular in the more upmarket neighbourhoods
of Jamhuri and Hurlingham.
see Pavanello et al, 2010, Hidden and exposed, 13.
There is also a significant [wealthier] southern Sudanese community in Kileleshwa, Hurlingham and Jamhuri estates.
442
Refugee resettlement: the view from Kenya - Findings from field research in Nairobi and Kakuma refugee camp
In Kakuma, refugees and asylum seekers residing mostly in one section of the camp (Kakuma 1)
were interviewed. Refugee community leaders and interpreters were accessed via UNHCRs Community
Service unit, who were then able to introduce the researcher to members of their community to
interview. In total, 41 refugees and asylum seekers were interviewed in Kakuma: Ethiopians (including
Oromo, Amhara, Tigray and Ethiopian Nuer), South Sudanese (Dinka and Nuer), Somalis (of various
clans), Congolese (of various ethnic groups from North and South Kivu) and Burundians (Hutu) were
interviewed. Most refugees in the camp were very keen to tell their stories. As in Nairobi, it was
necessary to emphasise my inability as an independent researcher to provide any assistance or refer cases
to UNHCR. The Oromo community was particularly keen to be interviewed, meaning the number of
interviews from Oromo refugees and asylum seekers are somewhat disproportionate to the other
communities. Although gender equity was sought and emphasised, only thirteen women were
interviewed in the camp. While the challenges accessing women are frustrating, they also emphasise that
men tend to be more active in pursuing opportunities in the camp. 10
Research also involved interviews with UNHCR in both Nairobi and Kakuma, with the Senior
Resettlement Officer in Nairobi, the Senior Protection Officer and Resettlement Officer in Kakuma,
and with UNHCR resettlement caseworkers in Dadaaab 11 and Kakuma. Discussions were held with
the head of IOMs sub-office in Kakuma and IOMs director of non-US movements was interviewed
at IOMs headquarters in Nairobi. In addition, the manager of IOMs Canadian Orientation Abroad
programme (also working with European countries cultural orientation programmes for resettled
refugees) was interviewed in Nairobi. A member of staff at the Government of Kenyas Department of
Refugee Affairs (DRA) was interviewed in Nairobi, along with refugee agencies, including Refuge
Point, Kituo Cha Sheria, Refugee Consortium of Kenya (RCK), and Heshima Kenya. 12
In order to gain insights into the workings and perspectives around resettlement of those European
countries resettling from Kenya, interviews were conducted with the consulates of European countries
resettling refugees from Kenya the UK, Netherlands and Denmark. I was fortunate to be able to
observe the Netherlands second cultural orientation session for refugees who had been selected for
resettlement from Nairobi and to discuss the Netherlands resettlement policies and practices with staff
from the Central Agency for the Reception of Asylum Seekers (COA). In addition, I was able to meet
with members of a delegation from the Swedish Migration Board towards the end of their selection
mission in Kenya. I also met with caseworkers for the Resettlement Support Centre (RSC) of the U.S.
in Nairobi for sub-Saharan Africa and interviewed the Refugee Coordinator for State Departments
Bureau of Population, Refugees and Migration (PRM) in order to gain a sense of how European
resettlement is viewed by UNHCRs biggest customer in resettlement, and what European countries
can learn from the U.S.s resettlement policies and practices.
3. Contextual Analysis
Kenyas refugee population
Kenya currently hosts some 630,926 refugees and asylum seekers. 13 The majority of the countrys
refugees reside in its two desert refugee camps Dadaab, in North Eastern Province, and Kakuma, in
North Rift Valley Province and a large number also live in Kenyas significant cities, most notably
Nairobi. 14 In addition, an unknown but likely high number of de facto refugees live unregistered in the
country, most commonly in urban centres.
10
My sense was that interviews were treated as a means of campaigning for resettlement.
11
By phone.
12
More on the place of these agencies within Kenyas resettlement landscape in section 4.
13
According to UNHCRs official statistics: UNHCR, 2012a, Statistical Summary as of August 2012: Refugees and Asylum
Seekers in Kenya.
14
UNHCR, 2012a.
443
Hannah Elliott
Kenyas refugee history began with the countrys hosting of Ugandan refugees displaced by
political coups during the 1970s. By the end of the 1980s, Kenyas official refugee numbers stood at
15,000; the majority of these were Ugandans who had managed to integrate into the countrys socioeconomic landscape relatively smoothly, acquiring Kenyan identity cards and gaining access to social
services relative to Kenyans. 15 Kenyas refugee situation changed dramatically with the onset of the
nineties, which saw a surge in the number of refugees entering Kenya in response to regional crises.
This began with a wave of an estimated 300,000 Somali refugees between 1991 and 1993 16 following
the collapse of the Siad Barre regime in 1992 into camps at the border at Liboi, north coast (Marafa),
around Mombasa (Utanga) and the Dadaab camps in North Eastern Province. Shortly after, the
collapse of the Unity government in Ethiopia displaced around 40,000 Ethiopians into Kenya.17 The
same year, 12,000 Sudanese minors entered Kenya fleeing the insecurity resulting from the fighting
between the SPLM and the Government of Sudan, resulting in the creation of Kakuma refugee camp.
Around this time, Congolese fleeing the Mobutu regime after ten years of fighting were also flowing
into Kenya. 18 By 1992, K enyas refugee numbers had reached around 420,000, as compared to an
estimated 13,000 in 1991. 19 The majority of these refugees were Somali.
Refugee flows into Kenya continued into the nineties and beyond. New arrivals of Somalis into the
country persisted through 2006, in spite of the governments closing of the border, as people fled the
insecurity brought by the ousting of the Islamic Courts Union by US-sponsored Ethiopian and
Transitional Federal Government (TFG) forces. 20 There have been further waves of Somali refugees
entering Kenya in recent years, with thousands fleeing the devastating drought of 2011 w hich was
compounded by restrictions placed on aid imposed by insurgent group Al Shabaab who controlled
some of the worst-hit areas. 21 The crisis saw numbers in Dadaab refugee camp swell to 400,000,
making it Kenyas second biggest city, hosting over four times more than its original capacity of
90,000 people. 22 UNHCRs mid-term objective for South Sudanese refugees since the 2005
Comprehensive Peace Agreement (CPA) has been repatriation, though this is generally deemed to
have been a problematic process to say the least. Although UNHCR supported those who voluntarily
repatriated with integration grants, they were not given repatriation packages, and many returnees
found a lack of infrastructure and services and poor living conditions at home. In addition, ethnic
conflicts in South Sudan saw significant numbers of new arrivals from South Sudan, which has halted
UNHCRs repatriation programme. 23
Today, Somalis make up the significant majority of refugees in Kenya, with their numbers
officially at 535,318, the majority residing in the Dadaab refugee camp complex. 24 Ethiopian refugees
follow; UNHCR figures state that 35,873 Ethiopian refugees live in Kenya, mainly in Dadaab but with
significant numbers in Nairobi, though these figures are not disaggregated according to the different
Ethiopian ethnic groups in Kenya. South Sudanese refugees are the third biggest refugee population in
Kenya at 32,146, the vast majority officially residing in Kakuma, though fieldwork for this study
15
Crisp, 1999, A state of insecurity, 17.
16
Kirui and Mwaruvie, 2012, The dilemma of hosting refugees.
17
Hyndman and Nylund. 1998, UNHCR and the status of prima facie refugees in Kenya, 4.
18
Konzolo, 2010, An overview of refugee status determination and the rights of refugees in Kenya, 2.
19
Odhiambo-Abuya, 2004, UNHCR and status determination imtaxaan in Kenya, 188.
20
See Lindley, 2009, Leaving Mogadishu.
21
The Kenyan government has tended to portray Somali refugees who arrived in 2011 as economic refugees fleeing hunger,
with the argument that their repatriation should thus be relatively unproblematic. See Long, 201, Kenya, Jubaland and
Somalias refugees.
22
Rice, 2011, Somali refugee settlement swells.
23
Interview with UNHCR Senior Protection Officer, Kakuma, 19 September 2012.
24
Made up of Dagahelay, Hagadera and Ifo I and II camps.
444
suggests that unofficial numbers in Nairobi are significant. Congolese are the fourth biggest refugee
community in the country, officially at 12,742, the majority officially registered in Nairobi, though
some 5,500 reside in Kakuma. Other refugee communities in Kenya are Sudanese (6,052), Burundian
(3,808), Eritrean (1,980), Rwandan (1,783) and Ugandan (1,041). The table in Annex 1 presents
UNHCRs records for the populations of refugees of different countries of origin in Kenya from 2008
to 2012, with a breakdown of these figures according to where refugees officially reside.
Research sites contexts
Kakuma refugee camp
The number of refugees and asylum seekers residing in Kakuma currently stands at 102,76725,
surpassing the camps original capacity of 100,000. The camp was established in 1992 to host
Sudanese refugees, including the Lost Boys who were orphaned or displaced during the Sudanese
Civil War. Populations from South Sudan continue to constitute a large proportion of the camps
refugees; during the first seven months of this year, Kakuma received 12,123 new arrivals, mostly
from South Sudans Jonglei and South Kordofan states. 26 Somalis represent the largest number of
refugees in the camp, followed by South Sudanese, Ethiopians and Congolese. The camp is made up
of three main sections Kakuma 1, 2 and 3.
Kakuma is located in Turkana District in the arid lands of the north Rift Valley, the poorest and
most marginalised district in Kenya. 94.3 per cent of the pastoralist host population, the Turkana, were
classified as living in poverty in a 2011 survey, 27 and have tended to resent the refugee population for
having a relatively better quality of life as a result of the rations, housing, education and healthcare
services provided by UNHCR and implementing partners. 28 Attacks on refugees by armed Turkana
have historically been a major source of insecurity in the camp and, though having significantly
improved in recent years, remain an issue. 29 A number of refugees interviewed in Nairobi who had
previously resided in Kakuma cited attacks by Turkana as their main reasons for moving to the city.
Refugees also struggle with the harsh climatic conditions in the camp high temperatures and dust
storms render the area an extremely challenging place to live. Although this was also said to have
improved slightly in recent years due to improved rainfall levels, increased rainfall also brings floods
to the camp, and refugees houses have been swept away during wet seasons. Such challenges account
for why many refugees choose to reside in urban centres, even as they remain registered in the camps.
25
UNHCR, 2012d.
26
UNHCR, 2012b, Kakuma camp in Kenya surpasses its 10,000 capacity.
27
Omari, 2011, Kajiado named richest town in new ranking.
28
See Aukot, 2003, It is better to be a refugee than a Turkana in Kakuma.
29
At the time of fieldwork in Kakuma, a refugee had been killed in the Kakuma 3 section of the camp the previous week.
445
Hannah Elliott
Nairobi
The official number of refugees residing in Nairobi according to UNHCRs most recent statistics is
55,581, 30 but the actual number is likely to be significantly higher, since many are registered in the camps
but choose to live in Nairobi for livelihood and educational purposes, or because of medical needs.
Somalis, more than other refugee populations, face discrimination from the host population in
Kenya, in part informed by a historical marginalisation and suspicion of the countrys native Somali
populations as well as more recent events which have caused Somalis or those with Somali-like
appearances to be associated with Islamic radicalism. In October 2011, following a sp ate of
kidnappings of foreigners (aid workers and tourists) on its territory, the Kenya Defence Force
embarked on a military incursion into Somalia with the objective of removing militant group Al
Shabaab. Kenyas involvement in the war on terror prompted numerous grenade and gun attacks
across Kenya, mostly in the north eastern town of Garissa and in Nairobi, targeting bus stations, busy
streets and churches. 31 These attacks have seen an increase in xenophobic attitudes towards those with
Somali appearance 32 and police harassment of Somalis in Eastleigh estate, where a large concentration
of Somalis reside. Ethiopian refugees, often residing in Eastleigh, also face discrimination since they
have a d istinctive appearance and can be mistaken for Somalis. These groups thus face particular
insecurity in Nairobi at the hands of the police, who regularly conduct night-time operations in
Eastleigh in order to cleanse the estate of illegal immigrants. This has culminated in recent months in a
Kenya police project known as Operation Fagia Wageni (literally operation sweep up the guests), in
which all immigrant populations residing in Eastleigh are targeted. Police operations in Eastleigh are
not necessarily entirely aimed at removing illegal immigrants; police have been accused of visiting the
estate when they are short of cash, knowing that refugees and asylum seekers lacking documentation
will readily pay a bribe so as to avoid being detained.33 South Sudanese, residing in other areas of the
city, also experience regular requests for identification from the police due to their distinctive
appearance. Documentation is a grey area, and few police are clear on what documentation refugees
should be carrying to allow their residence in Nairobi.34 Refugees from all communities interviewed
cited experiencing difficulties with the police, but most notably those groups who were more visible in
Nairobi; refugees from the Great Lakes region who can be mistaken as Kenyans and sometimes speak
Kiswahili were less likely to report these kinds of incidents.
Some groups cited insecurity in Kakuma as a r eason for choosing to stay in the city. Three
Congolese Banyamulenge informants talked of relatives who had died during the massacre of
Banyamulenge refugees at Gatumba refugee camp in Burundi and said that they thus felt unable to
stay in a camp and could not trust UNHCR to keep them safe.35 Ethiopian refugees described
particular insecurity and anxiety due to targeted attacks on them, including forced deportations, carried
out by Ethiopian security agents or Kenyan police funded by the Ethiopian government. Most said that
30
UNHCR, 2012a.
31
Note that it is unclear as to whether these attacks have been Al Shabaab-instigated or are rather the activities of
opportunistic individuals and groups in Kenya.
32
An extreme example is when Somalis were attacked in the street and their homes in Pangani estate in Nairobi which
neighbours Eastleigh following a grenade attack on a church which killed one child and injured several others on 30
September 2012.
33
Harper, 2010, Somalis in Kenya: they call us ATM machines.
34
Pavenello et al, 2010: 17.
35
David, interviewed Nairobi, 21 August 2012; Marc, interviewed Nairobi, 21 August 2012; Juliet, interviewed Nairobi, 22
August 2012.
446
to live in Kakuma, closer to the border, was more dangerous, and that hence they were forced to stay
in Eastleigh, though some mentioned seeking safe haven in other parts of the country. 36
Legal framework for refugees in Kenya
Kenya has signed and ratified the 1951 United Nations Convention relating to the status of refugees as
well as the 1969 Organisation of African Unity Refugee Convention. However, up until 2006, Kenya
lacked any national legislation on refugees. While Kenyas early refugee policy has been described as
open and accommodating, since 1990 it has been characterised by draconian policies which aimed to
contain the refugee problem and refugees movements. Due to overwhelming numbers of refugees in
the country by 1992, the Government of Kenya (GOK) assigned all responsibility for registering,
determining the status and ensuring the protection of asylum seekers during this period to UNHCR.
The government applied containment policies to its refugee population, targeted particularly at the
growing Somali refugee population; refugees were allowed to reside only in camps, and those needing
to travel out of the camps for medical needs, to take up education opportunities or fleeing specific and
targeted insecurity in the camps were required to carry a movement pass issued by UNHCR. 37
Following sustained advocacy by UNHCR and civil society organisations, in 2007 Kenya adopted
the Refugee Act 2006, through which the 1951 UN Convention and the 1969 OAU Refugee
Convention were implemented at the national level.38 The Act identifies two categories of refugees:
statutory refugees and prima facie refugees, and lays out the provisions for those who should be
excluded from gaining refugee status or should have their refugee status withdrawn from them,
including people who have committed crimes against peace or humanity; have committed war crimes
or serious non-political crimes outside or inside Kenya; have been guilty of acts contrary to the
principles of the UN or AU; have dual nationality. In addition, where the circumstances which caused
an individual to flee have changed, the individual should be excluded from receiving refugee status.39
The Refugee Act also makes room for some deviation from Kenyas de facto encampment policy,
allowing refugees to reside in urban areas provided that they are able to sustain themselves financially.
However, Pavanello et al argue that Kenya continues to lack the national refugee and asylum policy
required to assist with the implementation of the Refugee Act, and that there is as a result palpable
confusion around the governments official position on where refugees should reside.40 While some
refugees are today able to legally reside outside of the camps, there are no official guidelines around
which refugee groups may or may not.
The Refugee Act established a government department responsible for refugee issues, the
Department for Refugee Affairs (DRA), which operates within the Ministry of State for
Immigration and Registration of Persons. The Refugee Act declares that the DRA is responsible
for the management, coordination and administration of refugee issues, including developing
policies, seeking durable solutions, coordinating international assistance, issuing travel documents
and managing the refugee camps. The vision for the DRA was to take over from UNHCR as lead
agency on refugee issues in Kenya; all issues pertaining to refugees should first come to the DRA,
after which the DRA could then assign responsibility for those issues to stakeholder agencies,
including UNHCR. 41
36
Boru, interviewed Nairobi, 16 July 2012; Ibrahim, interviewed Nairobi, 17 July 2012.
37
Crisp, 1999: 28.
38
see GOK, 2006, The Refugee Act 2006, Section 16 (1) (a).
39
GoK, 2006: 3.
40
Pavanello et al, 2010.
41
Interview with DRA official, Nairobi, 11 September 2012.
447
Hannah Elliott
Since March 2011, asylum seekers have been required to register with the DRA. 42 On arrival in
Kenya, asylum seekers have up to 30 days to report to DRA reception centres distributed across the
country in Kakuma and Dadaab refugee camps, Shauri Moyo neighbourhood in Nairobi, Nakuru in
Rift Valley, Mombasa and Malindi in Coast Province, and Isiolo in Eastern Province. Here, asylum
seekers essential information, photographs and fingerprints are taken and they are given a letter
confirming their registration as they await a government alien ID card. 43 The new system is felt to be
positive, in that it demonstrates greater responsibility-sharing between the GOK and UNHCR.
However, the system has also been found to be inefficient; refugees wait long periods before being
issued with the ID card, and one informant reported a current backlog of 60,000 refugee ID cards. 44
Recently, the government announced that all refugees being resettled to third countries are required to
hold alien ID cards, 45 which will likely be problematic in light of the backlog issue.
Having registered with the DRA and been issued with an asylum seeker certificate, asylum seekers
from southern Somalia and South Sudan are automatically granted refugee status as prima facie
refugees. Asylum seekers from other countries or regions undergo an eligibility interview for statutory
refugee status (refugee status determination, or RSD). This process continues to be conducted by
UNHCR, though both the RSD process and issuance of mandates will ultimately be the responsibility
of the DRA and UNHCR and the GOK are currently engaged in capacity building in order to make
this transition. 46 There has been some criticism of UNHCRs role in RSD, with the view that acting as
judge and jury compromises UNHCRs fairness and neutrality, and promotes mistrust in the agency
by refugees themselves. 47 This mistrust and suspicion was certainly a co mmon theme of interviews
with asylum seekers in both Nairobi and Kakuma. The RSD process can vary; according to UNHCR,
if ones case is straightforward, an asylum seeker may be required to go through only one interview,
but if there are some areas of ambiguity in ones case, one may be recalled for several further
interviews before a decision is made approving or rejecting an asylum seeker for refugee status. In
addition, asylum seekers may be called for an RSD registration interview ahead of an actual RSD
interview. 48 Those who are approved as refugees are issued with a m andate which is valid for two
years, after which a refugee must seek its renewal from UNHCR. A number of refugees and asylum
seekers interviewed in both Nairobi and Kakuma spoke of numerous eligibility interviews with
UNHCR and long waits for a d ecision, sometimes for several years. This can put a lot pressure on
refugees in Nairobi in particular, who have to source transport costs to UNHCRs offices, often only to
be told to return the following week. Those who are rejected are given a 30 day period to appeal to an
Appeals Board, after which they are required to leave the country, a policy that was created under the
2006 Refugee Act. 49 Those who are successful are granted the mandate and receive a R efugee
Identification Pass. Those residing in the camps who are granted refugee status are issued with a ration
card and are entitled to all of the support services available in the camp. Should they wish to leave the
camps, their reason to do so must be approved by the DRA, after which they are issued with a
42
Interview with RCK, Nairobi, 20 July 2012.
43
The alien card is a p ositive development in terms of refugees documentation since it allows for better treatment by
Kenyan police, especially for urban refugees.
44
Pavanello et al, 2010: 15; interview with RCK, 20 July 2012.
45
Interview with UNHCR Senior Protection Officer, Kakuma, 19 October 2012.
46
Refugee Status Determination , DRA website, www.refugees.co.ke
47
Konzolo, 2010: 11. Odhiambo-Abuya, 2004, describes how amongst Somalis the RSD process is known as imtaxaan
which translates as examination.
48
Communication with Resettlement Officer, Kakuma, 16 O ctober 2012. According to UNHCR, delays occur when a
refugees case is not straightforward i.e. when there are some areas of ambiguity, e.g. non-biological children. The
refugee may be called for several interviews, which span a long period of time. What is not clear is the extent to which
these long waits are because of the complexity of the case alone, or also due to UNHCRs staffing issues which can cause
inefficiency in the system.
49
Konzolo, 2010: 13
448
movement pass. 50 Refugees in Nairobi who are granted the mandate are able to access services offered
by refugee agencies, such as medical and food assistance (HIAS, Refuge Point, GIZ) and legal aid and
advocacy (Kituo Cha Sheria, RCK), though it is the policy of UNHCR to advise refugees that they
will have more reliable access to services in the camps. On receiving the ration card, refugees may
unofficially go to Nairobi, leaving their card number with family or friends so that they can be
contacted in the event of being called for an interview, including for resettlement, when they return to
the camps. Refugees also return to the camps from Nairobi for headcounts in order to maintain their
official residency there as well as to keep their ration card or their name on a family members card.51
Possibilities for durable solutions for Kenyas refugees
UNHCR identifies durable solutions to the refugee problem as local integration, voluntary
repatriation and resettlement. In Kenya, opportunities for durable solutions are limited. The countrys
encampment policy and measures to restrict refugees movements significantly curtails opportunities
for local integration socially, politically and economically. As mentioned above, refugees face police
harassment and discrimination in urban centres, especially those who have a d istinctive appearance,
such as South Sudanese, Somalis and Ethiopians. Furthermore, local integration appears not to be an
envisaged or desirable solution for the Government of Kenya, which regularly makes statements about
the burden its Somali refugee population places on t he country, and has made it clear that the only
opportunity it sees for them is repatriation.52 As described above, UNHCR facilitated the voluntary
repatriation of southern Sudanese refugees from Kakuma following the signing of the 2005 CPA
between the Sudans, but this has largely been unsuccessful, and has since been halted due to large
numbers of new arrivals from South Sudan flowing into the camp fleeing ethnic violence. Rwandan
refugees in Kenya will likely soon face proposals of repatriation, since the country is deemed by the
international community to now be safe, and the Rwandan government has requested their return from
neighbouring countries and for UNHCR to invoke the cessation clauses for Rwandan refugees. Very
few of Kenyas refugees are actually able to return to their country of origin, especially its
predominantly Somali population.
The role of resettlement
Of the three durable solutions, resettlement is often the only real option for refugees in Kenya. Yet,
it is an opportunity limited to just a fraction of Kenyas refugees less than one per cent. 53 Amongst
refugees and asylum seekers, the term durable solutions is often synonymous with resettlement, or
used as a eu phemism when requesting resettlement. 54 Resettlement to a third country is generally
highly desired by refugees, but for many remains a dream. Jansen describes how this dream has been
fostered through resettlement programmes in Kakuma, during which resettlement has become highly
visible through the posting of refugees ration card numbers on not ice boards calling them for
resettlement interviews and the flights departing the camp carrying individuals and families who have
been selected for resettlement. The dream is made even more tangible through modern technologies
50
Pavanello et al, 2010: 15.
51
Campbell, 2006, Urban refugees in Nairobi, 400.
52
Long, 2011.
53
According to UNHCR figures for 2011, 0.6 per cent of the countrys refugee population was resettled in 2011.
UNHCR, 2012a.
54
While refugees and asylum seekers may not directly request resettlement, knowing that this is not normally favourable
with refugee agencies, they might say that they are looking for durable solutions. Discussions with staff at Kituo Cha
Sheria, 25 July 2012; with staff at the US Resettlement Support Centre (RSC), 7 July 2012. Even those who are not
recognised as refugees or have not entered the RSD process may be familiar with the language associated with refugee
situations such as durable solutions and draw upon this language strategically when seeking support.
449
Hannah Elliott
such as international telecommunications, the internet and international money transfer, through which
refugees in the camp are able to communicate with their lucky friends and relatives abroad. Jansen
argues that this creates an environment in the camp that encourages refugees to cheat and negotiate
vulnerability through insecurity claims; resettlement is viewed as so mething that can actively be
attained rather than an option only for the most vulnerable few.55 Agencies are constantly navigating
this environment, trying to uphold their credibility with UNHCR or resettlement countries by
identifying which refugees are indeed the most vulnerable. The result is a palpable culture of disbelief
or doubt, whereby refugees are often assumed to be strategically bending the truth in order to be
resettled. At the same time, this culture is strongly felt by refugees, who resent having to perform
vulnerability to prove their eligibility for resettlement under the critical eyes of agency staff, and feel
that they are constantly suspected of lying or cheating with agencies trying to catch them out so as to
dismiss their claims.
4. The Resettlement Landscape In Kenya

History of refugee resettlement from Kenya
There have historically been two channels through which refugees are resettled from Kenya: due to
protection needs where no alternative solution can be identified, and through resettlement programmes
targeting specific groups. In cases of referrals due to protection needs, these may be identified by
UNHCRs functional units 56 such as the Protection and Community Services Units or implementing
partners who are working with refugees in a supportive capacity (e.g. providing legal aid, food aid,
accommodation, etc.) and see that an individual or family has protection needs that cannot be met any
way other than resettlement. In addition, there are avenues through which refugees can make their
protection needs known to UNHCR or implementing partners via visiting UNHCRs protection unit in
Nairobi on desking days (days when officers from UNHCR units are able to receive refugees in
person in order for them to raise any issues they may have) or via field post in the camps (similarly to
desking days, UNHCR units each have an assigned day when officers are available to receive refugees
in person to discuss any issues). Refugees in both Nairobi and Kakuma may also communicate any
protection needs with the police, who may then refer the case on t o an appropriate UNHCR unit.57
Diagrams in Annexes 4 a nd 5 pr esent the pathways through which refugees may be resettled from
Kakuma and Nairobi.
Resettlement programmes shift according to current political situations and agendas. Towards the
end of 2000, 3,800 southern Sudanese unaccompanied minors known as the Lost Boys were resettled
to the U.S. from Kakuma under the United States Refugee Programme (USRP). In 2003, 15,000
Somali Bantu refugees were resettled from Kakuma. 58 As described below, in recent years refugees in
Kakuma and Dadaab have been prioritised for resettlement according to their year of arrival in order to
address the protracted refugee situation in Kenya.
During interviews with refugees and asylum seekers, references were sometimes made to
corruption within the resettlement system during the late nineties / early 2000s, whereby refugees who
were to be resettled had their cases stolen or sold to others who were able to go in their places. 59 The
55
Jansen, 2008, Between vulnerability and assertiveness.
56
UNHCRs functional units comprise of the Protection Unit, the Community Services Unit and the Resettlement Unit.
57
Communication with Resettlement Officer, Kakuma, 16 October 2012.
58
Jansen, ibid.
59
Leila and Mohamed [Somali], interview Nairobi, 27 July 2012; Yusuf [Somali], interviewed Nairobi, 28 July 2012; Sagale
[Somali], interviewed Nairobi, 28 July 2012; James [South Sudanese Dinka], interviewed Nairobi, 27 August 2012.
450
possibilities for this kind of fraud have more recently been limited by biometric registration systems. 60
There were also allegations of fraud within the resettlement system around this time which were made
publicly known following an investigation by the UN Office of Internal Oversight Services, requested
by UNHCR. The investigation revealed that up to 70 U NHCR employees in Nairobi accepted
monetary bribes from refugees seeking resettlement in third countries.61 Since, checks and balances
have been put in place to limit opportunities for corruption.62
Contemporary resettlement situation
In 2011, 3,581 refugees departed Kenya to be resettled in a third country and 10,518 refugees cases
were submitted for resettlement. 63 Of those who departed, the vast majority (2, 083) were resettled to
the U.S., 541 to Canada, 329 to Sweden, 208 to the U.K., 182 to Australia, 81 to the Netherlands, 58 to
Norway, 10 to New Zealand, and 89 to other countries.64 Generally, the U.S. and Canada are deemed
the biggest players in resettlement, followed by Australia, the UK and Sweden.
While the U.S. is by far the most significant country of resettlement based on the numbers of
refugees it resettles, the process of resettlement to America is renowned amongst UNHCR, other
refugee agencies and refugees alike to be long and often drawn-out. This is in large part due to the
extensive security checks required by the Citizenship and Immigration Service (CIS). 65 UNHCR and
implementing partners refer cases to be resettled to the U.S. via the Resettlement Support Centre
(RSC) in Nairobi. RSC caseworkers are then responsible for carrying out interviews with these
refugees, and gathering the information required by the U.S.s Immigration and Naturalisation Service
(INS), which then select refugees for interview based on the information gathered. At the same time,
CIS conducts security checks on each of the cases. Through this process, refugees are rarely resettled
to the US within a year, and Somali refugees usually face a significantly longer waiting period as
compared to other nationalities.66 UNHCR states that the average processing time between
resettlement submission and departure of non-Somali refugees in Kenya stands at 358 days, but that
for Somalis this processing time takes 617 days.67 These figures are heavily skewed towards US
figures, given the numbers of refugees the US resettles.
Numbers of refugees resettled by European countries, as shown in Annexes 4 and 5, appear to be a
drop in the ocean. European countries do offer UNHCR important alternatives to the U.S., however;
although the U.S. offers more than enough resettlement places, it is unable to process cases quickly,
even in emergencies such as immediate protection needs or medical issues. European countries, on the
other hand, are in special circumstances able to resettle cases in a matter of weeks, or sometimes even
days. Sweden is renowned as the fastest country of resettlement, and has been able to turn cases
around within as little as one to two days.68
60
Interview with Resettlement Officer, Kakuma, 18 September 2012.
61
Kirby, 2002,Crime did pay in Kenyan UN office.
62
Such as protection panels, which ensure that staff from different UNHCR units assess the appropriateness of resettlement
as a durable solution for an individual or family. Interview with Resettlement Officer, Kakuma, 18 September 2012.
63
see Annexes 2 and 3 for tables showing numbers of refugees submitted for resettlement and actual departures from 20072012, showing numbers according to Kenyas refugee population
64
see Annex 3 f or a breakdown of refugee departures to different third countries for 2007-2012 and Annex 2 f or a
breakdown of refugees whose files were submitted for resettlement to different third countries for 2007-2012
65
Interview with Refugee Coordinator, US State Department, Bureau of Population, Refugees and Migration, Nairobi, 11
September 2012.
66
Because of the risks associated with Somalis due to the presence of Al Shabaab in Somalia.
67
UNHCR, 2012c, Updated fact sheets on priority situations for the strategic use of resettlement.
68
Interview with UNHCR Senior Resettlement Officer, Nairobi, 14 A ugust 2012; Swedish Migration Board delegation,
Nairobi, 27 September 2012.
451
Hannah Elliott
Resettlement processes from the camps and Nairobi

Camps
In recent years there have been two streams through which refugees are referred for resettlement from
the camps. Since 2006, UNHCR has been implementing a protracted refugee resettlement programme
from Dadaab and Kakuma camps. Refugees are selected for resettlement interviews based on their
year of arrival, starting with the earliest arrivals from 1992 up to 2006 arrivals. The reason for making
the cut-off year 2006 was in order for the programme to have a boundary and time limit (as opposed to
the year 2006 having any particular significance in itself). Cases are most commonly referred to the
U.S. or Canada, since the numbers are significant and tend not to be urgent. South Sudanese were not
included in the protracted resettlement programme due to the countrys anticipated independence
which officially came about in July 2011.
Alongside the protracted refugee resettlement programme, refugees continue to be considered by
UNHCR according to their protection needs and if there is no solution other than resettlement can be
found for them. 69 This is the only channel through which urban refugees can be referred for
resettlement; resettlement programmes tend only to apply in camps. Refugees can be referred to the
Resettlement Unit via their own self-referral to the Protection Unit or Community Services Unit or via
UNHCRs implementing partners. In addition, refugees may be referred to the Resettlement Unit by
UNHCR colleagues in other units or implementing partner agencies according to their knowledge
about refugees protection needs. Refugees may write and submit letters to UNHCR explaining their
protection needs, which is often seen as a means through which to apply for resettlement. These
letters are supposed to be read by the Protection Unit, which then proposes a solution for the issue,
such as referral to the Kenyan police, camp security, Community Services Unit, etc. In general,
writing letters is not an effective conduit for resettlement, perhaps because it is seen as a way through
which refugees can actively seek resettlement and is a channel not always accessible to the most
vulnerable; refugees who write letters must be literate and have knowledge of English, or else know
someone who can assist them with writing the letter, or even be able to pay for that service.70 In
addition, UNHCR can be understaffed and when swamped with letters may not always read them. In
situations where agency workers (UNHCR units or implementing partners) are unable to see
alternative durable solutions for cases other than resettlement, cases are referred to a protection panel,
constituted of staff from the protection unit, community services unit and field staff through which
cases are discussed and a solution agreed to be it resettlement, relocation to another section of the
camp, relocation to Nairobi, and so on. The panel functions as a system of checks and balances to
ensure fairness in the resettlement process and eradicate any opportunities for corruption, and meets
when a certain number of cases have been referred. On the whole, alternative solutions to resettlement
are found by the panel, and the resettlement unit receives a relatively small number of referrals this
way. 71 Where refugees have entered the resettlement process through a needs or protection-based
channel, if they are unsuccessful at the UNHCR stage they are unlikely to be informed why, since that
would risk information about resettlement criteria leaking to the wider refugee population and people
adjusting their cases accordingly. My impression was that was also the policy where refugees are
rejected resettlement at the stage of interviews with third countries. Not being informed why one is
rejected resettlement is, understandably, incredibly frustrating for refugees.
69
The pathways through which refugees may be resettled are presented in a diagram in Annex 4.
70
Interview with UNHCR Resettlement Officer, Kakuma, 18 September 2012.
71
452
In Dadaab, the protracted refugee resettlement programme has been significantly delayed due to the
current security situation in the camp, 72 as discussed below. In Kakuma, the protracted refugee
resettlement programme is currently coming to an end, and is to be replaced with a more traditional,
protection-based resettlement programme. 73 This programme will involve colleagues in the
community service unit carrying out needs-based assessments of refugees, from which refugees
potentially in need of resettlement can be identified for referral to the resettlement unit. The reasoning
behind this process being conducted by the community service unit as opposed to staff in the
resettlement unit is to avoid arousing refugees awareness that the needs-based assessment is a channel
for resettlement, and adjusting their statements accordingly. UNHCR is constantly faced with the
challenge of rendering the resettlement selection process as credible as possible. 74
Nairobi
In Nairobi, refugees may be referred to UNHCRs Resettlement Unit via UNHCRs functional units
(Protection Unit or Community Services Unit) or via UNHCRs implementing partners. Some
implementing partners have resettlement referrals to UNHCR and agencies with memorandums of
understanding with third countries to refer refugees to them directly (bypassing UNHCR) as part of
their mandates, whilst others would only make referrals in situations where they identify extreme
need. The Refugee Consortium of Kenya (RCK), for example, as well as mainly dealing with the
provision of legal assistance to refugees, also refers clients for resettlement. RCK may refer clients to
UNHCR, as well as to partners who are able to make direct referrals to countries of resettlement, for
example HIAS (to Canada 75), and Refuge Point (to the U.S.). 76 Kituo Cha Sheria, also a legal aid
agency, has a co llateral agreement with UNHCR to refer cases to UNHCR for further investigation
vis--vis possibilities for resettlement. 77 Heshima Kenya, an organisation concerned with the
protection of unaccompanied refugee children and youth in Nairobi, would refer services users to
UNHCR only in cases of extreme insecurity. 78 The reasoning behind agencies such as Refuge Point
and HIAS having memorandums of understanding with the larger resettlement countries is in part in
order to ensure that vulnerable individuals who cannot be reached by or gain access to UNHCR can
still be given opportunities for resettlement, and in order to help those resettlement countries to reach
their resettlement targets. This is mainly a service targeting urban refugees as opposed to taking place
in the camps, 79 and operates through other support programmes such as food and medical assistance or
psycho-social support. Here, opportunities for resettlement are not usually made explicit, though most
refugees are quite aware that these opportunities exist. As in Kakuma, at the UNHCR offices in
Westlands, Nairobi, there is a facility through which refugees can submit letters describing their
challenges in Kenya, though interviews suggested that refugees are rarely given responses. Generally,
fewer cases are referred for resettlement from Nairobi. This is in part due to the Kenya offices
reluctance to resettle urban refugees, preferring to refer them to the camps unless they have high
profile cases, such as targeted persecution, or medical issues.80 In addition, urban refugees are felt to
72
Interview with UNHCR Resettlement Caseworker, Kakuma, 18 September 2012.
73
UNHCR, 2012c; interview with UNHCR Resettlement Officer, Kakuma, 18 September 2012.
74
75
Though HIAS is exploring establishing an arrangement whereby it can also support the U.S. with meeting its resettlement
needs and refer cases directly to the U.S., because Canada has in recent years curtailed its resettlement numbers, thus
reducing funding to HIAS.
76
Interviews with RCK, 20 July 2012; Refuge Point, 24 July 2012.
77
Interview with Kituo Cha Sheria, 26 July 2012.
78
Interview with Heshima Kenya, 18 July 2012.
79
Though in the camps staff may be seconded to support UNHCR with resettlement referrals, such as RSC and Refuge Point.
80
Interview with UNHCR Senior Resettlement Officer, Nairobi, 14 August 2012.
453
Hannah Elliott
be less vulnerable than camp refugees, except in cases whereby refugees might face persecution within
the camps, such as because of their sexual orientation. For a summary of the resettlement process from
Nairobi, see diagram in Annex 5.
Decision making
In the camps and Nairobi there is no standard resettlement process by UNHCR, which operates on a
case by case basis. Refugees may be called for a number of interviews before a decision is made on
their eligibility for resettlement. Once cases are found to be eligible for resettlement and UNHCR has
identified a p otential country of resettlement, UNHCR issues the refugee with a su bmission letter
which states which country they have been recommended to. In Kakuma, in situations where an
individual or family is suspected of fraud with regards to their resettlement case (such as inventing or
fabricating an insecurity claim), UNHCR will keep the case on hold, conducting further interviews or
investigations and, if the case continues to appear suspicious, ultimately referring the case to an
oversight panel which conducts its own investigations. Should it be concluded that the refugee(s) in
question are guilty of fraud, they are called to the office of the Resettlement Officer and informed that
their case has been rejected for that reason. Officially, UNHCR has a sanctions system which excludes
refugees from the resettlement process for three to twelve years, though this is not always
implemented. 81 If refugees have cases pending with UNHCR, they may enquire about the status of
their case at UNHCR field posts in Kakuma 1 and 3 sections of the camp, held every Friday morning.
Field posts are run by two UNHCR resettlement caseworkers, who are able to check on refugees
cases via connecting to an online database. Caseworkers are able to serve 45 refugees, who gain a
place in the queue by taking a token from the field post a week earlier which entitles them to be seen
the following week.
Resettlement from Kenya in recent years has largely taken place from Kenyas (and indeed the
worlds) largest refugee camp, Dadaab. UNHCRs targets for resettlement were high due to the vast
numbers of refugees living in Dadaab, many of whom were protracted cases; in 2011, 10,000
individuals were targeted for resettlement, with 8,000 of those refugees selected from Dadaab.
However, heightened insecurity in Dadaab over the past two years has led a number of countries to
withdraw their personnel from conducting resettlement interviews in the camp, curtailing UNHCRs
target figures from Kenya in 2012 to 3,750, with only 750 refugees coming from Dadaab. 82 This has
created a real challenge for UNHCR, as r esettlement countries scramble for refugees from a m uch
smaller pool of candidates in order to meet their resettlement quotas. Furthermore, many of Dadaabs
protracted refugees are most in need of resettlement, but remain largely inaccessible. UNHCR has
been exploring alternative methodologies through which refugees submitted for resettlement can be
accessed by interviews for third countries, including video conferencing (piloted with Canada in July
2012). 83 In addition, PRM, U.S. State Department has provided funding for the transfer of 2,000
Somali refugees from Dadaab to Kakuma, facilitated by IOM, for processing by RSC, which has not
been allowed to access Dadaab for the past two years. Plans are currently in place for the construction
of shelters in Kakuma to accommodate these families and individuals as they are being processed for
resettlement to the U.S. Alternatives were also found for Sweden, which interviewed around 250
refugees from Dadaab in September 2012 in Nairobi, funding IOMs operation of securely
transporting two cohorts of refugees to Nairobi by bus, 84 and accommodating them in IOMs transit
centre near Wilson Airport. These measures are of course costly, and, in the case of Sweden, meant
81
82
Interview with UNHCR Senior Resettlement Officer, Nairobi, 14 August 2012. Countries are unlikely to be willing to
resettle refugees on a dossier basis, since the security risks associated with Somalis has rendered face to face interviews a
requirement.
83
UNHCR, 2012c.
84
The road from Dadaab is highly dangerous, with frequent attacks by bandits.
454
that the numbers of refugees requested for submission by UNHCR was curtailed from 350 to 300 (50
of the refugees were selected from Nairobi) because the cost of transporting and accommodating them
was simply too high. In addition, the cultural orientation programme which takes place during the
selection mission was cut from three days of classes to just a one hour session.85
5. European Countries Resettlement Processes From Kenya

Overview
In 2012, t hree EU member states carried out selection missions in Kenya: Sweden, the UK and the
Netherlands. Sweden has been conducting selection missions in Kenya since 2009 and has prioritised
the Horn for resettlement for the past two years (previously priority was given to the Middle East).
The Netherlands have been resettling from Kenya on a r egular basis since 2007. Denmark has not
conducted selection missions in Kenya for the past two years, but did so in 2010, during which 124
Congolese and two Burundians were selected for resettlement.86 At the time of this reports
completion, the UK Home Office was unable to provide information about the history of the countrys
resettlement from Kenya. Other EU member states carry out resettlement from Kenya on a dossier or
emergency basis according to UNHCRs requests, but it was not possible to capture this data since
records tend to show the refugees countries of origin as opposed to country of first asylum. 87 Dossier
submissions are typically made through UNHCRs regional hub office in Nairobi. A number of
European countries allocate a proportion of their annual quota to dossier and emergency cases which
can be turned around in a relatively short space of time. As described above, this is an important
facility for UNHCR and urgent cases, and is particularly highly valued since it is not offered by all
resettlement countries. Of Swedens worldwide resettlement quota of 1,900, about half is reserved for
dossier cases, and 350 of them are reserved specifically for emergency cases.88 For the Netherlands, of
its global quota of 500, 100 resettlement positions are reserved for medical cases and family
reunification. 89 The UK has no specific quota for emergency or medical cases, but can accept up to 40
cases via Romanias Emergency Transit Centre in Timisoara and three per cent of its quota for
emergency medical cases. 90 On a d ossier basis, UNHCR need only submit a file on the refugee
individual or family, which is considered by the country of resettlement to be adequate information for
the resettlement process to go ahead. However, in certain cases countries do require doing a face to
face interview. Sweden, for example, must interview Somali refugees before accepting them for
resettlement, even in case of an emergency, and the Netherlands is currently piloting video
conferencing with refugees who are submitted for resettlement on a dossier basis.91
Referral and selection processes
For non-dossier or emergency cases, the resettlement process to European countries begins with the
countries announcing their plans to conduct missions in Kenya, and the number of refugees they
intend to select for resettlement. This communication tends to occur in January following decisions on
85
Interview with Swedish Migration Board delegation, Nairobi, 27 September 2012.
86
Email correspondence with the Danish Immigration Services, 27 September 2012.
87
France, Switzerland and Finland resettle on an ad-hoc dossier basis from Kenya. IOM Operation Manager for non-U.S.
movements, interviewed Nairobi, 10 August 2012.
88
89
Interview with Netherlands COA, Nairobi, 30 August 2012.
90
Know Reset data on the United Kingdom. www.knowreset.eu
91
Interviews with Swedish Migration Board delegation, Nairobi, 27 September 2012, and Netherlands COA, Nairobi, 30
August 2012.
455
Hannah Elliott
global resettlement quotas for the following fiscal year, and often involve giving UNHCR relatively
short notice ahead of the missions.92 The exception here is Sweden, which announced its quota for the
following year to UNHCR in December and its plans to conduct its selection mission in the spring
(though this was postponed to September due to the security issues in Dadaab).93 UNHCR sends the
resettlement country a questionnaire requiring specification of the kinds of cases the country is looking
for. Sweden, on U NHCRs recommendation, specified that it wished to select 350 Somali refugees,
with the majority residing in Dadaab. All cases to be resettled to Sweden are required to need
alternative protection, described as otherwise in need of protection in Swedish alien law. This
includes vulnerable families (including female-headed families), minority groups (in the Somali case,
minority clans and religious minorities), and medical cases (though medical cases are also required to
have additional protection needs).94 Following an initial plan to also resettle Somalis from Dadaab, the
UK this year specified that it only wished to select Ethiopian Oromo refugees for resettlement from
Kakuma and Nairobi, and instead of resettling from Dadaab selected Congolese refugees from
Tanzania. 95 At the time of this reports completion, the Home Office was unable to provide
information about the kinds of cases prioritised by the UK for resettlement. The Netherlands specified
that it w ished to resettle non-Somali refugees. 96 Otherwise, priority is given to victims of trauma,
women at risk and medical emergencies.97 In addition, the Netherlands seeks a balanced caseload,
consisting of families, women at risk and single men, and refugees integration potential is a
determining factor of their selection.98
On receiving the completed questionnaire, UNHCR goes about identifying cases to submit to the
country of resettlement in response to the requirements that have been specified, and Resettlement
Referral Forms (RRFs) for each case selected. 99 RRFs have seven sections, including information on
the country of origin, and there is currently some debate on whether all this information is needed for
all resettlement countries and whether the referral process can be streamlined to save time and
resources. 100 The referral process can be rushed for UNHCR, especially since they tend to be shortstaffed at the beginning of the year. 101 Cases may have been earmarked ahead of countries announcing
their missions, but it is an objective of UNHCR to have pools of RRFs prepared in advance, even if at
the time of completion no potential country of resettlement has been identified. This lesson was
learned this year, when the UK specified that it required Oromo cases, and there was a lack of Oromo
cases prepared for referral since there are often challenges around resettling Oromo to UNHCRs
biggest customer, the U.S. 102 UNHCR was thus this year faced with preparing over 200 RRFs for
Oromo refugees in Kakuma and Nairobi for submission to the UK at relatively short notice.103
92
Interview with Refugee Coordinator, US State Department PRM, Nairobi, 11 September 2012.
93
94
95
Interview with British High Commission, Nairobi, 10 August 2012; with IOM Operations Manager for non-US
movements, Nairobi, 10 August 2012.
96
According to COA, the decision to select non-Somali refugees was based on the already significant numbers of Somalis
seeking asylum in the Netherlands irregularly, and a t endency to experience difficulties with Somalis legal claims,
especially around family compositionInterview with Netherlands COA, Nairobi, 30 August 2012.
97
Government of Netherlands, 2011 Chapter on the Netherlands, UNHCR Resettlement Handbook 2011.
98
99
100
Interview with Refugee Coordinator, U.S. State Department PRM, Nairobi, 11 September 2012.
101
This is due to their contracting of International Catholic Migration Commission (ICMC) personnel whose contacts tend to
be 6 monthly and come to an end by December 31st. Interview with Refugee Coordinator, US State Department PRM,
Nairobi, 11 September 2012.
102
Oromo often fail to clear U.S. security checks due to the countrys material support clause of the Patriot Act, put in
place by the Bush Administration in the wake of 9/11. The clause specifies that no individual who has provided material
support to any terrorist organisations, which includes rebel movements seeking to overthrow ruling governments, shall
456
On receiving the RRFs, countries process the forms, and conduct security checks on the cases.
Countries may carry out their own screening on the cases based on their own excludability criteria and
processes if they differ from UNHCRs. For example, the UK will do their own exclusion assessment
on receiving the RRFs, and the Netherlands brings an exclusion expert with them on the selection
mission. Sweden, on the other hand, tends to rely upon UNHCRs exclusion criteria, and only seeks
further consultation with UNHCR if during an interview with a refugee there is some contradictory or
inconsistent information to that on the RRF. 104 If at the pre-mission stage countries screen out any of
the cases referred by UNHCR based on their own excludability criteria or security checks, they may
contact UNHCR to request submission of additional RRFs in order for the country to meet their
resettlement quotas. For Sweden, no cases were screened out at this initial stage this year.105 The
Netherlands did not specify the number of cases that were screened out at this stage, but of the 80-100
forms they requested, 70-80 refugees were selected for resettlement. One Oromo refugee informant in
Kakuma reported receiving a su bmission letter from UNHCR stating that his case had been
recommended to the Netherlands, but was not contacted by the Netherlands for an interview,
suggesting that this case would have been removed at the initial screening stage.106 The British High
Commission in Nairobi was not aware of the number of cases submitted by UNHCR to the UK that
were rejected by the Home Office, which was unable to provide this information at the time of the
reports completion. 107
Once the RRFs have been screened and verified, countries communicate to UNHCR which
refugees will be interviewed during their selection missions, and arrangements for the mission are
made accordingly. This year, Sweden conducted all interviews for the 250 Somali refugees from
Dadaab and 50 Somali refugees from Nairobi in the IOM transit centre in Nairobi (numbers curtailed
by 50 due to costs, as explained above). Interviews were conducted by a delegation from the Swedish
Migration Board. 108 The Netherlands conducted its mission in Kakuma and Nairobi, interviewing 30
non-Somali refugees from Kakuma and 50 from Nairobi. The delegation consists of the Immigration
and Naturalisation Service (IND), which assesses refugees legal claims, the Central Agency for the
Reception of Asylum Seekers (COA), which conducts social intake interviews during which
refugees integration potential is assessed and information is gathered to create a social file for each
individual for use in the cultural orientation, reception and introduction programmes on arrival in the
Netherlands, and a medical doctor who conducts a medical assessment for each interviewee.109 In
recent years, the UK has been spreading the selection of the number of refugees it pledges to resettle
from Kenya across two to three missions. 110 This year, the UK pledged to resettle 140 Oromo in
Kakuma and 90 in Nairobi, and during its most recent mission in Kenya in June selected 128 refugees
from both sites. The delegation consists of officers from the UK Borders Agency (UKBA) of the
Home Office. 111 In Nairobi, refugees are interviewed at the IOM transit centre, and in Kakuma,
interviews are conducted in the IOM resettlement processing centre situated in the Kakuma 2 section
(Contd.)
be able to enter the U.S. This has caused many Oromo refugees to be disqualified from resettlement to the U.S. based on
their (often tenuous) support of the Oromo Liberation Front (OLF), a separatist group promoting the self-determination of
the Oromo people of Ethiopia, labelled by the Ethiopian government as a terrorist organisation.
103
104
105
106
Abdi [Oromo], interviewed Kakuma, 22 September 2012.
107
Interview with British High Commission, Nairobi, 10 August 2012.
108
109
Interview with Netherlands COA, Nairobi, 30 August 2012; information on Netherlands resettlement on EU Resettlement
Network website.
110
Interview with British High Commission, Nairobi, 10 August 2012.
111
Resettlement Inter-agency Partnership, 2004, Understanding resettlement to the UK.
457
Hannah Elliott
of the camp. 112 In some cases, slight changes can be made to those refugees who are to be interviewed
ahead of the mission. Sweden, for example, received notification a f ew days before its mission to
Kenya that five emergency cases would be submitted for resettlement. The delegation conducted
security checks on these cases during the selection mission, and all five cleared. Due to the costs
involved in the mission this year for transporting refugees from Dadaab, the submission of the
additional five cases meant that some refugees on the original list were removed to accommodate the
emergency cases. 113 Because those withdrawn were a f amily, and two cases did not show up to the
interview, 114 the number of refugees interviewed was curtailed to 295 (i.e. it was not possible to
interview 300 cases as planned).
Post-selection
Sweden makes decisions on the cases interviewed during the mission, and once all interviews have been
completed holds a meeting with UNHCR to discuss the decisions made. This year, Sweden accepted all
295 refugees interviewed for resettlement. The delegation from the Swedish Migration Board this year
had the technology to communicate directly with its alien database in Sweden and the municipalities to
which the refugees will be resettled. They had the equipment to process the travel documents of all the
refugees in country during the selection mission, and deposited the emergency alien passports for the
refugees with UNHCR towards the end of the mission. Residence permits take longer to process and are
produced in Sweden, but should reach the Swedish Embassy in Nairobi for delivery to UNHCR within 3
weeks. This new system has rendered the Swedish Embassy redundant in the resettlement process, and
makes the resettlement process more efficient, reducing the time that the selected refugees await
departure.115 That said, the sticking point is the availability of appropriate accommodation in the
municipalities, especially for medical cases. Since most refugees are resettled in northern Sweden, where
the concentration of advanced university hospitals is significantly lower than in the south, it can be
difficult to find municipalities which can meet the needs of those with medical cases. In addition,
challenges are encountered when trying to resettle refugees with disabilities, since ground floor
accommodation or apartment blocks with elevators are not always available. For this reason, the Swedish
Migration Board currently faces a backlog of cases t o be resettled within the year; at the time of the
study, around half of the cases t o be resettled that year were yet to depart. Since any refugees not
departing by 31st December are carried over to the following year, filling up that years quota, it is an
urgent priority of the Swedish Migration Board for as many refugees as possible to depart by the end of
the year. Originally, the group of 295 r efugees selected from Kenya were intended to be resettled in
January 2013, y et due to delays on t he resettlement of refugees from other regions, the Swedish
Migration Board is now aiming to have resettled them by the end of the year. The five urgent cases
remain a priority, as do a number of other cases pending their security situation in Dadaab. As explained
above, Swedens cultural orientation programme this year consisted of a one hour session, which
included a 15 minute video about life in Sweden and a brief explanation about air travel. In previous
years, the cultural orientation programme has been conducted over a three day period, conducted by
teachers from the municipalities in Sweden where the refugees would be resettled. 116
112
Interview rooms were funded by the U.S. and are labelled RSC interview room 1, 2, 3, etc. since they are mostly used by
RSC, but may be used by delegations from any resettlement country.
113
114
One no-show was a family member who had gone missing. The rest of the family were interviewed. The other no-show
was a Nairobi-based refugee who had been called on several occasions, but appears to have chosen not to attend. Without
an interview, refugees are not accepted for resettlement. Interview with Swedish Migration Board delegation, Nairobi, 27
September 2012.
115
116
458
The Netherlands accepted around 70 r efugees, the majority of cases interviewed, during their
mission this year, and held a meeting with UNHCR at the end of the mission to discuss the decisions
made. All of the refugees selected will be resettled to the same municipality, Freisland, where refugees
from Kenya were also resettled the previous year. A pre-arrival phase of six months duration
follows the selection mission. This includes three cultural orientation courses, each conducted over
four days. Across all of the cultural orientation sessions, 30-40 per cent of the time is allocated to
Dutch language lessons, on the premise that language is the most important tool for integration. This
year, COA has piloted additional language lessons for the refugees residing in Nairobi, led by
volunteer teachers from the Netherlands. Refugees in Nairobi who were seen to experience difficulties
in the language classes were identified for two additional language lessons per week between cultural
orientation courses, held at the IOM transit centre. For the stronger students, one additional language
class per week is taken. The additional lessons are voluntary, but the majority of refugees are keen to
take them up. T he first cultural orientation session is carried out six to eight weeks following the
selection mission (this year held in July) the second around a month later, (this year in August), and
the final session around a month prior to departure (this year held in mid-October). In addition to
Dutch language, the cultural orientation courses feature information sessions about various aspects of
life in the Netherlands. The first course focuses on life at the national level, the second at the level of
the municipality the refugees will be resettled in, and the third at the personal or family level. Subjects
taught include Dutch law, human rights issues, education, health, traffic rules and regulations,
budgeting and shopping and income. During the courses, refugees are closely monitored and their files
kept up to date with any information required by the municipality in which they will be resettled.
During breaks between sessions, trainers spend time talking with individuals on a one-to-one basis,
especially those who appear to be struggling to keep up during the classes. In the final session,
refugees are advised of the housing they will be given, and are shown the accommodation via Google
Earth. They are also given information about their nearest medical facilities, and the schools their
children will attend. This year, departure is scheduled for November. The Netherlands Embassy deals
with the processing of the refugees travel documents. 117 IOM conducts a fit for travel check for all
refugees, but the Netherlands does not conduct a full medical screening until arrival, including for
TB. 118 On arrival, refugees are hosted in a hotel near Schiphol airport and undergo 48 hours of checks,
which include the medical screening, and during which their photographs and fingerprints are taken.
Following the checks, they are taken to the municipalities, from where further cultural orientation
takes place, conducted by the local authorities and local NGOs. This year is the second year to carry
out this post-arrival programme; until the beginning of 2011, resettled refugees on a rrival would be
hosted in a resettlement centre for 6 months before being transferred to the municipalities. During this
programme, cultural orientation pre-departure was just one four-day session, since the majority of
cultural orientation would be delivered from the resettlement centre.119
The UK also accepted the majority of refugees interviewed for resettlement, rejecting just three or
four. 120 During the selection mission, refugees biometrics and photos are taken, medical assessments
are conducted by IOM, and the data is left with the embassy in Nairobi. The decision-making process
is conducted from the UK, following which the decisions are communicated with UNHCR and the
embassy in Nairobi and travel documents are prepared for the refugees selected and deposited with
IOM. Refugees usually travel in groups of around twenty, and are resettled together in the same area.
They are taken to the IOM transit centre, where final medical checks by IOM are conducted before
departure to ensure that they are fit to travel and free from TB. 121 Sometimes refugees require medical
117
118
Interview with IOM sub-office manager, Kakuma, 23 September 2012.
119
This programme was delivered for four years, and the shift came about with a ch ange of government. It was felt that
direct transfer to the municipalities was better for refugees integration.
120
Interview with the British High Commission, 10 August 2012.
121
The UK does not refuse any individual entry on medical grounds but refugees may not travel if they have TB.
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Hannah Elliott
escorts, and these are provided by IOM. Prior to departure, the refugees receive cultural orientation
training for a day. The cultural orientation focuses on personal hygiene, how to use flush toilets, baths
and showers, how to conduct oneself on an aeroplane and what to expect on arrival. The time between
interview and departure is short usually between one and two months. Further cultural orientation is
delivered post-arrival.
Experiences of UNHCR and implementing partners of European resettlement
Interviews with UNHCR and implementing partners suggested that European resettlement is highly
valued due to countries abilities to resettle cases in short spaces of time and their systems of allocating
portions of their quotas to dossier cases and emergencies. However, agencies can experience difficulties
around the time and resources spent meeting the resettlement needs of European countries relative to the
number of refugees that European countries resettle. This was also expressed from the perspective of
U.S. State Department PRM, which experiences a lull in resettlement referrals at the beginning of the
year because UNHCR channels all of its resources into responding to the missions of European
countries. UNHCR operates in this way because, in spite of long security checks, the U.S. will accept
large numbers and is relatively open as compared to European countries, which are often deemed to be
more choosey. The U.S. in particular then tends to get a surge of referrals towards the end of the year,
once all European resettlement places have been filled. As mentioned above, this is partly a h uman
resources issue on UNHCRs part, since the contracts of many of its staff come to an end in December
which means they are understaffed at the busiest times of the year. Since the U.S. is UNHCRs biggest
resettlement customer, the prioritising of European countries which resettle much lower numbers can
seem illogical. 122 Nevertheless, especially for cases urgently requiring resettlement, or groups or
nationalities which are less likely to be accepted by the U.S., such as Oromo and Eritreans, 123 UNHCR
feels that prioritising European countries resettlement needs is important and necessary. This can result
in a h ectic first half of the year as r eferrals are being made, until European countries missions are
completed and quotas are filled, including for dossier and emergency cases. Thereafter, UNHCR is able
to continue referring cases to RSC, and faces the difficult situation of keeping any new emergency cases
that arise on hold as they await the new fiscal year to begin referring to European countries again. This
can be particularly stressful, since some of these cases may be in life-threatening situations, and yet there
tend to be no immediate opportunities for resettlement in the second half of the year. The only way to
begin addressing this issue would be for those countries which offer resettlement on a dossier basis to
significantly increase their dossier and emergency quotas in order to make options available for
emergency cases throughout the year. 124 In addition, European countries providing UNHCR with more
prior warning ahead of missions would enable UNHCR to plan more effectively for the coming year.
Spacing missions throughout the year would allow UNHCR to spread its time more evenly between the
various countries resettling from Kenya. This may involve communication between European countries
conducting resettlement, so that they can plan their various missions through the year accordingly. 125
IOM reported similar challenges around working with European countries, each of which has its
own systems and schedules which can prove cumbersome to deal with when the numbers actually
resettled are relatively few. Except for the UK, which budgets for its resettlement programme three
122
Interview with Refugee Coordinator, PRM, Nairobi, 11 September 2012; discussions with RSC caseworkers between
June and September 2012. The Refugee Coordinator, PRM, commented that he repeatedly reminds UNHCR that no
business survives that gives preference to the smallest customer.
123
Due to any associations or affiliations with the Eritrean Peoples Liberation Front (EPLF), also based on the material
support clause referenced above.
124
125
Interview with Refugee Coordinator, PRM, Nairobi, 11 September 2012.
460
years in advance, European countries provide IOM with very tentative hints about the numbers they
might resettle when at the planning stage for the following year. 126
Kenyas resettlement infrastructure, which European countries are able to use to meet their own
resettlement quotas, is almost entirely funded by the U.S. Although this is logical, since the U.S. is
UNHCRs and IOMs biggest customer in resettlement, there is a sense that European countries
should be more committed to supporting this infrastructure financially, since it depends upon it for its
resettlement requirements. As it stands, should the U.S. stop resettling from the region, this
infrastructure could not be maintained with the relatively insignificant and ad hoc funding that
European countries provide; there is a sense that European funding could not be depended upon for
IOMs operations. For example, total funds from European resettlement allow IOM Nairobi to employ
only two full-time national staff to manage operations to European countries.127 In addition, because
European countries tend to provide little notice on their resettlement numbers, IOM can be forced to
adjust its operations at the last minute, likely incurring further costs.128
IOM can also experience some challenges around a lack of standardised procedures from
European countries. For example, some countries require thorough medical checks from IOM, while
others do not. While the UK and Denmark have a no-travel policy if a refugee is infected with TB,
Sweden, the Netherlands, Norway and Finland do not. The Netherlands brings their own medical
doctor who checks refugees at the selection mission stage for reasons of efficiency. 129 While all
refugees undergo fit for travel checks before departure regardless of their destination, this is not
enough to diagnose more complex health issues. A standard medical examination for all refugees
which would help prevent outbreaks, better screening to avoid complications in flight and prevent
problems after arrival. 130 Similarly, there is no standard procedure around cultural orientation. This
is in large part because different countries have different ideas around what cultural orientation
should involve, reflected in the very different programmes and curriculums taught as described
above for Sweden, the Netherlands and the UK. In situations where a small number of refugees are
resettled ahead of a larger cohort due to an urgent need to leave Kenya, countries may contract IOM
to conduct the training. The Netherlands, for example, asks IOM to do four days training with
refugees who are not able to participate in its own extensive cultural orientation programme and
provide IOM with a curriculum. 131 Although the Netherlands would fund this directly, the time
spent by the manager of cultural orientation at IOM is not accounted for, since such requests have
an ad hoc nature. 132 This is again an example of how implementing agencies must respond to
European countries needs around resettlement on an ad hoc basis, using resources which are largely
funded by larger resettlement actors.
While European countries are highly valued for their capacity to take dossier and emergency
submissions and for the speed with which they can resettle refugees, they are also perceived as being
somewhat choosey about the refugees they accept for resettlement, and not necessarily according to
individuals and families vulnerability. For example, the UKs decision this year to only take Oromo
refugees from Kenya and the Netherlands request for non-Somali refugees were experienced
126
Interview with IOM Operations Manager for non-U.S. movements, 10 August 2012.
127
It was noted the salaries of whom alone are likely higher than the total funding IOM receives from European
countries on an annual basis.
128
129
Communication with COA, Netherlands, 10 October 2012.
130
131
132
Interview with Canadas Cultural Orientation Abroad Global Project Manager, Nairobi, 10 August 2012. The position of
the manager of cultural orientation at IOM is funded by Canada because Canada is IOMs biggest customer in terms of
cultural orientation. In the past IOM has conducted cultural orientation for refugees being resettled to the U.S., but the
contract is currently held by CWS who also have the contract for RSC.
461
Hannah Elliott
problematically by UNHCR, since third countries seen to be favouring or discriminating against

specific ethnic groups undermines UNHCRs efforts to make resettlement appear fair and entirely
according to need and causes refugees to complain about what they perceive as bias and racism (see
following section). 133 Countries assessing the integration potential of refugees were also criticised,
since they tend to select refugees according to their education levels and language skills as opposed to
on a needs-based assessment. 134
Few agency staff interviewed were aware of any changes yet brought about by the Joint European
Resettlement Programme (JERP) which was passed through the European Parliament in March 2012.
However, UNHCRs Senior Resettlement Officer in Nairobi noted that the German Embassy in
Nairobi had recently requested a meeting with UNHCR to discuss resettlement from Kenya for the
following year, which she suggested was a response to the JERPs identification of Kenya as a priority
country of first asylum from which to conduct resettlement.
6. Refugee Narratives, Perspectives And Experiences Of Resettlement

Resettlement has become a highly desired commodity for refugees both in camp and urban settings;
resettlement is often perceived as something that is attainable or can be actively achieved. While those
refugees and asylum seekers interviewed recognised that resettlement is something that refugees
should need as opposed to desire, the majority had strong narratives and claims which depicted
themselves as in need of resettlement. This is not something that should necessarily be disputed or
questioned; undoubtedly refugees in both camp and urban settings are forced to live in extremely
challenging circumstances. However, some refugees are of course more vulnerable than others, and
these are the individuals and families who are sought out by UNHCR and implementing partners.
The following subsections explore the resettlement contexts in Nairobi and Kakuma and the
narratives, perspectives and experiences around resettlement of those refugees who were interviewed
across the two sites.
Who seeks resettlement?
A situation of generalised insecurity in Kakuma or Nairobi is not considered sufficient grounds by
UNHCR for the resettlement of refugees; rather, refugees should have a protection need that is specific
to them as individuals or families in order to be referred for resettlement. However, the majority of
refugees want resettlement since, regardless of individual circumstances, life in both the camps and
Nairobi is extremely challenging and many hold onto the dream of a b etter life abroad. Because
refugees are aware to an extent of the reasons refugees are referred to be resettled in a third country
i.e. extreme vulnerability or insecurity it is not uncommon for refugees to negotiate
vulnerability, 135 highlighting their cases of insecurity and sometimes embellishing these situations.
Agencies also spoke of refugees sometimes creating situations of vulnerability in order to get
resettlement.
Who does not seek resettlement?
Very few informants had no interest in resettlement, or had not explored at least some means through
which to obtain it. All of the refugees interviewed in the camp were acutely aware of resettlement;
weekly postings of ration card numbers of refugees called for resettlement interviews with UNHCR,
133
Interview with UNHCR Senior Protection Officer, Kakuma, 19 September 2012
134
Interview with UNHCR Senior Resettlement Officer, Nairobi, 14 August 2012
135
Cf. Jansen, 2008.
462
RSC and delegations from resettlement countries as well as frequent flights departing out of the camp
carrying refugees selected for resettlement makes resettlement a highly visible practice on almost a
daily basis. A minority of the refugees interviewed in Nairobi, however, were less resettlement aware
or savvy. Four of the South Sudanese refugees interviewed in Nairobi had little to say about
resettlement, and were much less familiar with the language of resettlement. One Somali young
woman working for an NGO in the city who had waited two years for feedback from an interview with
RSC suggested that she had no inclination to waste any more time and energy chasing up her case, and
that she would rather remain in Nairobi than stress herself with pursuing resettlement. 136 An interview
with one Oromo informant highlighted how very vulnerable refugees may not have the capacity to
seek out resettlement; his mandate expired in 2004 and he claimed not to have returned to the UNHCR
office since to renew it due to his anxieties around travelling far from home. 137
How is resettlement sought?
A number of informants in both Kakuma and Nairobi seemed to have made attaining resettlement a
project to actively work on through certain practices or methods, such as regular visits to UNHCR and
implementing partners, writing letters to submit to the UNHCR offices and collecting papers
documenting their suffering, mistreatment or the unfairness of UNHCRs policies and practices. It is
important to note that for refugees, in camps especially, who may have little control over their lives,
daily engagement with such a project may be one of the few ways they feel able to gain some agency
or autonomy, and maintain some hope in an otherwise bleak situation. Saida, a Somali refugee and
single mother making a l iving in Nairobis Eastleigh selling foodstuffs such as ghee and dried meat
from an open-air stall, said that since she received her mandate she has sought assistance from
numerous agencies, including Kituo Cha Sheria and RCK, 138 telling them of the challenges she faces
in Nairobi, since that is a way through which one might be referred for resettlement. 139 A number of
Congolese refugees spoke of writing letters to UNHCR describing their hardships in Nairobi. One
informant described writing letter after letter, week after week, until he lost heart after never receiving
a single reply. 140 In Kakuma, there was more evidence of group action, likely because of the close
proximity within which refugees live. A group of South Sudanese Dinka informants, for example,
showed me a letter complaining of the lack of resettlement opportunities for South Sudanese since
independence, requesting that UNHCR reconsider granting them resettlement.141 An Oromo informant
informed me that a group of 50 refugees of Ethiopian nationality from one section of the camp who
had arrived between 1992 and 1999 and yet remained in the camp whilst other such early arrivals had
since been resettled submitted a letter to UNHCR to remind the agency of their protracted situation.142
Similarly, a Burundian refugee told me of collective action by himself and ten other Burundians whose
resettlement cases had long been pending with UNHCR without being informed why; the group went
directly to talk to the Resettlement Officer in the UNHCR compound. 143
136
Asha, interviewed Nairobi, 25 July 2012.
137
Boru, interviewed Nairobi, 16 July 2012.
138
Three informants mentioned that RCK had referred their cases and that they expected this to be to HIAS, recommending
them for resettlement, although they were not advised of this. None of them, however, had received any further feedback,
and felt that the organisation had given them false hope. Naima [Oromo], interviewed Nairobi, 21 July 2012; Fatuma
[Somali], interviewed Nairobi, 11 August 2012; Saida [Somali], interviewed Nairobi, 26 July 2012.
139
Saida, interviewed Nairobi, 26 July 2012.
140
Joseph, interviewed Nairobi, 28 August 2012.
141
Interviewed Kakuma, 20 September 2012.
142
Jarso, interviewed Kakuma, 21 September 2012.
143
Thomas, interviewed Kakuma, 19 September 2012.
463
Hannah Elliott
Some informants reported seeking resettlement through family reunification, but failing due to
tenuous biological relationships. This could have ramifications for refugees resettlement chances later
down the line. Abdullahi, for example, a refugee residing in Nairobi but officially registered in
Kakuma, reported his family attempting reunification with a cousin in the U.S. in 2006 but failing at
the DNA test. Although they had arrived in Kenya in 1992, a nd thus should have been referred for
resettlement some time ago based on their protracted situation, the reunification case stalled their
resettlement case, which was only reactivated this year, and due to their failure to the U.S. they had
been referred to Canada.144 Another Somali informant, this time in Kakuma, recounted how her family
had attempted reunification with a family friend who had been resettled in the U.S., and to do so had
changed their family name, year of arrival and reported only having resided in Nairobi. Having passed
through interviews with RSC, UNHCR was required to retrieve the familys file. This required giving
their fingerprints, at which point it was realised that they had been registered with different details. As
punishment for fraudulent activity, on return to Kakuma the family were told that they would be put to
the bottom of the pile for the protracted resettlement programme in spite of being amongst the earliest
1992 arrivals to Kenya.145 Since, their case has remained pending. Five out of ten South Sudanese
refugees in Nairobi (of both Dinka and Nuer ethnicities) spoke of a form which they had completed
in Kakuma in 2004/5 which sought resettlement in Australia through reunification with South
Sudanese people in the diaspora. These individuals were not usually relatives but shared the same
ethnic group as the refugees. All of the informants had received rejection letters from the Australian
embassy. 146 One informant mentioned paying $50 t o employ somebody to help him complete the
form. 147 Refugees desires and even desperation for resettlement can itself render refugees vulnerable
to scams, as well as manipulative or even violent family relations. Saida described contacting relatives
who had been resettled in Australia requesting them to call for her as a family reunification case. The
relatives responded that she would need to marry a r elative, whom she had not met but had heard
negative things about. When she refused to marry, they cut contact with her. 148
Selection stage
Many more refugees seek resettlement than are actually successful in achieving it. Refugees were
found to have a variety of explanations for why some refugees are successful and others are not, or
why some refugees go through the selection process and depart within a relatively short space of time
while others can wait for a number of years. Some Oromo refugees in Nairobi noted that those who
fled Ethiopia with documentation that proved their persecution had a better chance of being
resettled, 149 although one who had formerly worked for an Oromo rights organisation and claimed to
have carried documents had waited over ten years for resettlement, and attributed this to being
received by national staff as opposed to international staff at UNHCR. 150 Some of the Oromo refugees
interviewed in Nairobi were known by Oromo rights activist Dr. Trueman, who had highlighted their
individual cases to UNHCR and recommended them for resettlement.151
144
Abdullahi, interviewed Nairobi, 26 July 2012.
145
Zahra, interviewed Kakuma, 23 September 2012.
146
Angelina, interviewed Nairobi, 13 A ugust 2012; James, interviewed Nairobi, 27 August 2012; Daniel, interviewed
Nairobi, 27 August 2012; Sam, interviewed Nairobi, 27 August 2012; Esther, interviewed Nairobi, 27 August 2012.
147
Sam, interviewed Nairobi, 27 August 2012.
148
Saida, interviewed Nairobi, 26 July 2012.
149
Abdikadir, interviewed Nairobi, 16 July 2012; Galgallo, interviewed Nairobi, 16 July 2012; Hussein, interviewed Nairobi,
17 July 2012; Malik, interviewed Nairobi, 17 July 2012.
150
Ibrahim, interviewed Nairobi, 17 July 2012.
151
Said, interviewed Nairobi, 21 July 2012; Galgallo, interviewed Nairobi, 16 July 2012; Ibrahim, interviewed Nairobi, 17
July 2012.
464
A number of informants also explained selection and rejection of refugees as occurring unfairly.
Unfairness was explained in a n umber of ways. Some refugees suggested that resettlement occurs
arbitrarily and that selection was largely based on chance or luck. 152 This was often expressed in
relation to the officer one was received by; refugees in Kakuma in particular claimed that national staff
were less sympathetic or willing to help refugees than international staff, sometimes because Kenyan
staff were jealous of refugees resettlement opportunities and would thus sabotage their cases. 153
Unfairness was also articulated as being because UNHCR and resettlement countries favoured
particular nationalities or tribes. This was particularly strongly articulated by informants in Kakuma;
because of the proximity in which refugees live and the visibility of resettlement, refugees are acutely
aware of who is and who is not being resettled the majority of informants commented that the U.K.
only wanted Oromo refugees, for example. 154 In Nairobi, such comments were less common, though a
number of Congolese Banyamulenge said that they felt that UNHCR and resettlement countries were
biased against them since they tended to select other nationalities and even Congolese tribes. 155
Favouring certain ethnic groups was often accounted for by South Sudanese and Ethiopian Nuer
refugees as being racist; informants pointed out that brown refugees such as Oromo and Somalis
were being resettled but black refugees were not, even if, like the Ethiopian Nuer, they shared the
same nationality with those who were being resettled, like the Oromo. 156 Some informants asserted
that other refugees bought or stole other peoples resettlement places, especially in the camps,
including peoples forms. 157 Camp informants also commented that some refugees fake situations of
insecurity, 158 or would change their ethnicity strategically having observed that certain ethnic groups
were more favoured than others. 159 Some refugees also cited mistrust of UNHCR, 160 or suspicion of
corruption within the organisation, as being behind resettlement decisions. 161 An Oromo informant in
Kakuma presented me with a n ewspaper article from 2008 entitled Kenyans fall prey to refugee
registration scam, describing how Kenyan Somalis were posing as Ethiopian refugees in order to be
resettled. Annotated underneath the text was written UNHCR is the most corrupt organisation in the
world. By a mistreated refugee.162 Two Oromo refugees mentioned that they had even come to
152
Joseph [Congolese], interviewed Nairobi, 28 August 2012; Fatuma [Somali], interviewed Nairobi, 11 August 2012.
153
Hassan [Somali], interviewed Kakuma, 19 September 2012; Arthur [South Sudanese Dinka], interviewed Kakuma, 20
September 2012; Nicholas [Ethiopian Nuer], interviewed Kakuma, 20 S eptember 2012; Julius [Amhara], interviewed
Kakuma, 21 September 2012.
154
Hassan [Somali], interviewed Kakuma, 19 September 2012; Joyce [Burundian], interviewed Kakuma, 19 September
2012; Lam [Ethiopian Nuer], interviewed Kakuma, 20 September 2012; John [Ethiopian Nuer], interviewed Kakuma, 20
September 2012; Michael [Ethiopian Nuer], interviewed 20 S eptember 2012; Nicholas [Ethiopian Nuer], interviewed
Kakuma, 20 S eptember 2012; Stephen [South Sudanese Nuer], interviewed Kakuma, 20 S eptember 2012; Julius
[Amhara], interviewed Kakuma, 21 September 2012.
155
Andre, interviewed Nairobi, 21 August 2012; Juliet, interviewed Nairobi, 22 August 2012.
156
Lam [Ethiopian Nuer], interviewed Kakuma, 20 S eptember 2012; Nicholas [Ethiopian Nuer], interviewed Kakuma, 20
September 2012; John [Ethiopian Nuer], interviewed Kakuma, 20 S eptember 2012; Joshua [South Sudanese Dinka],
interviewed Kakuma, 20 September 2012. South Sudanese in Kakuma claimed to feel that UNHCRs racism was a more
logical explanation for South Sudanese being excluded from group resettlement programmes than the official explanation
i.e. South Sudans independence.
157
Leila and Mohamed [Somali], interviewed Nairobi, 27 July 2012; Yusuf [Somali], interviewed Nairobi, 28 July 2012; Sagale
[Somali], interviewed Nairobi, 28 July 2012; James [South Sudanese Dinka], interviewed Nairobi, 27 August 2012.
158
Discussion with Dinka refugees, Kakuma, 20 September 2012.
159
Stephen [South Sudanese Nuer], interviewed Kakuma, 20 S eptember 2012; Jilo [Oromo], interviewed Kakuma, 21
September 2012; Yusuf [Somali Bantu], interviewed Nairobi, 28 July 2012.
160
Abdikadir [Oromo], interviewed Nairobi, 16 July 2012; Malik [Oromo], interviewed Nairobi, 17 July 2012;
161
Adan [Oromo], interviewed Nairobi, 21 July 2012; Jarso [Oromo], interviewed Kakuma, 21 September 2012.
162
Jarso, interviewed Kakuma, 21 September 2012.
465
Hannah Elliott
suspect some staff at UNHCR to be agents of the Ethiopian government. 163 South Sudanese Dinka
refugees expressed suspicion that the Lost Boys resettlement programme was halted before completion
because 9/11 occurred when U.S. immigration officers were carrying out a mission in the camp; the
events in New York caused them to leave and they never came back. 164
These explanations, although seemingly irrational, do not arise out of nowhere, although I should
add that this does not mean they are accurate reflections of the way UNHCR operates in Kakuma or
Nairobi. Especially for the Oromo, a history of persecution may lead refugees to mistrust and be
paranoid about the activities of all authorities.165 Similarly, for South Sudanese and Ethiopian Nuer
who have come from countries where their people have been discriminated against racially, it is
understandable that these refugees would make sense of their apparent unfair treatment through the
frame of race. In addition, many refugees have come from contexts where corruption is part of
everyday business, and so to suspect agencies of engaging in corrupt activities around resettlement is
quite rational. Accusations that national staff are more likely to behave corruptly than international
staff may be because corruption is assumed to be more prevalent on the continent than in the global
North. Corruption accusations may also be a legacy of the resettlement scandal of 2000. In addition, a
general perception of UNHCR as working against refugees may be fostered by its role around RSD;
from arrival in Kenya, asylum seekers are interviewed and their claims questioned and judged by
UNHCR. 166 This goes some way towards explaining why UNHCR may receive such strong criticism
from refugees as compared to implementing partners, which are able to focus their time and resources
on supporting refugees as opposed to determining whether they qualify to receive their support or not.
Accusations of corruption, inhumanity and mistreatment by UNHCR are used by refugees to make
sense of the often frustratingly slow processes they undergo with the agency, not only for those who
have resettlement cases but also for those who are seeking the most essential protection tool and
prerequisite to resettlement, the mandate.
Resettlement interviews stage
Most refugees commented that the resettlement interview with UNHCR was much like that of RSD,
mainly exploring the reason for flight, but with additional questions around challenges faced in Kenya.
In Kakuma especially, a number of refugees commented that they had been called for the same
interview on more than one occasion, where they were asked the same questions, likely because there
were some inconsistencies or contradictions in their accounts that UNHCR needed to verify. For
refugees in Nairobi, this can be stressful financially, since they may have to pay public transport costs
in order to attend multiple interviews. A couple of informants noted, with reference to both the RSD
process and resettlement interviews, that it was natural that their stories would be inconsistent
considering the trauma they had been through and the time that had passed since they fled their
countries of origin, and that UNHCR should be more mindful of this. 167 One Oromo informant in
Nairobi commented that within his community it was popularly felt that interviews with UNHCR and
resettlement countries actively tried to catch them out, especially when it came to questions around
OLF support. 168
163
Hussein, interviewed Nairobi, 17 July 2012; Ibrahim, interviewed Nairobi, 17 July 2012.
164
Dinka group discussion, Kakuma, 20 September 2012.
165
This point is made with regards to the Oromo context in Trueman (2010).
166
Konzolo, 2010: 11.
167
Gufu [Oromo], interviewed Kakuma, 21 S eptember 2012; Jonathan [Congolese], interviewed Kakuma, 21 September
2012.
168
Galgallo, interviewed Nairobi, 16 July 2012.
466
Congolese Banyamulenge refugees in Nairobi expressed concern that during interviews with
UNHCR (for both RSD and resettlement) and resettlement countries their stories were not being
accurately translated; interpreters tend to be Rwandan Kinyarwanda or Kirundi speakers, languages
which are closely related but not identical to the Banyamulenge mother tongue Kinyamulenge. 169
One informant was rejected resettlement to a country170 following his interview, and felt that this was
because of inaccurate translation; the interview with UNHCR was conducted in Kiswahili,171 and went
well, but during the interview with the resettlement country officers the interviewer responded badly,
even though he gave the same account as in the interview with UNHCR. 172
Pending cases
A significant number of refugees had had an initial resettlement interview with UNHCR but then had
not received any feedback for many months, or even years. 173 In such situations, refugees are able to
enquire about the status of their cases at field post, though some reported receiving contradictory
information from caseworkers. 174 One informant mentioned that one week he would be told that there
was backlog, another time that his case was pending, and not fully understanding the meaning of
these terms. 175 Where informants cases were pending, three in Kakuma asserted that UNHCR should
just come out and tell them what the problem was, expressing the psychological and practical
difficulties of living in limbo. 176 One informant said that she felt that UNHCRs claim that her
familys case was at panel was an attempt to fob them off, and that shed rather they just told them
directly whether they were successful or not. 177 Another described how he had felt unable to make any
future plans or travel out of the camp because it was possible that he might be called for an interview.
In his opinion, UNHCR kept refugees in limbo because they were afraid to upset them by telling them
the truth: that they had been rejected for resettlement. 178 Two informants were critical of field post,
expressing suspicion that it was established simply to keep refugees away from the UNHCR
compound and deceive any visitors to the camp that everything was in order.179 For refugees whose
cases have moved beyond UNHCRs assessment and selection process, queries about their cases may
not be answerable at field post, as the cases are now with the countries of resettlement to which they
have been referred.
169
David, interviewed Nairobi, 21 August 2012; Andre, interviewed Nairobi, 21 August 2012; Juliet, interviewed Nairobi, 22
August 2012. One Burundian Tutsi informant in Nairobi also suggested that she was rejected the mandate when she first
came to Kenya because of a problem with the interpreter. Sarah, interviewed Nairobi, 21 August 2012.
170
The country will not be mentioned for confidentiality reasons as requested by the informant.
171
Some Congolese refugees speak Kiswahili, though Congolese Kiswahili is distinctive from Kenyan Kiswahili.
172
David, interviewed Nairobi, 21 August 2012.
173
Joyce [Burundian], interviewed Kakuma, 19 September 2012; Thomas [Burundian], interviewed Kakuma, 19 September
2012; Elias [Oromo], interviewed Kakuma, 21 September 2012; Jilo [Oromo], interviewed Kakuma, 21 September 2012;
Ahmed [Oromo], interviewed Kakuma, 22 September 2012; Zahra [Somali], interviewed Kakuma, 23 September 2012;
Julius [Amhara], interviewed Kakuma, 21 September 2012; Juliet [Congolese], interviewed Nairobi, 22 August 2012.
174
Thomas [Burundian], interviewed Kakuma, 19 S eptember 2012; Gufu [Oromo], interviewed Kakuma, 21 S eptember
2012; Elias [Oromo], interviewed Kakuma, 21 September 2012; Jilo [Oromo], interviewed Kakuma, 21 September 2012;
Jarso [Oromo], interviewed Kakuma, 21 S eptember 2012; Ann [South Sudanese Dinka], interviewed Kakuma, 20
September 2012; Abdi [Somali], interviewed Kakuma, 19 September 2012.
175
Gufu [Oromo], interviewed Kakuma, 21 September 2012.
176
Such comments were also made with regards to decisions about the mandate.
177
Zahra [Somali], interviewed Kakuma, 23 September 2012.
178
Thomas [Burundian], interviewed Kakuma, 19 September 2012.
179
Jilo [Oromo], interviewed Kakuma, 21 September 2012; Jarso [Oromo], interviewed Kakuma, 21 September 2012.
467
Hannah Elliott
A number of refugees who had gone through interviews with RSC and INS had waited for long
periods of time without any information about their cases,180 as UNHCR was not always able to
inform them of the status of their cases. Only one informant mentioned communicating with INS via
email with the help of an English speaker from his community. 181 For refugees referred by UNHCR to
European countries, acceptance is more likely and if they are unsuccessful, refugees are informed
within a short space of time. That said, one informant who had been recommended for resettlement to
the Netherlands was not called for interview, which implies that his case was rejected by the
Netherlands at the initial screening stage. He expressed anger and frustration to have seen others be
interviewed without being informed why he was not called himself. He claimed to have enquired with
UNHCR about this without receiving an answer. 182
A number of other informants felt, or had been informed by UNHCR, that their complex family
situations were causing their cases to be put on hold. 183 Many refugees have come from contexts
whereby orphaned or abandoned children are absorbed into other family units, whether these are part
of extended family configurations or wider clan networks. These tend not to be recognised by UNHCR
or countries of resettlement as co nstituting genuine families, which require further investigations to
prove their authenticity. One young Oromo woman in Kakuma reported registering with another
family on arrival having lost her own, since to live alone, especially as a young woman, would not be
advisable or culturally acceptable.184 Later, when it came to being referred for resettlement based on
the familys year of arrival, when it became apparent that she was not related to the family she
registered with, the case was put on hold. Another informant, a Somali woman, came to Kenya with
the family of her fathers second wife (whom she called mother as she lost her mother when she was
very young) after her father was killed in Somalia. The family successfully went through the interview
process with UNHCR and were referred on to RSC, but then stalled at the DNA test with INS which
showed that she was not biologically related to her mother. The family departed for the U.S. without
her and she remains in the camp. 185
Experiences of those being resettled
Those informants who had been accepted for resettlement by European countries generally reported
positive experiences during interviews which were conducted in a friendly and relaxed manner. They
also had a clear sense of the timeframe ahead of them in the build-up to resettlement. Abdikadir, for
example, an Oromo refugee in Nairobi awaiting resettlement to the Netherlands, recounted to me the
dates of the three cultural orientation sessions (one of which he had already participated in), the
content that they would cover in these sessions and the month of his departure.186 Those going through
the resettlement process to the U.S. generally were less clear on the process ahead of them as a result
of the long security checks on their cases. Two refugees had gone through medical checks and cultural
orientation without having any real idea of when they might actually depart, and expressed some doubt
as to whether this would actually ever happen. This situation of limbo was expressed to be
psychologically very difficult. Of the few refugees who were interviewed who were expecting
180
Suleiman [Oromo], interviewed Kakuma, 21 S eptember 2012; Ahmed [Oromo], interviewed Kakuma, 22 S eptember
2012; Muslima [Oromo], interviewed Kakuma, 22 September 2012; Kadija [Somali], interviewed Kakuma, 19 September
2012; Asha [Somali], interviewed Nairobi, 25 July 2012; Sagale [Somali], interviewed Nairobi, 28 July 2012.
181
Ahmed [Oromo], interviewed Kakuma, 22 September 2012.
182
Abdi [Oromo], interviewed Kakuma, 22 September 2012.
183
Elias [Oromo], interviewed Kakuma, 21 S eptember 2012; Amina [Oromo], interviewed Kakuma, 21 S eptember 2012;
Sahara [Oromo], interviewed Kakuma, 22 September 2012; Kadija [Somali], interviewed Kakuma, 19 September 2012;
Angela [Congolese], interviewed Nairobi, 28 July 2012.
184
Amina, interviewed Kakuma, 21 September 2012.
185
Kadija, interviewed Kakuma, 19 September 2012.
186
Abdikadir, interviewed Nairobi, 16 July 2012.
468
imminent departure, none suggested that they were especially more entitled to resettlement than
others, and my impression was that there was a sense that some refugees are lucky and some are not,
and that the system largely remains unfair.
7. Conclusions And Recommendations

Refugee resettlement from Kenya is a complex operation, involving multiple actors and checks and
balances in order to minimise corruption and fraud opportunities and ensure that the most vulnerable
refugees are resettled. Because resettlement is so desired by refugees, in part the result of romantic
notions of life in the west which have become more tangible through new communications
technologies and compounded by the visibility of resettlement (in the camps especially), resettlement
actors are engaged in a constant battle to maintain the credibility of their referrals to third countries
whilst refugees adapt to changing policies and adjust their resettlement or protection claims
accordingly. This results in a cu lture of disbelief within agencies and policies around resettlement
which are experienced by refugees as stringent and draconian, explained and made sense of in multiple
ways, including unfairness, bias and corruption.
Refugees might benefit from clearer communication around the statuses of their cases, especially in
situations where they are pending for long periods. Although it is understandable that UNHCR and
resettlement countries would not communicate the reasons for refugees being rejected resettlement for
purposes of keeping selection criteria secret (so that refugees are not able to mould their cases to these
criteria), not knowing why one was rejected, especially after the stress of going through multiple
interviews, and the resulting lack of closure can be traumatic for refugees. Similarly, where refugees
are screened out when UNHCR submits the RRFs to a country, they might benefit from being
informed of the fact, and advised of why they were not selected for interview. UNHCR and
resettlement countries ought to have high standards when it comes to selecting interpreters and be
mindful of Congolese refugees (especially Banyamulenge) concerns around translation, ensuring that
appropriate interpreters are employed.
For refugees and asylum seekers in Nairobi, support with transport costs to multiple interviews for
both RSD and resettlement would ease the financial pressures on refugees, especially during the
period they await the mandate when they are not entitled to other forms of support from UNHCR or
implementing partners.187 Urban refugees could also benefit should UNHCR establish field offices in
enclaves where numerous refugees reside in which RSD and resettlement interviews could be
conducted.
European countries play an important role in Kenyas resettlement landscape, resettling refugees
from nationalities which may not be considered by bigger resettlement actors and making provisions
for emergency and dossier referrals. European countries should increase quotas for emergency and
dossier referrals in order to meet the resettlement needs of refugees in acute insecurity and medical
situations. European countries coordinating and spacing their missions throughout the year would
enable UNHCR to spread its attention more evenly between resettlement countries and avoid having to
channel all of its resources into meeting the resettlement requirements of European countries at the
beginning of the year to the detriment of larger resettlement actors. If European countries coordinated
their missions together, sending a m ixed team from various countries two to three times a y ear,
UNHCRs preparation for and hosting of these missions would be more time and cost-effective. 188
European countries would also make IOMs work easier to plan and manage should they provide more
notice on the numbers they intend to resettle each year.
187
An exception is Jesuit Relief Services (JRS) food aid to newly arrived asylum seekers.
188
Interview with Refuge Point, 24 July 2012.
469
Hannah Elliott
UNHCR and implementing agencies would also benefit from more standardised policies of
European countries; as it stands, countries each have their own policies and requirements, and meeting
them can prove cumbersome, especially due to the small numbers of refugees that these countries
resettle and the relatively little funding they provide for these numbers, which is often subject to
change. UNHCR would save significant time and resources should there be an agreement between all
resettlement actors about what information is required in the RRF; currently, UNHCR completes all
forms with the maximum information required since it is not always clear which countries these forms
will be submitted to. Information on t he political situation in refugees countries of origin, for
example, could probably be removed from the form, since all countries have information and
publications on these countries from their own foreign offices. UNHCR would also benefit from more
notice from European countries about their resettlement numbers and the dates of their missions in
order to target the RRFs more effectively, tailoring each to the needs of the country of submission. 189
In order to assist UNHCR with its human resources issue, European countries could share a small
clerical office in Nairobi with a Kenyan team through which to channel RRFs, coordinate selection
missions and arrange interviews. This would be more cost-effective than employing UNHCR staff,
who are often overqualified for this kind of work. 190 Standardised medical procedures would also help
to reduce the risk of outbreaks, complications in flight and health problems on arrival.
European countries might benefit from sharing best practices on resettlement, including on how to
conduct missions and on cultural orientation programming. Countries could learn from each other by
sending personnel to shadow other countries resettlement missions in Kenya and cultural orientation
classes. This would also apply to countries which currently do not regularly resettle refugees, or at
least do not currently carry out selection missions in Kenya.
189
190
470
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Websites cited
Department of Refugee Affairs www.refugees.co.ke
EU Network Resettlement: www.resettlement.eu
Know Reset www.knowreset.eu
List of interviews cited
Agencies
RCK staff, Nairobi, 20 July 2012
Kituo Cha Sheria staff, Nairobi, 25 July
UNHCR Senior Resettlement Officer, Nairobi, 14 August 2012
UNHCR Senior Protection Officer, Kakuma, 19 September 2012
UNHCR Resettlement Officer, Kakuma, 18 September 2012
UNHCR Resettlement Caseworker, Kakuma, 18 September 2012
Refuge Point Deputy Director of Operations, 24 July 2012
Heshima Kenya co-founder, 18 July 2012
IOM Operation Manager for non-U.S. movements, Nairobi, 10 August 2012
IOM Sub-office Manager, Kakuma, 23 September 2012
Canadas Cultural Orientation Abroad Global Project Manager, 10 August 2012
Government of Kenya
DRA official, Nairobi, 11 September 2012
472
European consulates / delegations / immigration services

Swedish Migration Board delegation, Nairobi, 27 September 2012
Netherlands COA, Nairobi, 30 August 2012
British High Commission, Nairobi, 10 August 2012
U.S. Refugee Programme
RSC staff, Nairobi, 7 July 2012
Refugee Coordinator, US State Department, Bureau of Population, Refugees and Migration (PRM),
Nairobi, 11 September 2012
Refugees
Burundian
Thomas, interviewed Kakuma, 19 September 2012
Joyce, interviewed Kakuma, 19 September 2012
Sarah, interviewed Nairobi, 21 August 2012
Congolese
David, interviewed Nairobi, 21 August 2012
Marc, interviewed Nairobi, 21 August 2012
Juliet interviewed Nairobi, 22 August 2012
Joseph, interviewed Nairobi, 28 August 2012
Andre, interviewed Nairobi, 21 August 2012
Jonathan, interviewed Kakuma, 21 September 2012
Ethiopian Amhara
Julius, interviewed Kakuma, 21 September 2012
Ethiopian Nuer
Nicholas, interviewed Kakuma, 20 September 2012
Lam, interviewed Kakuma, 20 September 2012
John, interviewed Kakuma, 20 September 2012
Michael, interviewed Kakuma, 20 September 2012
Nicholas, interviewed Kakuma, 20 September 2012
Ethiopian Oromo
Boru, interviewed Nairobi, 16 July 2012
473
Hannah Elliott
Ibrahim, interviewed Nairobi, 17 July 2012

Abdi, interviewed Kakuma, 22 September 2012
Naima, interviewed Nairobi, 21 July 2012
Jarso, interviewed Kakuma, 21 September 2012
Abdikadir, interviewed Nairobi, 16 July 2012
Galgallo, interviewed Nairobi, 16 July 2012
Hussein, interviewed Nairobi, 17 July 2012
Malik, interviewed Nairobi, 17 July 2012
Ibrahim, interviewed Nairobi, 17 July 2012
Jilo, interviewed Kakuma, 21 September 2012
Adan, interviewed Nairobi, 21 July 2012
Gufu, interviewed Kakuma, 21 September 2012
Elias, interviewed Kakuma, 21 September 2012
Ahmed, interviewed Kakuma, 22 September 2012
Amina, interviewed Kakuma, 21 September 2012
Sahara, interviewed Kakuma, 22 September 2012
Abdullahi, interviewed Nairobi, 16 July 2012
South Sudanese
Angelina [Nuer], interviewed Nairobi, 13 August 2012
James [Dinka], interviewed Nairobi, 27 August 2012
Daniel [Dinka], interviewed Nairobi, 27 August 2012
Sam [Dinka], interviewed Nairobi, 27 August 2012
Esther [Dinka], interviewed Nairobi, 27 August 2012
Arthur [Dinka], interviewed Kakuma, 20 September 2012
Stephen [Nuer], interviewed Kakuma, 20 September 2012
Joshua [Dinka], interviewed Kakuma, 20 September 2012
Ann [Dinka], interviewed Kakuma, 20 September 2012
Somali
Asha, interviewed Nairobi, 25 July 2012
Fatuma, interviewed Nairobi, 11 August 2012
Saida, interviewed Nairobi, 26 July 2012
Abdullahi, interviewed Nairobi, 26 July 2012
Zahra, interviewed Kakuma, 23 September 2012
474
Hassan, interviewed Kakuma, 19 September 2012

Leila and Mohamed, interviewed Nairobi, 27 July 2012
Yusuf, interviewed Nairobi, 28 July 2012
Sagale, interviewed Nairobi, 28 July 2012
Abdi, interviewed Kakuma, 19 September 2012.
Kadija, interviewed Kakuma, 19 September 2012
Other communications cited
Refugee agencies
UNHCR Resettlement Unit staff member, Dadaab, by phone, 14 July 2012.
UNHCR Resettlement Officer, Kakuma, by email, 16 October 2012.
European consulates / delegations / immigration services
Danish Immigration Services, by email, 27 September 2012.
Netherlands COA, by email, 10 October 2012.
Annex 1. Refugee population in Kenya according to location, 2007-2012
Source: UNHCR, 2012a
475
Hannah Elliott
Annex 2. Refugees submitted for resettlement, 2007-2012
Source: UNHCR, 2012
Annex 3. Refugees departing for resettlement, 2007-2012
Source: UNHCR, 2012a
476
Annex 4. Kakuma refugees: paths to resettlement
Source: The author
477
Hannah Elliott
Annex 5. Urban refugees: paths to resettlement
478

Refugee Resettlement
from Pakistan: Findings from
Afghan Refugee Camps
in the North-West Frontier Province
(NWFP)
Ilyas Chattha


479
KNOW RESET
Research Report
Refugee Resettlement from Pakistan:

Findings from Afghan Refugee Camps
in the North-West Frontier Province (NWFP)
Ilyas Chattha
480

Ilyas Chattha, Refugee Resettlement from Pakistan: Findings from Afghan Refugee Camps in the
North-West Frontier Province (NWFP), KNOW RESET RR 2013/01, Robert Schuman Centre for
Advanced Studies, San Domenico di Fiesole (FI): European University Institute, 2013.

Badia Fiesolana
Italy
481
Programme.
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
482
List of Contents
Abbreviations ..........................................................................................................................................
Abstract ...................................................................................................................................................
Introduction ............................................................................................................................................. 1
1. Definition ........................................................................................................................................ 1
2. Methodology ................................................................................................................................... 1
3. A Profile of Afghan Refugees in Pakistan ...................................................................................... 2
4. Fieldwork Research Sites ................................................................................................................ 3
5. Pashtun Refugees in NWFP: A Vulnerable Community ................................................................ 3
6. Somali and Iraqi Refugees .............................................................................................................. 5
7. Hazara Refugees: Facing Targeted Killings ................................................................................... 5
The Resettlement Process in Pakistan ..................................................................................................... 5
1. Refugee Identification ..................................................................................................................... 6
2. Refugee Registration ....................................................................................................................... 6
3. Personal Refugee Wing Research ................................................................................................... 6
4. Senior Officer Reassessment .......................................................................................................... 6
5. Right to Appeal ............................................................................................................................... 7
What Type of Refugees Register for Resettlement: Women at Risk ................................................... 7
1. Husbands Disappeared/Killed ......................................................................................................... 7
2. Forced Marriages ............................................................................................................................ 7
3. Domestic Violence .......................................................................................................................... 7
4. Loss of Family Members ................................................................................................................ 7
5. Shame Family .............................................................................................................................. 8
6. Run-away Couples....................................................................................................................... 8
7. Hazara Women................................................................................................................................ 8
8. Land Disputes/Feuds ....................................................................................................................... 8
9. Journalists and Interpreters Facing Persecution .............................................................................. 8
10. Members of NGOs Killed or Families in Danger ......................................................................... 8
11. Unaccompanied Minors ................................................................................................................ 8
12. Adult Males in Prisons .................................................................................................................. 9
13. Medical Cases ............................................................................................................................... 9
14. Violence/Torture ........................................................................................................................... 9
15. War Continued .............................................................................................................................. 9
Resettlement: A Time-consuming Process .............................................................................................. 9
EU Countries Scrutiny of UNHCR Submissions ................................................................................... 9
Role of International Organization for Migration ................................................................................. 10
Role of the Pakistan Foreign and Interior Ministries ............................................................................ 10
Role of NGOs and Community Headmen ............................................................................................. 11
Conclusion ............................................................................................................................................. 12
Recommendations ................................................................................................................................. 12
Annex 1. Afghan refugees in Pakistan .................................................................................................. 14
Annex 2. Ethnic breakdown of Afghan Refugees in Pakistan .............................................................. 14
Annex 3. Reasons for not repatriating to Afghanistan in % of Afghans ............................................... 14
483
Abbreviations
HRCP
Human Rights Commission of Pakistan
IOM
JERP
Joint European Resettlement Programme
NOC
NO Objection Certificate
NWFP
North-West Frontier Province
PoRs
Proof of Registration Cards
RRF
Refugee Referral Form
RCA
Refugee Consideration Assessment
SPC
Serious Protection Concerns
SACH
Struggle for Change
SSAR
Solutions Strategy for Afghan Returnees
UNHCR
United Nations High Commissioner for Refugees
USRSP
United States Refugee Resettlement Programme
VRP
Voluntary Repatriation Programme
484
Abstract
This report surveys Afghan refugee resettlement from Pakistan for the Know Reset Project in order to
better understand the processes and practices of the refugee populations resettlement in EU member
states. This involved interviews with various agencies working with refugees as w ell as wi th
individual refugees. The collected source material explains how the Afghan refugee community, living
in different localities in Pakistan, are informed about resettlement policies, and how refugees are
identified and selected and what Afghan refugee groups, if any, are given priorities in the resettlement
processes. The report also examines the role played by local, national and international agencies, such
as UNHCR, Pakistan-based NGOs, including SACH (Struggle for Change), Sharp (Society for Human
Rights and Prisoners Aid), the Human Rights Commission of Pakistan (HRCP) and the International
Organization of Migration (IOM). More specifically we ex amined these organizations as t hey
identified, registered and selected refugees for resettlement. The report also considers how information
about resettlement is disseminated to Afghan refugees in refugee villages, camps or places; how the
refugees are subsequently identified and chosen for resettlement; and how they are assisted in
submitting applications and obtaining security clearance from the Pakistan Interior and Foreign Affairs
departments. We then asked how submissions are then forwarded to the individual EU countries for
resettlement and what selection and scrutiny measures, if any, are adopted by the resettlement
countries. Finally, the report looks at the responses and reactions of the Pakistani government in the
resettlement of Afghan refugees in Europe and beyond. The findings not only add to the empirical
knowledge of resettlement in Pakistan, but offer data to improve the efficiency of resettlement
schemes in individual EU member states.
485
Introduction
1. Definition
Resettlement is one of three durable solutions the other two being voluntary repatriation and local
integration which is offered to refugees who have sought protection in a country where local
integration is not an option, and to those who cannot return to their home country.
2. Methodology
This report relies heavily on oral testimonials. These are drawn from interviews with individual
Afghan refugees in need of resettlement and the involved actors and partners. Interviews with
representatives of UNHCR and members of NGOs were conducted in Islamabad. The interviews with
individual refugees and their spokesmen were conducted at different locations at the refugee camps,
which are locally called refugee villages. More specifically, these were the Khazna Camp, Haji
Camp, Lucky Marwat Camp and UNHCRs voluntary repatriation centre at Hayatabad in the city of
Peshawar in NWFP. All together 25 interviews were conducted that ranged from twenty minutes to
more than an hour: 15 interviews were conducted with individual Afghan refugees and their headmen;
3 in the Lucky Marwat refugee village; 4 in the Khazana Camp; 3 in the Haji camp; and 5 in the
Hayatabad camp. 4 extensive interviews were conducted with UNHCR representatives and 3 with the
members of NGOs in Islamabad. 2 interviews were conducted with local interpreters, who worked in
the Afghan refugee camps and 2 other interviews were conducted with local journalists who were
based in the city of Peshawar, and one long interview was conducted with an academic, who is an
expert on t he impact of Afghan refugees in Pakistan. In addition, a number of informal discussions
were held with the directors and staff of IOM and HRCP. A number of semi-structured interviews
were conducted with the authorities of the Pakistan Interior and Foreign Affairs ministries in
Islamabad, as well as with individual local doctors, journalists and the local UN staff, who have been
working with refugee communities at the grassroots level. In addition, archival source material was
also consulted in the record rooms of Pakistans Foreign Affairs and Interior departments
concerning the complicated and lengthy security checks and clearance for the refugees selected for
resettlement. This is referred to officially as the NOC (No Objection Certificate).
As we shall see, the collected source material has not only provided life and migration histories of
refugee respondents. It has helped us to understand the socio-economic and the physical and cognitive
experiences of refugees as they apply for resettlement, more broadly. The interviews looked for
insights into refugee orientation, awareness and concerns about resettlement in EU member states. The
focus was on different sets of refugees, their experiences of integration in Pakistan and on the practice
of repatriation, as well as on their fears about deportation and registration and selection processes for
resettlement. Source material reveals refugees intentions, aspirations and decisions for resettlement
and consequent preparations. A volunteer Pashtun journalist was engaged in fieldwork research in
Peshawar, not only to access refugee villages, but also for translation purposes. Names of
respondents have been concealed in this report in order to protect their identities. With respect to
placenames such as the North-West Frontier Province (NWFP), I have given the old name, rather than
the new one, Khyber Pakhtunkhwa.
It is necessary to point out at the outset, that there was a great difficulty in getting access to the
Afghan refugee villages, because of growing security concerns. It was almost impossible to interview
female Afghan refugees who, at present, make up many of the refugees, as we shall shortly see. The
figures mentioned in this report are, perforce, based on t he information available in the conducted
interviews. They neither cover the entire spectrum of resettlement from Pakistan, nor the fuller
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experience of the Afghan refugee community. This is especially true in relation to information about
victimisation and women at risk because it proved difficult to record their voices and experiences.
There are also problems concerning the biases in the collected source material. Individuals
sometimes exaggerate experiences for reasons of resettlement and NGOs toned down criticism towards
the Pakistani state authorities and the representatives of UNHCR. It also proved difficult to get access to
the UNHCR representativs in Islamabad and Peshawar for security concerns. In one case, by using every
means at my disposal, it took me one week to fulfil the bureaucratic requirements to satisfy the
conditions for entering Islamabads security red zone to meet up with UNHCR representatives in the
citys heavily-guarded diplomatic enclave. Likewise it proved difficult to approach the members of the
IOM and officials from Pakistans Interior and Foreign Affairs ministries, in part because of
deteriorating security. Despite my repeated explanations about this project and its usefulness, many
respondents were reluctant to contribute. Moreover, despite my constant efforts, I got no information
from EU consulates, embassies and missions in Islamabad, because of the tight security checks in the
capitals diplomatic enclave, where the embassies are based.
The fieldwork, then, was not straight forward. There were many problems ranging from security
concerns in terms of access to female Afghan refugees to security issues in terms of survey and data
collection. Moreover, to make matters worse, refugee headmen as well as the Pakistani authorities in
the interior ministry were uncooperative and sceptical about the scope of the project. Before providing
any information about the resettlement process, many respondents had to be convinced about the
usefulness of this project. Some interviews were not easy despite repeated explanations. The UN has
set up an office in Islamabad and a f ield unit in Karachi, Peshawar and Quetta, but even so
approaching the members of the refugee community was not easy.
Moreover, it must be acknowledged that with this kind of a limited time-frame and with such
scarce resources a f uller understanding of the entire operation of resettlement in Pakistan cannot be
grasped. There are also the difficulties arising from visiting remote refugee villages and from access to
Afghan refugee women, the most vulnerable section of refugee populations in Pakistan and perhaps
the most in need of resettlement. Most Afghan refugees are not educated. And despite the fact that an
interpreter was present at all times difficulties concerning ethnic issues, gender taboos and languages
barriers proved formidable.
3. A Profile of Afghan Refugees in Pakistan
Pakistan has hosted the worlds largest refugee populations. The issue of Afghan refugees in Pakistan is
protracted: it has now been thirty years since the first arrived. Many of these refugees were actually born
and raised in Pakistan, though they are still counted as Afghan citizens. They were allowed to work, to
rent houses, travel and to attend schools in the country until the end of 2012, a deadline set for the
Afghan refugees to return home. Afghan refugees came to Pakistan in three distinct phases. The first and
most important phase began with the Soviet invasion of 1979 and the ensuing decade-long occupation of
Afghanistan (19791989). Following the Soviet Unions withdrawal from Afghanistan in 1989, the lives
and conditions of refugees began to change. The refugees longed for a return to their country and they
began to leave in large numbers. In fact, in six months, more than one million Afghan refugees returned
to their country of origin. This mass repatriation was halted, however, when the various Mujahideen
factions began to fight for power. Then, in the last decade there has been a war against terrorists. As of
October 2012, up to 1.7 million registered Afghan refugees remained in Pakistan, and another 1 million
undocumented Afghans. Annex 1 shows the number of the Afghan refugees in different parts of the
country. Over the years, UNHCR has assisted Afghan refugees to return through its Voluntary
Repatriation Programme. Since 2002, around 5.7 million Afghan refugees have gone back to
Afghanistan or nearly a quarter of the countrys population.
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Refugee Resettlement from Pakistan: Findings from Afghan Refugee Camps in the North-West Frontier Province (NWFP)
4. Fieldwork Research Sites

In Pakistan, there are about 160 Afghan refugee camps or refugee villages. The focus of this report
is the North-West Frontier Province (NWFP), the cities of Peshawar and Islamabad and their
surrounding areas where different sets of Afghans reside. The Peshawar site was chosen in order to
understand the experience of Afghans in the city as well as in the refugee camps and villages outside
the city. According to the 2005 C ensus, NWFP accounted for 61.6 percent (1.88 million) of all
Afghans in Pakistan, and the Peshawar district was home to the largest single concentration of this
population (20.1 percent). The most important camps include Khazna Camp, Haji Camp, and Lucky
Marwat Camp in NWFP. The interviews with individual refugees and their spokesmen were
conducted at these locations as wel l as UNHCRs voluntary repatriation centre at Hayatabad in the
city of Peshawar. They were chosen for fieldwork not only because of the large concentration of
Afghan refugee, but also because of the refugees continued fears of forced deportation to Afghanistan
and police harassment on a daily basis, as most Afghan Citizenship Cards expired in early 2010. Haji
Camp in Peshawar houses a s mall population of Hazara Shia refugees who have faced constant
discrimination and persecution from the Taliban and other anti-Shia groups over the years. These
refugee groups cited particular concerns due to targeted attacks on them, including forced
deportations, because of their Shia ethnic identity.
Some semi-structured interviews were conducted in Nowsheras Jalozai camp, which was set up in
1983: over 100,000 refugees live there. Informants claimed that they faced Taliban persecution due to
their ethnic or religious affiliations (e.g. Shias). More than 25,000 Afghan refugees live in Khazana
Camp now one of the oldest camps in Peshawar, most are Pashtun Afghans who migrated from
Afghanistan in the 1980s. Luckily Marwat Camp (refugee village) is one of the oldest and largest
camps in NWFP: hundreds of thousands of Pashtun refugees live there. They have been living there
over the last thirty years. Interviews with members of this group suggest that the community was not
interested in returning to Afghanistan because their children were born and brought up in Pakistan.
They have a relatively better quality of life as a result of establishing their own local businesses and
agricultural trades. They also have access to housing, education and healthcare services, provided, for
the most part, by UN and other international agencies.
5. Pashtun Refugees in NWFP: A Vulnerable Community
In 2010-11, a UNHCR survey gathered information about 50 percent of registered Afghans refugees:
1.8 million live in Pakistan. The registered population living in Pakistan is 52.6 percent males and 47.4
percent females. About 85 percent of Afghans are identified as Pashtuns, hailing from the Nangarhar,
Kabul, Kunduz, Logar, Paktia, Kandahar and Baghlan areas, while the rest were Uzbeks and Tajiks.
The survey provided information about refugees family histories, regions, tribes, sects, arrival period,
as well as their social-economic circumstances and medical conditions. The survey also assessed the
genuine reasons that prevented various sections of refugees from returning to their homeland in
Afghanistan. One important group of Afghan refugees are the Pashtuns. They are not only identified
as one of the most vulnerable sections of Afghan refugee populations, but they have been living here
for more than thirty years and are still counted as Afghan citizens. Informants recounted that their
houses had been destroyed and that their land had been occupied by members of rival tribes. If they
returned home, their lives would be in danger. The members of this community claimed that they
could be attacked upon repatriation. Members of this community stated that they wanted to go back,
but that they had no place to live there; their land had been occupied by the locals and revenue records
had been destroyed. Some informants stated that their relatives have resettled in some EU countries,
particularly in Norway, under family reunification.
All of the refugees interviewed in the camp were acutely aware of resettlement, while some
respondents stated that they were not much interested in resettlement in Western countries. Their elders
have opposed this option. In fact, they want to live with their tribal traditions and to preserve their culture
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and values. They feel that they would not integrate in an EU country. Some respondents stated that they
would prefer to go to a Muslim country, but there is no Muslim resettlement option. Moreover, members
of Pashtun community cited that they wanted to settle in one place or in one country together. Aftab
Khan, a spokesman of the Pashtun refugee populations in Lucky Marwar camp, described his
communitys difficulties as far as resettlement in an EU country is concerned. We do not want our
women go i n Western countries. I would not send my family to Europe.We can go t o resettle in a
Muslim country, but there is no opt ion for the resettlement. We may go to Muslim countries where
women observer purda (veil).. There were many issues in this community, including run-away
couples and forced marriages. There were reports that members of community had brutally killed
their women who run-away. Many members of this community were involved in Taliban activities.
The community has very strict traditions. For example, women cannot go outside the refugee village
areas. Members of NGOs, human-rights organisations and charities stated that they have little or no
access to Pashtun womenfolk. An assistant director of Pakistan Human Rights Commission even stated:
If they can kill their daughters for running-away; they could easily kill officials and journalists who
would try to approach them. Some young members of this community indicate their intention to resettle
in the EU in search of a better way of life, as some acquaintances have settled there. Few though have
submitted their applications for family reunification.
In Pakistan, these Pashtun refugees have established their refugee villages on the private land of
local people. The Pakistani government wants them to return to Afghanistan. There is mounting pressure
on the government to evict this refugee community. The provincial government faced a great deal of
pressure from local populations who want their land back. Over the years, there have been many clashes
over the possession of land between locals and refugees and creating law and order problems in places.
Children born and raised in Pakistan often consider themselves Pakistani. A young Pashtun refugee
stated: I was born in Lucky Marwat in Pakistan in 1982; I never visited Afghanistan. I am a
Pakistanibut Pakistan wants to send us to Afghanistanin Afghanistan we have no place to liveour
elders are not much interested in resettling in the USThey are too concerned about our women.
Their first preference is to return back to Afghanistan and their land there. As earlier mentioned,
their houses and property in Afghanistan have though been occupied or destroyed, and they, on t he
other hand, have set up housing on the land of local people in NWFP. This community want to settle
en masse. Some of the Pashtun refugees interviewed in the Lucky Marwat camp expressed their
intentions to resettle. Elder members of the community are against resettlement in the EU or in the US.
An assessment officer of UNHCRs resettlement programme noted that our fieldwork workers have
unsuccessfully attempted to convince the members of this community for resettlement. Elder members
of the tribe are against resettlement in the Western countries. She added that they firmly believe in
Pashtun traditions. In the past, many members of this community were recruited by the Taliban,
though now they are not involved. But they still face rigorous security checks both in Pakistan and
Afghanistan. In any case, if the Pakistan government forces them to leave the country which seems
likely in the present circumstances the Pashtun who returned would be in real danger. Pakistan has
issued Proof of Registration Cards (PoRs) to these Afghan refugees that expired 31 December 2012
and the government has not yet decided to extend these cards. While the Pakistani government seems
to be determined to deport these groups, a community headman described how they came to this
country 30 years ago. He also set out how their houses and properties in Afghanistan had been
destroyed or occupied by rival tribes and by the Taliban. Instead, they have established their houses
and businesses in Pakistan, but they have not been given citizenship. Members of this group also
claimed that some refugee families were selected for resettlement and family reunification in
Europe, Australia, Canada and the US.
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6. Somali and Iraqi Refugees

It is worthwhile mentioning here little-studied refugee groups of Somalis and Iraqis who live in
Pakistan. They altogether number several thousands. They live in very poor conditions and cannot
move from one area to another. Despite my best efforts, I was not able to conduct an interview with
members of these groups of refugees. A r epresentative of the UN explained that they could not be
integrated locally in Pakistan. They are vulnerable people. The Pakistan government has confined
these sections of refugees in designated areas.
7. Hazara Refugees: Facing Targeted Killings
One of the most vulnerable Afghan refugee groups in Pakistan are the Hazara refugee families. Their
number is about 500,000 in Pakistan, mainly in Quetta. The ethnic Hazara constituted about 18 percent
of the Afghan population and they were massacred and expelled during the time of the Taliban in
Afghanistan because they are Shia. In Pakistan, over the years they have faced targeted killings and
persecution by Taliban and other anti-Shia groups, such as Lashkar-i-Jangvi. Hundreds of Hazara have
been victimised in Quetta in recent years. Around 900 Hazars were reported to have been murdered,
including women and children, either in suicide attacks or targeted shootings. More than 50,000 have
been displaced internally. This community, as a whole, is in desperate need of protection and
resettlement, as they cannot be repatriated to Afghanistan because of fear of persecution. In Pakistan
this community is under attack from anti-Shia militant groups. This community is facing ethnic
cleansing. Pakistans encampment policy and draconian measures to restrict the countrys refugees
movements in the designated areas curtails opportunities for local assimilation and integration. Local
integration appears not to be an envisaged or desirable solution for the government of Pakistan, which
views Afghan refugees, as a b urden and has made clear that the only option it sees for them is
repatriation. 31 December 2012 was announced as a deadline for the voluntary repatriation of Afghan
refugees from Pakistan. Moreover, repatriation of some refugee groups has been unsuccessful, because
of fears for the security of their families, personal persecution, fear of the cost of building houses and a
lack of work opportunities upon their arrival in Afghanistan. There were several Afghan families in
the Hayatabad Camp in Peshawar who were repatriated to Afghanistan but who then returned to the
camp. A returned refugee recounted his familys return to Peshawar and how he could find neither
shelter nor livelihood in Afghanistan.
Given the circumstances, resettlement is thus an important option for international protection as
well as a durable solution for some sections of refugee groups in Pakistan, when other two durable
solutions, repatriation and local integration, is not practical. In 2011, UNHCR named Pakistan
refugee top priority. As mentioned above, the Pakistan government has threatened it will close
registration for repatriation by 31 December 2012, making it c lear that it would treat all Afghan
refugees as illegal immigrants after the expiry of their PoR. Of the three durable solutions, then,
resettlement is apparently the only real option for some sections of the refugee population in Pakistan.
However, owing to the very limited number of resettlements from Pakistan this opportunity is
realistically just on offer for a fraction of the 1.8 million Afghan refugees in Pakistan.
The Resettlement Process in Pakistan

Most Afghan refugees in Pakistan are unaware of the resettlement scheme. The interviews with
individual refugees and the discussions with UNHCR members confirmed this. All the refugees who
were interviewed in Khazan camps in Peshawar were not aware of the option of resettlement from
Pakistan. The case was much the same in other camps, though some well-informed and educated
young men in the Lucky Marwat camp were aware of resettlement as well as those individual refugees
whose relatives and acquaintances had been selected for this process. In reality, UNHCR little
advertises the opportunity of resettlement. Instead, the agency widely advertises repatriation to
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Afghanistan, highlighting the deadline set by the Pakistan government. The UNHCR Resettlement
officer in Islamabad claimed about 2000 refugees resettled in 2011 f rom the 1.8 million registered
refugees in Pakistan.
In Pakistan, the process of identification for individual refugees for the resettlement programme is
complex. It requires detailed knowledge and documentation of Afghan refugee populations and of
their specific needs and vulnerabilities. As it is an indirect and a complicated process, it requires the
help of community headmen, members of NGOs and the local staff of UNHCR. As I gathered,
through observations, and interviews, selection for resettlement varies greatly and depends on
individual case an d situations. In some cases, the identification for refugees in need of resettlement
comes down to community leaders, UNs local officials and most importantly those doctors/medical
officers who are involved in the treatment of refugee populations at the grassroots level. In other cases,
when the local newspapers highlighted the danger to those journalists and interpreters who worked for
the refugee community, some registrations were made for resettlement. In this way, about 4000
individuals were registered for the resettlement process in the first half of 2012. While most refugees
are referred by members of NGOs, local journalists and the local UN staff, the selection process for
resettlement mainly depends on UNHCRs Refugee Consideration Assessment (RCA). In this process
the social and economic condition of refugees are considered, alongside their difficulties in local
integration and refugees repatriation to Afghanistan. The following is a four-tier process and the
Refugee Consideration Assessment is carried out by UNHCR:
1. Refugee Identification
As mentioned-above, refugee candidates for resettlement are generally picked out initially by
members of NGOs, local journalists and UNHCRs local staff.
2. Refugee Registration
After refugees in need for resettlement have been identified, their registration is made. After taking the
life histories, arrival time, bio-data, and present circumstances of the refugees, three-way criteria of
assessment are launched for resettlement consideration.
3. Personal Refugee Wing Research
This research wing assesses each individual case thoroughly. Apart from considering the social and
economic condition of the refugees, this wing carefully notes whether the identification and
registration processes fall under the actual definition of UNHCR resettlement: namely, that refugees
cannot integrate locally or that they cannot be safely repatriated. UNHCR caseworkers then gather all
the necessary information required for the investigation. After completing this process, this wing
refers the selected cases on to the second stage of resettlement scrutiny, namely the senior officer
reassessment (the UNHCR term).
4. Senior Officer Reassessment
The senior officer carefully reassesses the selected cases for resettlement, including refugees year of
arrival and the bio-data of individual refugees. They then select refugees who are invited for interview to
evaluate their eligibility for resettlement, mainly based on information collected. Refugees are
interviewed based on t he extent to which they need protection and whether resettlement is the only
option. Indeed, priority is given to vulnerable refugee groups, including trauma victims, unaccompanied
children and above all the women at risk and medical emergencies. Once cases are considered to be
qualified for resettlement and UNHCR has identified a potential country of resettlement, the refugees are
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informed to which countries they have been recommended for the resettlement. At this stage, any case
could be rejected, though registered refugees have a right to appeal.
5. Right to Appeal
Upon rejection, refugees can appeal by submitting additional proofs and documents for consideration,
though this takes months. Resettlement from Pakistan is a p rotracted process. As mentioned
previously, in 2011, out of 1.8 million registered refugees in Pakistan, 4000 were registered and only
half of them were finally selected for resettlement.
What Type of Refugees Register for Resettlement: Women at Risk

The resettlement of refugees in Pakistan varies depending on circumstances and individuals. Some cases
for registration for resettlement were taken where entire sections of a refugee community faced danger
and experienced constant sexual harassment. In other cases, refugees were identified and some registered
for the resettlement on medical grounds. Some members of refugee populations were considered for
registration because their family members had been killed or because their lives were deemed in serious
danger. Interviews with refugees and aid agencies working for refugees confirmed this. In addition, a
number of Afghan refugee families were selected for resettlement as part of family reunification in
Europe, Canada, Australia and the US. Some Pashtun informants reported seeking resettlement through
family reunification in EU countries, especially Norway, Sweden, Germany and the UK.
In Pakistan, some refugees are more vulnerable than others: these are naturally given priority in
resettlement. According to UNHCR, in Pakistan over 38 percent of selected refugees for resettlement
to the EU states related to women at risk. Interviews with UNHCR representatives, NGO members,
local journalists and community headmen pointed out 15 types of women at risk (about 38 percent
of all selection cases f or the resettlement from Pakistan to EU countries) who were chosen for
resettlement in 2011.
1. Husbands Disappeared/Killed
In this case, women were chosen whose husbands or other adult members of family had either been
killed during the war or personal feuds/disputes. As a co nsequence, there was, in fact, no other adult
male in the kinfolk, but children/minors.
2. Forced Marriages
In some cases identification and registration of refugees are made when womens husbands disappeared
or when they were killed and their widows are afterward forced to marry other members of the tribe. In
some cases, upon the death of adult males, their young daughters are forced into marriage.
3. Domestic Violence
In this case the selections for resettlement are made when women/wives received repeated husband
beating. Sometimes husbands are addicted to heroin or to other drugs.
4. Loss of Family Members
In this case, registration for resettlement is generally made for those women/wives/daughters, whose
close relatives/guardians were lost in Afghanistan during the war; and as a result they are left alone in
Pakistan and have faced fear, abduction and sexual harassment.
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5. Shame Family
Some refugee families were found who sold their daughters for money; in other cases adult members
of family sold their siblings in order to buy drugs. So these cases are registered for the resettlement for
vulnerable members of these families.
6. Run-away Couples
In this case, selection/registration is considered for those girls/women who were forced to marry
against the will of their family/tribe and who somehow managed to escape their family. As a r esult
their lives remain in constant danger. In a few cases, some girls were threatened with forced marriages
with older members of the tribes.
7. Hazara Women
Some Hazara refugee families, who are Shiites face threats; this includes a su bstantial segment of
refugee women whose menfolk had been killed in sectarian violence over the years by Taliban and
other anti-Shia groups. About 900 Hazaras in Quetta have been murdered in the past few years, mainly
because of their ethnic identity. In some cases, registration for resettlement is made for vulnerable
women who are left behind.
8. Land Disputes/Feuds
Some refugee families have seen their land, houses and property occupied in Afghanistan by members
of powerful locals or military types. It is thought that there is no chance of taking back their occupied
land. These families could not return to Afghanistan, because their property/land either had been
occupied or destroyed. Members of these refugee families are registered. In cases of blood feuds, the
selection for resettling this group mainly comes from the refugee families who had disputes over land
and property. In this regard, menfolk had either been killed or are in prison. Women were left alone
with their families and they faced constant threats to their lives and to those of their children.
9. Journalists and Interpreters Facing Persecution
In a few cases, some journalists who broke the stories of forced marriages, and run-away couples
and other sensitive issues, are considered for resettlement. They receive regular threats to their lives,
not only from refugee tribes/headmen but also, on occasion, from the Taliban. In a similar vein, some
interpreters, who worked with different local and international agencies and NGOs, received threats
and are identified for resettlement registration
10. Members of NGOs Killed or Families in Danger
Members of NGOs working in refugee camps and war fronts were either kidnapped/murdered; their
families now left alone are in danger. Their cases are considered for resettlement registration.
11. Unaccompanied Minors
Selection can also be made for minors whose parents/guardians have been killed, or maimed. In some
cases, minors face sexual harassment; in others cases, distant relatives used them for bonded labour
and forced marriages.
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12. Adult Males in Prisons

Resettlement is also considered for refugee women where male members of refugee families are in
prisons. In some cases, they might have committed crimes; in other cases, they were being punished
for others crimes. They would commonly receive money from criminals; and spend time in prison for
others crimes.
13. Medical Cases
Selection for resettlement is also considered for refugees on m edical grounds; if medical
facilities/operations are not available at the local level. This could be prolonged illnesses; treatment
may change their life; significant impact on their life after treatment.
14. Violence/Torture
In this case, registration can be made for women who feel constant danger to their lives. Women could
be kidnapped, face physical beating, sexual harassment, and the fear of being sold.
15. War Continued
War is ongoing in Afghanistan. Some adult males from refugee families have been killed in the war.
Others have been killed in personal feuds and sectarian violence. As a result only women are now left.
Resettlement: A Time-consuming Process

After completing Afghan refugees registration and selection for resettlement, it takes months in
some cases years to move on to the next stages. Generally speaking, UNHCR in Pakistan has
divided resettlement into three categories:
1. Moral Cases: these should be finalised within 6 months but they typically take a couple of
years;
2. Urgent Cases: these should be finalised within 2 months but they typically take months or
even a year;
3. Emergency Cases: the cases which are identified as s erious cases requiring immediate
protection needs or medical emergencies usually take one week or less.
Most emergency cases are submitted for resettlement in Canada, as the country is known as the
fastest country for resettlement. Emergency cases for resettlement to EU countries are mainly
forwarded to the transit centre in Manila, the Philippines. If the selected members/families have had
some involvement in the Taliban in the past, they require a f urther No Objection Certificate (NOC)
and this prolongs the process by months.
EU Countries Scrutiny of UNHCR Submissions

After completing submissions for resettlement, UNHCR in Islamabad forwards the dossiers to its head
office in Geneva, where the EU resettlement countries offer submissions for resettlement. They assess
individual submissions in accordance with their policies, laws and regulations and decide whether or
not to grant resettlement. They also determine the size and composition of refugee resettlement.
However, the resettlement officer in the Islamabad UNHCR office notes that EU countries take a great
deal of time. They not only thoroughly assess security concerns, but also integration prospects. In
some cases, this takes a long time, in other cases they announce their decision punctually. A UNHCR
representative claimed that [the EU countries] take a long time for the decisions on certain sections of
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Afghan refugee populations and that delay is a concern for us. Some cases do require urgent
resettlement decisions but response from the countries arrive too late. The individual EU countries, in
fact, are too concerned about security issues, especially relating to some sections of Afghan refugees.
Security checks are complicated, complex and lengthy. This not only requires clearance, namely a No
Objection Certificate from Pakistans Foreign and Interior department. An EU country might also
carry out its own screening. They can reject the cases on any grounds, for example, they might claim
that relevant refugees are not really risking their lives. Some EU countries do not issue decisions until
they have completed all security checks and medical examinations. Some cases take a great deal of
time; while others are processed fast. UNHCR are not informed why some cases take so long. On
receiving submissions from UNHCR, the EU countries carry out the following steps:
1. Medical Checks: selected cases can be rejected on medical grounds.
2. Security Checks: a no objection certificate (NOC) is required from the Pakistan
government.
3. Consideration: conditions of family/kinships connection in the resettlement countries.
All resettlement countries have their own security checks; they assess the submitted dossiers in
accordance with their own criteria. They can reject cases for any reason, but, if they reject a case, they
do need to provide reasons for rejection to UNHCR. A resettlement officer in Islamabad expressed
concerns about the criteria adopted by some individual EU states on the submitted dossiers. We are
unsure why some refugees decisions are processed speedily and they depart within a relatively short
space of time, while others have to wait for months. The different countries have various policies for
resettlement. Canada has set up a l ocal mission office in Islamabad, while Australias office for the
Afghan resettlement is in Dubai. US officials are based out of New Delhi and visit Islamabad every
three to six months. The US follow the security checks through IOM. While some individual EU
countries accept UNHCR submissions, others ask for additional information about individual refugees
or on some refugees. In some cases, they ask for the individuals life histories, their age, arrival time,
living place, and their actual name and tribal affiliations. UNHCR staff described how on the ground,
it is hard to find their proper addresses, as most move from place to place, locality to locality and from
camp to camp. In many cases their age is guessed; by stating 20-30 years etc. They claim that
resettlement countries do not fully understand the realities on the ground and they, on the other hand,
dictate their own procedural processes. The Afghan refugee cases for resettlement to EU states are
generally forwarded through UNHCR head office in Geneva. In the context of resettlement for EU
countries, most emergency cases are shifted to UNHCRs transit site in Manila, the Philippines, where
an Emergency Transition Centre/Facilities has been set up.
Role of International Organization for Migration

Upon receiving submissions from resettlement counties, IOM liaises between successful candidates
and their resettlement countries. It also helps refugees in preparing travel documents and obtaining No
Objection Certificate (NOC) from the Pakistan Ministry of Foreign Affairs. Interviews with IOM staff
in Islamabad suggest that the protracted security checks for resettlement refugees consume significant
time due to the current security situation in the country. Sometimes, the ministry returned filed cases
back to IOM with some objections, asking for more details and clarification. Pashtun refugees usually
experience a significantly longer waiting period for the security clearance because of previous Pashtun
links with the Taliban. In addition to facilitating security checks, IOM arranges refugees predeparture arrangements and travel schedules.
Role of the Pakistan Foreign and Interior Ministries

After the selection process selected refugees must go through security checks, by gaining No Objection
Certificates (NOC) from the Pakistani government. The NOC/security checks could relate to crimes
495
committed in the localities; courts litigations; and connections with the Taliban. To get an NOC is a very
hard task. Here the role of local policemen is crucial. They investigate refugees characters and
credentials; they verify their addresses, areas, and streets over the period they have lived in Pakistan as
well as their arrival time. Tracing their residential histories are a difficult and a time-consuming process.
Refugees move from one area to another; they live in tents and play-grounds. In this process, massive
corruption is involved for security clearances; authorities decisions for no or yes can change a
refugees life. A UNHCR representative stated that: the lengthy process for the security checks is a
concern for us and this process consumes unbelievable amounts of time. It should take 6 w eeks
normally, but it takes far longer. Refugees move from one place to another; sometimes they have
changed their places of residence twenty times over; and they have no proper addresses. In many cases
they just say they live near a given shop, or near a school, or near a playground. Here it is almost
impossible to trace all addressees where refugees have lived over the years If they are not on the polices
wanted list they could be issued an NOC in months, but in other cases the process takes a great deal of
time. Some pay a bribe to the local police to speed up the process of getting an NOC. In obtaining an
NOC, many refugees face sexually harassment, too. In cases of unaccompanied women, individual
policemen not only take advantage of their vulnerability. There are also cases reported in which the
police sexually abuse them. In cases of conversions to Christianity, the police created problems. After
the long process of getting an NOC, if the resettlement countries find that any selected refugee is
involved in fraud or crime or has had links with the Taliban in the past, the selections are dropped.
Role of NGOs and Community Headmen

UNHCR works closely with the Pakistani-based NGOs, such as Sharp (Society for Human Rights and
Prisoners Aid) and SACH (Struggle for change), not only for the identifications and referrals of
refugees in need of resettlement, but also for the legal issues and pre-departure processes. Sharp has
set up offices in Peshawar and Quetta. This NGO n ot only assists UNHCR in legal issues and
protection, it has been involved with the identification of refugees for resettlement. It also provides
advice and legal aid for Afghan PoR Card Holders. SACH is a non-profit organization based in
Islamabad/Rawalpindi working for the rehabilitation of victims of traumatic human rights abuses
through a multidisciplinary approach that includes, inter alia, offering shelter, medical treatment, and
psychological support to survivors of state, domestic and other kinds of abuse: especially to women
and children. The organization is not only supporting refugee communities. It also focuses on Afghan
refugee populations in Pakistan. For that matter SACH has been providing shelter services to refugees
who have been approved for the United States Refugee Resettlement Program, but who are still
awaiting departure. More importantly, it teaches refugees basic language skills and provides them with
cultural orientation training that might help in resettlement countries.
It is important to point out here that these NGOs have no role in the selection of refugees for
resettlement. In the past, UNHCR was concerned about corruption and nepotism, so it now only gives
tasks that involve legal issues, or submits applications, or organise workshops for culture awareness.
While these NGOs are involved, to some extent, the identification of refugees in need of resettlement,
they mainly provide medical, educational and legal support to both refugees and UNHCR. They
sometimes identify individual refugees suffering and vulnerability to UNHCR, but such cases do not
often register for resettlement. I referred some Afghan refugees to UNHCR who were in real need for
the resettlement as their lives were in danger, Asif Ali, a member of SACH, informed me during the
course of an interview in Peshawar, but almost nine months have passed and they have not been
contacted for the registration. When this concern was raised with a UN spokesman in Islamabad, he
reaffirmed we do encourage NGOs to provide us assistance about what profile we are looking for.
They recommend many cases on medical grounds and on vulnerability of some refugees, but medical
reasons for resettlement are not the only criteria. However, the spokesman admitted that UNHCR
always sought support from both SACH and Sharp for the identification of refugees in need for
resettlement, because they have a better local network. They work mainly on women rights, and
496
Ilyas Chattha
childrens wellbeing. Their members could go to areas where UNHCR staff cannot go, so in that sense
they know better which sets of Afghan refugees are genuinely in need of resettlement.
A member of SACH who works with Afghan refugees noted our NGO has recommended
hundreds of Afghan refugees for resettlement to UNHCR. It provided the names of the refugees whose
lives are in danger and who deservedly need resettlement. Sometime NGOs submit a wh ole
section/tribal of refugees to UNHCR who will not go ba ck to Afghanistan and who the Pakistan
government will not tolerate either. They have forwarded many unaccompanied minors/children and
girls to UNHCR for resettlement whose lives have been in danger. A respondent stated I personally
recommended resettlement for a P ashtun family whose head worked as an interpreter for an aid
agency in the refugee village but who was killed by the Taliban, but as of recently the family has still
not been contacted. Rightly or wrongly, some informants believe that UNHCR is unfair in its criteria
for registration and selection for resettlement.
Conclusion
The material here has shown that refugee resettlement from Pakistan is a complex issue that involves a
series of drawn-out processes and checks. Such practices aim not only to make resettlement
transparent, but to search out the most vulnerable refugees for resettlement. In actuality, most Afghan
refugee populations were not aware of resettlement. UNHCR and other agencies do not advertise
resettlement. Voluntary repatriation remains UNHCRs preferred solution in Pakistan for most
refugees, as elsewhere in the globe. The general feelings among the agency members was that the
number of resettlements were too few to make it worth publicising given the 1.8 million documented
Afghan refugees in Pakistan. Few agencies staff interviewed were aware of the modifications
introduced by the Joint European Resettlement Programme (JERP) which was passed through the
European Parliament in March 2012.
Most registration cases for resettlement come through NGOs who work with refugee populations at
the local level. Other cases for resettlement are referred on by doctors and journalists who are involved
with refugees at the grassroots level. They only identify the cases though. UNHCR carries outs its own
assessment for registration and selection for refugees in need of protection for resettlement, what has
been described Population Profiling and Verification Exercise. The refugees who fall into the
category of resettlement are described by the UNHCR as Serious Protection Concerns. The findings
of this report have identified that some individual refugees or sections of refugee populations in
Pakistan are more vulnerable than others. Other cases that are registered for the resettlement process
include family reunification in resettlement countries. However, a g reat number of the Afghan
refugee women at risk are registered for resettlement in Pakistan.
On receiving submissions from UNHCR, some EU resettlement countries initiate their own
scrutiny for resettlement. They take a si gnificant time in order to scrutinise security and medical
factors and perhaps most difficult, a clearance (No Objection Certificate) from the Pakistan authorities
begins. The NOC process starts with the local police station and passes on through different channels
ends in the Pakistans Foreign Affairs and Interior departments. This long process involves issues of
corruption and sexual harassment of the individual refugees.
Recommendations
Local and national publicity and awareness about resettlement option in Pakistan would provide a
unique opportunity to refugees in need of resettlement, as most vulnerable refugees are sometimes the
least visible and vocal. It would also provide a better understanding of the motives of resettlement for
both the refugee populations as well as the public as a whole. There is, of course, the need to ensure
that the most vulnerable individuals or sections of refugee populations who cannot be reached by
UNHCR are still given opportunities for resettlement. For example, many ethnic Hazara refugees are
497
in need of resettlement, but they remain largely invisible and inaccessible. As the fieldwork interviews
have revealed opportunities for resettlement are not usually made explicit, though some Afghan
refugees were well aware that such options exist. Moreover, in order for a f uller understating of the
resettlement operation in Pakistan, the voices and experiences of refugee women at risk need to be
recorded. Women informants might be accessed through a f emale fieldwork assistant. One of the
drawbacks of this research is that the voices of refugee women at risk are muted.
In most cases the refugee populations have no direct access to UNHCR regarding the registration
for the resettlement process. As we have noted, they are chiefly identified and referred for resettlement
registration in-directly. In this in-direct process of identification individual refugees sometimes are
exploited and, on other occasions, fraudulent claims come up. The presence of an EU mission in
Pakistan, like some other resettlement countries, would not only further the entire operation of
resettlement. It might speed up the resettlement process, as a whole.
Moreover, there should be state-level arrangements for resettlement countries with the Pakistan
government to expedite resettlement and security clearance (No Objection Certificate) from Pakistans
Interior and Foreign Affairs departments. In the resettlement context for EU states, a separate set-up
office concerning to the security clearance in Islamabad could further accelerate the procedural
requirements for gaining an NOC. More monetary and human resources are required in this regard.
UNHCR representatives in Islamabad noted limited financial resources and limited time allocated by
resettlement countries. Indeed, there is a feeling that European countries should be more committed
not only to supporting the agency financially, but also to assisting in human resource matters at
grassroots level.
Moreover, resettlement states should not only increase their number of resettlement places in
Pakistan, given the presence of millions of refugees who need resettlement. Some Muslim countries
might offer places, as so me conservative refugees in need of resettlement might be convincingly
directed there. Finally, the EU resettlement countries ought to be more explicit in their criteria and
scrutiny in their own selection process. There is bewilderment in Islamabad as to why decisions on
some submissions are resolved immediately, while others have to wait months, if not years.
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Ilyas Chattha
Annex 1. Afghan refugees in Pakistan

Number of Refugees
(in millions)
1.878 61.6
769 25.2
207 6.8
135 4.5
045 1.5
013 .4
3.047 100
Province
NWFP
Baluchistan
Punjab
Sindh
Islamabad
Azad Jammu & Kashmir
Total
Source: UNHCR, 2007
Annex 2. Ethnic breakdown of Afghan Refugees in Pakistan

Pashtuns
Tajiks
Uzbeks
Hazara
Turkmen
Balochi
Others
81.5%
7.3%
2.3%
1.3%
2.0%
1.7%
3.9%
Source: Census of Afghans in Pakistan by the Ministry of States and Frontier Regions
Annex 3. Reasons for not repatriating to Afghanistan in % of Afghans

Personal
Animosity
Pakistan
NWFP
Non-NWFP
Camp
Non-camp
Ethnicity
Pashtun
Non-Pashtun
Security
Livelihood
Shelter
Other
3.1
3.1
3.1
2.3
3.9
17.8
13.9
25.1
18.1
17.5
18.2
13.0
27.9
12.5
23.1
57.2
67.0
39.0
64.3
51.2
3.7
3.0
4.9
2.9
4.3
3.2
2.6
18.2
15.7
18.2
18.3
56.9
58.7
3.5
4.7
Source: UNHCR 2007
499

Investigation in first asylum country Tunisia / Shousha Camp
Wafa Baba


500
KNOW RESET
Research Report
Investigation in first asylum country

Tunisia / Shousha Camp
Wafa Baba
501

Wafa Baba, Investigation in first asylum country - Tunisia / Shousha Camp, KNOW RESET RR
2013/02, Robert Schuman Centre for Advanced Studies, San Domenico di Fiesole (FI): European
University Institute, 2013.

Badia Fiesolana
Italy
502
Programme.
Italy
Tel: +39 055 46 85 892
Fax: + 39 055 46 85 770
503
List of Contents
Acknowledgements ....................................................................................................................
Abstract ......................................................................................................................................
Glossary and Acronyms .............................................................................................................
Introduction ................................................................................................................................ 1
1. Comparative documentary research ................................................................................... 1
2. An institutional survey ....................................................................................................... 2
3. A qualitative investigation ................................................................................................. 2
FIRST PART : General Context ................................................................................................ 4
I. Institutional Framework .......................................................................................................... 4
II. Refugee Populations in Shousha Camp ................................................................................. 5
SECOND PART: Resettlement Process .................................................................................... 7
I. Resettlement as a Durable Solution ........................................................................................ 7
1. Who is eligible for resettlement? ....................................................................................... 7
2. Who is not eligible for resettlement? ................................................................................. 7
II. Resettlement according to Stakeholders: the Period of Waiting. .......................................... 8
1. The Resettlement Process according to UNHCR:.............................................................. 8
2. The Resettlement Process according to the UNHCR Tunis-Zarzis Team: ........................ 8
3. The Resettlement Process According to Other Stakeholders: .......................................... 11
4. The Resettlement Process according to Refugees: ........................................................... 11
General conclusions ................................................................................................................. 13
For better conditions of resettlement ........................................................................................ 13
Annexes .................................................................................................................................... 14
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Acknowledgements
We would like to thank Dr Delphine Perrin, for her advice and support.
We also wish to thank UNHCR members for their collaboration, especially Mr Nabil Ben BEKHTI
officer of the National Office of Tunis, Mrs Al-Horani Hela, public-relations manager of the Zarzis
annexe and Mrs Asma Khenissi, the senior resettlement assistant.
Abstract
As part of the KNOW RESET Project, this report looks at resettlement, from country of first asylum to
the host countries, especially those in the EU. To do this, we performed an extensive literature search
and a qualitative survey of the refugees from the Shousha camp, UNHCR and its partners in Tunisia.
We conducted this study in Tunisia from 15 June to 15 October 2012, with refugees submitted for
resettlement, as well as stakeholders in the Shousha camp, in Tunis and Zarzis.
Given the complexity of the resettlement process, we have focused on the risks of non-compliance
with refugees human rights and the possible consequences in terms of the ability of refugees to
integrate into their host country. Also, we suggest solutions for better resettlement conditions.
The analysis of the resettlement process reveals the limits of practices, at different levels:
The lack of adequate information circulation between the different actors in the process.
The highly-centralised role of UNHCR in the process.
The imbalance of burden-sharing among countries of resettlement.
The lack of harmonization of criteria among EU countries.
The disengagement of some countries from the Joint EU Resettlement Programme.
The gap between the selection criteria and the local and international contexts.
The insufficient management of the refugees waiting time.
The absence of a legislative framework for asylum and/or resettlement in Tunisia.
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Glossary and Acronyms

BID
Best Interests Determination
ETC
Emergency Transit Center (in Romania/Slovakia)
Ex-Libya
Refugees or asylum seekers registered with UNHCR Libya
MAF
Medical Assessment Form
RST
Resettlement
RSD
Refugee Status Determination
RFF
Resettlement Registration Form
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Introduction
17 February, 2011, as a r esult of the civil war that broke out in Libya, thousands of people began
arriving, asking for refuge at the Tunisian borders. The inhabitants of the South-Eastern region
hosted the first arrivals with the help of the Tunisian authorities, who quickly implemented the first
transit camp on t he Ras Jdir border, on 23 February 2011. Subsequently, they had to deal with a
growing numbers of refugee flows, as an outpouring of international solidarity came in to take care
of those fleeing from Libya. Thus, several camps were installed between February and May 2011, the
main camps are:
The Shousha camp, installed 24 February, 2011 (UNHCR).
The Emirati camp in Ras Jdir, installed 13 March, 2011.
The El Hayet camp, installed 6 April, 2011 (IFRC).
The Remada Camp, 10 April, 2011 (UNHCR).
The Emirati camp, installed in Dhiba 13 April, 2011.
The Qatari camp, installed in Tataouine 23 April, 2011.
The Save the children camp, installed in Ras Jdir 9 May, 2011 (UNICEF).
Receiving, control, health, housing and various social service operations were ensured by
international organizations, UNHCRs partners under its own coordination. Aid in different areas was
carried out by countries: for example, as Morocco (installation of a military hospital) and Switzerland
(support for repatriation and local integration). A temporary office was operational between April and
September 2011 for Libyan refugees in urban areas. Then, by July 2011, only the Shoucha camp
remained operational, grouping all operations, with over 3,700 refugees and asylum seekers.
Therefore, as a special international recognition of Tunisia, the resettlement of refugees remaining
in the camp, arose as the main durable solution after repatriation and the voluntary return of most of
those who had fled. Given the commitment of 26 countries for a joint resettlement program 1, this
study looks at the practices of resettlement from Shousha camp to the European Union.
We have formulated our study around two major questions:
1. According to what criteria are refugees chosen? And how many steps are carried out in
selecting refugees for resettlement by UNHCR and by EU host countries?
2. How can we evaluate the overall process of resettlement, particularly in terms of waiting time?
To do this, we carried out a three-part survey:
1. Comparative documentary research
Official data collection from local authorities, media, NGOs, UNHCR and academic expertise. For
this, we consulted the websites, newspaper articles and UNHCR editions. This research has enabled us
to place the study in context, to define the various research tissues but also to note that the data
provided by UNHCR is the main if not the only source of information for institutions and for the
general public. This is the reason we stuck, in what follows, to statistics and internal documents from
the national office of UNHCR Tunis and the external office Zarzis (cf. Annexes 1, 2, 4 and 5).
U.N., A/AC.96/1108, Progress report on resettlement, 4 July 2012, http://www.unhcr.org/503cce2e9.html
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2. An institutional survey
For an evaluation of the resettlement process by stakeholders at Shousha camp, namely:
UNHCR National Office in Tunis.
UNHCR Office in Zarzis.
The International Medical Corps (IMC present in Shousha).
The Danish Refugee Council (DRC present in Shousha).
The Islamic Relief Worldwide (IRW present in Shousha).
The German Embassy in Tunis.
Civil society: the Boats4people (NGO), the Tunisian Forum for Economic and Social
Rights (NGO) and the World Social Forum (preparatory meeting of 12-18 July, held at
Monastir, Tunisia). Civil society supports rejected asylum seekers and refugees for
resettlement.
We interviewed some officials and/or attended meetings and activities, as follows:
UNHCR Tunis: Interview with an officer (July 2012).
IMC: Recorded interviews with two doctors and one psychologist (August 2012).
IRW: Recorded interview with the head of the unit (August 2012).
DRC: Observation of cultural and educational activities (August 2012).
UNHCR Zarzis: Observation of work activities and interviews (August 2012) with:
The head of the office,
3 officers.
The officer in charge of security,
The senior protection assistant,
The senior resettlement assistant.
German Embassy in Tunis: Interview with the officer in charge of refugees resettled
in Germany (September 2012).
In addition, we opted initially for the distribution of a questionnaire to the Tunisian authorities in
charge of the refugees, but our questionnaire was n ot returned. Indeed, because of events in Tunisia
during the investigation, it was difficult to contact the Ministry of Foreign Affairs, the Ministry of
Social Affairs, the Ministry of Human Rights, and, indeed, the EU embassies. In view of the
comparative documentary research and interviews conducted with stakeholders in Shousha camp, we
have come to think that this failure will have no impact on this work, for two reasons:
Tunisian authorities and embassies use UNHCR statistics. Thus, information from them
would essentially have repeated information we already have.
Because of national social emergencies, the refugee issue is now very much a seco ndary
issue for Tunisian officials. At best, we would have received a political speech.
3. A qualitative investigation
With refugees in Shousha camp during the week of 27 August, 2012. This investigation focused on
resettlement procedures, the evaluation of the process and waiting time. Semi-directive Interviews
with individuals and with groups were recorded in the camp:
508
First group: 4 refugees submitted for resettlement, in waiting for a final decision by the
receiving countries;
Second group: 4 refugees accepted for resettlement by the host countries, awaiting departure;
Investigation in first asylum country - Tunisia / Shousha Camp
Third group: 2 refugees rejected for resettlement by the host countries. Resubmission in
progress.
It should be noted that we had initially planned a larger sample, on the basis of data from the
exploratory survey, conducted from June to July 2012. However, the number of interviews was,
naturally, dependent on the readiness of refugees to answer our questions.
Moreover, due to clashes that took place in June 2012 between the inhabitants of the urban area of
Ben Guerdane and refugees, the Shousha camp was under strict military authority. Therefore, we
asked authorization from the Ministry of Defense, and on this occasion, an army officer at the camp
voluntarily gave us an interview. This allowed us to identify further security and social problems
related to the waiting time in the camp.
Finally, it was possible to achieve the third part of the survey thanks to UNHCR.
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FIRST PART : General Context

I. Institutional Framework
Tunisia is a signatory of the UN Geneva Convention of 1951, relative to the status of refugees, its
1967 Protocol and the 1969 Convention of the OAU for Refugees in Africa. However, Tunisia had
here its first large-scale humanitarian experience. For this reason, a national legal framework
governing refugees and asylum seekers was lacking. Therefore, status determination fell to UNHCR,
which is the only resource of information for refugees and asylum seekers in Tunisia.
In this regard, discussions were initiated to enact, with urgency, a law that would ensure the
protection of refugees rejected for resettlement by the host countries, for people outside the mandate of
UNHCR and for the 21 Palestinians 2 in the camp, who for political considerations have not been
submitted for resettlement. In addition, UNHCR has been working to put in place interim solutions for
the 2,739 Palestinian refugees registered with UNHCR in Libya: repatriation to Gaza; or integration in
other Arab countries, by inviting these countries to cooperate more 3.
In addition, the NGOs involved in the management of Shousha camp operate under the aegis of
UNHCR, namely:
The Tunisian Red Crescent (TRC), whose role is to liaise between UNHCR and refugees and
asylum seekers in urban areas. The TRC also provides protection and priority treatment for
the folders of vulnerable persons.
The Danish Refugee Council (DRC) provides cultural and educational activities in the camp,
preparatory actions for resettlement (information, language courses, learning the culture of
the host country, preparing for interviews, help with refugee rights and help with
administrative forms ... etc.).
The International Medical Corps (IMC) provides the care and psychological support needed
for camp residents.
Islamic Relief Worldwide (IRW) provides logistics, sanitary and culinary help in the camp.
We interviewed representatives of these partners about their role in the resettlement process
and the impact of the waiting time on the health of refugees.
Other partners not present in the camp included:
International Organization for Migration (IOM), which handles the departure of refugees,
and which also helps to manage the flows outside the UNHCR mandate.
International Committee of the Red Cross (ICRC).
International Federation of Red Cross and Red Crescent (IFRC).
Arab Institute for Human Rights.
UNHCR Registered Shousha, July, October 2012, annexes 1, 2, 4 and 5.
Internal memo in March 2011.

Note 1 The Convention does not apply to refugees who fall under United Nations organizations other than UNHCR, such
as Palestine refugees whose receive protection or assistance from the United Nations Relief and Works Agency for
Palestine Refugees in the Near East (UNRWA), or refugees whose status equivalent to that of nationals in their host
countries. ,UNHCR, introductory Note, August 2007, In, Convention and Protocol relating to the status of refugees.
Note 2 : Palestinian who are not within UNRWAs areas of operation fall within UNHCRs mandate, per Article 1D,
1951 Convention relating to the Status of Refugees. See, further, UNHCR, Revised Note on the applicability of Article
1D of the 1951 Convention relating to the Status of Refugees to Palestinian Refugees, Octobre 2009 , UNHCR,
March 2011, In, Note to Arab League Solidarity Initiative for Palestinian Refugees Formely Residing in Libya.
510
The UNHCR budget in 2011 for refugee programme (Pillar 1) in Tunisia, amounted to 45,742,856
US dollars 4 against less than one million in 2010. The budget was revised to almost 35 million in 2012
given the expenditure of 2011, and less than 25 million for 2013 5. Note here that voluntary returns to
countries of origin were mainly financed by Switzerland.
II. Refugee Populations in Shousha Camp

In the beginning of 2011, Tunisia opened its borders to nearly one million citizens coming from Libya
escaping the war. The mixed migratory flows, composed of more than 660,000 Libyans 6 and 220,000
persons 7 of thirty different nationalities, arrived in Tunisia led by Eritreans, Somalis and Sudanese.
Most of them, including the Libyans, have returned to their countries of origin, after the relative calm
now reigning in Libya. Following the upstream work conducted by the Tunisian authorities, UNHCR
came to aid the Tunisian people and its government, with which it signed a cooperation agreement in
June 2011 for three groups:
Libyans living in host families and transit camps (90,000 people 8 between April and July
2011 have found refuge, according to estimates from the Tunisian authorities, there remained
about 60 families 9 in April 2012).
Asylum seekers and refugees of other nationalities hosted in the transit camp waiting for
durable solutions.
Asylum seekers and refugees living in urban areas (220 people 10 in July 2011; 276 people 11
in April 2012; 343 people 12 in September 2012, mainly from Cte dIvoire).
The last two groups stood at more than 3,700 people in July 2011. Most fear a return to their
country of origin, especially Sub-Saharan Africa. 323 people have been rejected for asylum for noncompliance with Geneva Convention standards 13.
Moreover, given the limited capacity of Tunisia and the refusal of refugees to settle in Tunisia,
UNHCR has submitted almost all refugees who arrived, before 1 December 2011, for resettlement. So,
3,697 individual folders were submitted between March 2011 and April 2012. 2,037 refugees were
accepted for resettlement in host countries (1,743 people) and by private sponsors (294 people) in
April 2012 14. The 1,660 unanswered submissions await a decision from the resettlement countries and
the first departures began at the end of 2011.
4
UNHCR Global Report 2011, http://www.unhcr.org/4fc880ad0.html
UNHCR Global Appeal 2012-2013, http://www.unhcr.org/4ec2310016.html
UNHCR Tunisia Fact Sheet, April 2012, Annex 3.
UNHCR Registered Shousha, July, October 2012, annexes 1, 2, 4 and 5.
Ibid.
UNHCR Tunisia Fact Sheet, April 2012.
10
UNHCR Registered Shousha, July, October 2012, annexes 1,2, 4 and 5.
11
UNHCR Tunisia Fact Sheet, April 2012.
12
UNHCR Tunisia Fact Sheet, September 2012.
13
The provisions of this Convention shall not applicable to persons to whom there are serious reasons for considering that:
14
a)
they have committed a crime against peace, a war crime or a crime against humanity, as defined in the
international instruments drawn up to make provisions about such crimes;
b)
they have committed a serious crime law outside the country of refuge prior to his admission as a refugee;
c)
they have been guilty of acts contrary to the purposes and principles of the United Nations., Article1F, of t he
1951 Convention and Protocol relating to status of refugees. (Translated from French).
Private sponsorships emanate from relatives of refugees living abroad (Canada, Switzerland, Italy and Poland). In
September 2012, over 300 persons of concern departed thanks to private sponsorship or immigration programmes.
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Taking into account responses received since April from the resettlement countries, this figure
decreased, in September 2012, to 1,213 refugees waiting for an answer.
Fearing a pull factor and in order to stop the flow of illegal migrants, UNHCR has not submitted
the new refugees arriving from Libya after 1 December 2011, for resettlement. These number 131
(See annexes 4 and 5). Other durable solutions have been proposed for these individuals, namely,
local integration or voluntary return to countries of origin. The goal of the deterrent approach is to
ensure the closure of the camp in June 2013. However, some exceptions have been granted to 25
vulnerable persons (women and unaccompanied children, suffering people whose care can be
provided for in the host country ... etc.) (See annexes 4 and 5). Thus, in September 2012, the number
of submissions increased to 4,024 (including appeals), newcomers are now placed outside the camp,
in the Zarzis youth center.
However, UNHCR provides humanitarian support to illegal immigrants from third countries, such
as: the 74 Somalis rescued by the Tunisian army in the Mediterranean 18 March, 2012 (installed in
Shousha camp); or the 154 passengers of a boat coming from Libya (going to Italy) 10 September,
2012, who were installed in the Zarzis youth center.
In addition, the 281 people outside UNHCR mandate among the first arrivals continue to be
sheltered in Shousha camp (see annexes 4 and 5). Their case i s discussed in the media and civil
society, because of the precarious living conditions and the uncertain future of these people. For
example, we now follow the evolution of a sit-in protest, organized in Shousha camp since
September, by rejected asylum seekers and refugees definitively rejected for resettlement, whose
claims mark the regularization of their status, the right to resettlement and the refusal of local
integration. In the meantime, a number of these people work in construction and agricultural, because
of low demand for Tunisians in these two sectors.
In anticipation of these problems, UNHCR had from the beginning entered into negotiations with
the Tunisian authorities in order to establish a national legal framework governing the asylum and
refugee questions, as well as the facilitation of local integration. Palestinians are at the heart of these
negotiations: on this subject UNHCR has been puzzled by the slowness of the government to respond.
Among the last resettled groups during November 2012, there are nine new refugees (initially
rejected for asylum) who received an exceptional submission resettlement to Portugal.
Below a summary of statistics Shousha camp, provided by UNHCR (See annexes).
Persons of concern - From Mars 30, 2012 to October 12, 2012
30/03/12
13/07/12
24/08/12
30/09/12
12/10/12
Asylum seekers
164
150
141
138
122
Refugees
2,860
2,381
2,178
2,203
1,868
Total
3,024
2,531
2,319
2,341
1,990
We distinguish in the camp, five categories of refugee candidates for resettlement:
512
The refugees waiting for a resettlement response from the host countries.
The refugees accepted for resettlement by the host countries, awaiting a departure date.
The refugees accepted for resettlement by the host countries, awaiting departure.
The refugees rejected for resettlement by the host countries, awaiting a r esponse after
resubmission.
The refugees definitely rejected for resettlement by host countries, with a choice of two other
durable solutions, voluntary repatriation to the country of origin, or local integration.
SECOND PART: Resettlement Process

I. Resettlement as a Durable Solution
UNHCR is engaged in a global process of refugee protection, inviting all signatories of the 1951
Convention, its 1967 P rotocol and its international and regional instruments to burden share. In
addition to the right to asylum, the process includes three durable complementary and non-hierarchical
solutions 15, namely:
Voluntary repatriation.
Integration (in the country of first asylum).
Resettlement.
In general, any refugee under the mandate of UNHCR has the right to international protection.
However, resettlement is a l ast resort. Resettlement is only organised where repatriation and/or
integration in countries of first asylum is impossible. Therefore, UNHCR chooses the appropriate
durable solution for refugees, individually or in groups, according to the needs and concerns of
refugees (not according to their wishes).
It is furthermore stated in the UNHCR Handbook that resettlement, unlike repatriation, is not a right.
It should never be an answer to a claim, or favor, or accorded out of pity or following an incident.
It is also noted that acceptance for resettlement by UNHCR must be independent of quotas of
resettlement countries, and questions of the integration potential of refugees. However, a f ew
exceptions are tolerated in the absence of prospects for other durable solutions. To this end, admission
procedures shall be laid down for resettlement by UNHCR, in order to ensure the transparency of the
process, to limit subjectivity stakeholders and also to combat the possibility of corruption.
1. Who is eligible for resettlement?
Besides the basic considerations, the criteria for refugee admission for resettlement by UNHCR are the
following 16:
Refugees in need of legal and physical protection,
Victims of violence and torture,
Refugees with medical needs,
Vulnerable women,
Refugees following family reunion,
Children and adolescents,
Elderly refugees,
Refugees without local integration prospects.
2. Who is not eligible for resettlement?

Excluded from international protection and, therefore, from resettlement, are refugee with threats
hanging over them as described in Article 1F of the 1951 Convention, mentioned above. As such, the
registration for the resettlement form (RRF) must contain the reasons for inclusion in international
protection. Thus, the review of conformity with the exclusion clauses may, at any time, result in the
15
UNHCR Resettlement Handbook 2011
16
Ibid.
513
Wafa Baba
revocation or even the cancellation of erroneous initial recognition, whether for refugee status or for
admission to resettlement. This rigor imposed both by UNHCR and resettlement countries aims to
avoid the abuse of the institution of asylum. However, as argued above, refugees from Shousha camp
have, generally, had their applications for resettlement systematically accepted by UNHCR for
submission to resettlement countries. The few refusals involved cases of crime, polygamy and
unaccompanied minors, where other durable solutions were offered. Then there were also refugees
rejected by potential host countries.
II. Resettlement according to Stakeholders: the Period of Waiting.

1. The Resettlement Process according to UNHCR:
Resettlement involves the selection and transfer of refugees from a c ountry where they have
sought protection in a third country which has accepted them as refugees and granted them the
status of permanent residence. The status is granted protection against refoulement and provide the
resettled refugee and his family or dependents access to civil, political, economic, social and
cultural rights similar to those enjoyed by nationals. It should also provide the opportunity to
eventually become a naturalized citizen of the country of resettlement 17.
UNHCR has the obligation to ensure the smooth running of the resettlement process, from the
initial selection, until there is guarantee of citizenship rights in the country of resettlement. A
commitment of this kind necessarily involves the establishment of a huge institutional and procedural
machine around the world, which we c an characterize as heavy at times, because of the growing
number of refugees. Indeed, the main path through which a dossier is submitted for resettlement,
illustrates this fact:
Shousha
Lebanon
Switzerland
(Regional Resettlement Hub

Middle East and North Africa)
Resettlement countries
(UNHCR Geneva
Resettlement Section)
We presume that the centralization process not only slows the mechanism, but also causes a loss of
information (qualitative) and, therefore, a potential failure to understand the reality on the ground.
2. The Resettlement Process according to the UNHCR Tunis-Zarzis Team:
At external offices in Tunis and Zarzis, officers and assistants refer to Chapter 7 of the UNHCR
Resettlement Handbook of 2011 18, about the resettlement procedures, and to Chapter 5 i n the same
Handbook for the identification of needs, specific needs and the risks involved in resettlement19. Upon
arrival, refugees await initial identification (waiting time 1), after which, resettlement operations are
implemented as follows:
17
18
19
UNHCR Resettlement Handbook 20011, Chapter 1, page 2

UNHCR, Basic procedures to follow in processing resettlement submissions, http://www.unhcr.org/3d464ee37.pdf, In,
Resettlement Hand book, chapter 7, 4 July 2011.
UNHCR, Protection considerations, and the identification of resettlement needs, http://www.unhcr.org/3d464e176.html,
In, Resettlement Handbook, Chapter 5, 4 July 2011.
514
Assessment of individual resettlement needs: case assessment and verification.
Preparation of a resettlement submission: Interviews and preparation of documentation

(including BID, MAF) and a RRF.
UNHCR submission decision: routing of submissions.
Resettlement country decision: preparing for state selection missions, decisions and
practices.
Post-decision: resubmissions and family unity.
Pre-departure arrangements and monitoring.
According to the testimonies of officers and assistants to the resettlement and protection
process, the systematic submission of refugee to resettlement has saved time. The initial
identification took place simultaneously with the operation of eligibility for refugee status (RSD).
To do this, a reinforcement team composed of several dozen international UNHCR officers helped
the home team during 2011. This allowed the realisation of the first three stages of preparation for
resettlement, approximately, in six months (waiting time 2). This was qualified as exceptional
by our interviewees.
Let us note here that the conduct of resettlement interviews is a crucial step. Everything said by the
refugee must be transcribed and evaluated by the interview officer, in the forms in the resettlement
file. Some complex cases are interviewed twice.
The Resettlement Registration Form (RFF) traces the life of a refugee. This form is developed for
all identified refugees. The BID (Best Interests Determination) is an additional form for minors, all of
them having priority for resettlement. The MAF (Medical Assessment Form) is an additional form for
serious medical cases, all of them having priority for resettlement.
These forms contain confidential personal life stories, so we d id not have access rights.
Nevertheless, a f ew RFF previews were entrusted to us. Here are marked the selection criteria
mentioned above (vulnerability categories).
After obtaining data, HUBs submission for resettlement begins. This implies a r evision of the
contents, then a cl assification of the files by resettlement countries, according to the criteria and
preferences defined and communicated by them. These are, then, transmitted to the HUB of Lebanon,
which, in turn, carries out the same operation again. We regret not being able to get information on
this, because the regional HUB has had a n ew mission in Kenya since June 2012: the date of last
submissions at Shousha.
The refugees we interviewed said that they had no knowledge of the countries criteria and the
reasons for resettlement refusal from some. Deductions, of course, could be made : for example, the
rejection of opinion leaders by the USA ; the interest of other countries in single women and children ;
indifference towards the elderly without family ; and the preference for francophones in Canada.
Chapters about resettlement countries can be found in the 2011 UNHCR Resettlement Handbook,
which gives some sense of the resettlement policies of various countries. However, this list is not
exhaustive, and does not include Belgium, Spain, France, Germany, Switzerland and the UK. Out of
26 resettlement countries, only 19 participated in the resettlement of refugees from Shousha camp 20,
among these Romania which hosts an emergency transit center (ETC).
Once submitted by UNHCR, the treatment of resettlement cases by countries of second asylum
lasts up to a year. Generally, the time required by each country is divided into three phases:
20
Nine resettlement countries have not participated in the resettlement of refugees from Shousha, namely, Argentina, Brazil,
Chile, Czech Republic, Iceland, New Zealand and Paraguay.
515
Wafa Baba
The verification phase: Security investigations, content and profile selections are conducted
for each individual file. Only the US communicate progress of its work to refugees. At the
end of this phase, an appointment for an interview with an on site delegation will be given to
each refugee. (waiting time 3).
The selection phase in the country of first asylum: Interviews are conducted individually
with the coordination of UNHCR officers and the Tunisian Red Crescent. Most countries
make their final decision a long time after the interviews. (waiting time 4).
The phase of preparation to departure and resettlement: A final decision will be given,
well before the departure date is communicated. (waiting time 5). There is often an
additional wait before departure (waiting time 6).
Only Spain has reduced the overall waiting time, by giving the final decision immediately after
interviews in June 2012, and by organizing the departure of refugees the following month. However,
one of the refugees resettled in Spain reported to his friends in the camp, that the conditions of
resettlement were not promising.
In 2011, the first refugees who were rejected from resettlement had the privilege of being accepted
by other countries, whose criteria are more adequate and/or whose quotas not yet exhausted. In 2012,
all resubmissions were conducted systematically for the same country, according to the initial
submission, so few cases have been reviewed and accepted. (waiting time 7).
Moreover, all our interviewees agree in noting that the US is the country whose resettlement
process is slowest. However, the US is the country that is the least demanding in the first submission,
and which resettles the greatest number of refugees.
Germany resettled 300 refugees in 2012, 202 from the Shousha camp out of 240 submitted by
UNHCR and 100 Iraqi Christians arriving from Turkey, who have family ties in Germany. Germany
also spends a large budget on the local integration of refugees, ranging from 600,000 to a million, to
promote the financial independence of refugees. According to the relevant officer at the German
Embassy priority is given to refugees with potential for integration, namely, for example, those aged
18-35, high level executives (mostly Iraqi) and technicians (from Iraq, Sudan, Eritrea ...). But,
Nigerian refugees were rejected because of questions over safety. These statements are confirmed by a
UNHCR officer, who adds that European standards are certainly more selective: they are established
by profile and special cases. We were also present at the departure of 195 refugees to Germany 3
September 2012, who, according to the refugees resettled in Germany at the embassy, will be driven to
a transit camp in southern Germany before final resettlement. This group will be followed by seven
other people who need to be given medical treatment in Tunisia before their departure, including a
pregnant woman, with two children. This group had been awaiting departure since May 2012. The
German authorities needed five weeks to treat the records, after the submission of UNHCR.
In addition, the role of the embassy is only to ensure coordination between the German migration
authorities and UNHCR in Tunisia. Therefore, no accurate information on the selection criteria or the
Joint European Union Resettlement Programme (JEURP) is available at the Embassy.
The numbers of refugees are obviously falling, the result of progressive resettlement in host
countries and repatriation. For example, at the time of writing this report, a UN HCR officer at
Shousha camp told the media that most of the refugees in the camp will be resettled in the United
States, Norway and Germany by the end of the year. This suggests that the number of refugees will
decrease to 1,500 after the repatriation of most, especially Libyans, Egyptians and Bangladeshis.
However, the pace of operations remains slow. Indeed, during our visit to Shousha Camp at the end
of August 2012, there were 2,178 refugees against 2,381 in July 2012. We also heard of the departure of
300 refugees to Germany, the USA and Canada between September and November 2012, which
suggests an average of 150 departures per month, or approximately 7.5% of the number of refugees in
2012. These are low numbers given the problems encountered in the camp, and the global waiting time.
516
3. The Resettlement Process According to Other Stakeholders:

Other stakeholders in the Shousha camp gave us interviews and focused their answers on the
management of waiting times of refugees in terms of health, safety, and services within the camp.
Health: General practitioners suggested that waiting should be shortened to avoid

complications with health problems, whether prior to arrival at camp, or caused by
conditions of community life in the asylum. A psychologist talked about reactive depression
as the main psychological fallout directly related to the difficulty of waiting suffered by
refugees. The results are mainly insomnia, eating disorders, anxiety, nervousness, social
withdrawal and loss of interest. In addition, doctors are, of course, bound by professional
secrecy. They communicate patient records to UNHCR according to predetermined codes,
and they in no way interfere in the selection criteria of refugees. Their role is limited to
monitoring, awareness and family planning.
Security, Protection and Services: The long stay of refugees in the camp necessarily causes
security problems following intercommunity conflict : this was a problem according to the
military officers present on t he ground. In addition, UNHCR protection is required to
manage daily life, in addition to routine work, and sometimes dramatic humanitarian
emergencies, which could have been avoided with prompt resettlement. Also, the unit
manager of Islamic Relief, in charge of camp management, expressed his concerns about the
future of refugees waiting, after the end of its mission in the Shousha camp. Indeed, a few
weeks later, we learned through the media that a series of angry protests over refugees broke
out, following the departure of Islamic Relief and the announcement by UNHCR of the
closing of the camp, scheduled for 30 June, 2013. Since then, refugees have been left almost
to their own devices with only weekly food rations.
4. The Resettlement Process according to Refugees:

First group interviewed: four refugees submitted for resettlement, they are waiting for a final
decision.
Refugee
Arrival country
Country of origin
Submission
1 man
Libya
Somalia
U.S.A.
1 man
Libya
Eritrea
Switzerland
1 man
Libya
Ethiopia
U.S.A.
1 man
Libya
Ivory Coast
Canada
Refugees in this group have been waiting since February/April 2012 f or an answer from the
respective countries of submission. The final decision may be admission to resettlement, so an
appointment for interview will be fixed with a delegation of the relevant country and/or establishment
of the necessary forms. In the case of non admission for resettlement, there is the possibility of appeal.
Throughout the interview, refugees have continued to express their dissatisfaction with the harsh
conditions of waiting, which seems sometimes to lack hope. Wardi, from Somalia, is one of the 700
arrived in March 2011, after being picked up a t sea. Many of his friends, including his wife and
children, died in attempting to emigrate to Italy. Then, he waited four months to submit for refugee
status, that he got five months later in December 2011. He is still waiting for a response from the US,
which he said, resettled much of the Somali group, then comes, Norway, Sweden, Germany, and
finally Canada for some of them.
517
Wafa Baba
Camara, from Ivory Coast, arrived at the camp in July 2011. Camara was awarded refugee status
after eight months, and has been submitted for resettlement in Canada since February 2012, after being
rejected by the US.
All the interviewees confirmed that they were not consulted in the choice of resettlement countries.
However, they were not unhappy about the choice: the important thing for them was to leave the
camp, not to return to their home country and to start a new life.
The second group interviewed: 4 refugees accepted for resettlement, awaiting departure
Refugee
Arrival
country
Country of origin
Submission
Date of departure
1man
Libya
Sudan
Germany
September 3, 2012
1man
Libya
Eritrea
U.S.A.
Unknown
1 woman
Libya
Somalia
U.S.A.
Unknown
1 woman
Libya
Somalia
U.S.A.
Unknown
Refugees from this group have been awaiting resettlement since January/June 2012. Although they
have received a positive response, the waiting time seems to them hard, especially because of lack of
information. Indeed, refugees claim right of access to information related to the progress of their cases
and prospects of resettlement. They also want more support and assistance for preparation for
interviews and forms, since according to them, some were rejected because of a language problem, or
illiteracy. It should be noted here, that there is an information office in the camp for refugees, which
opens once a week. However, this information point remains insufficient, given the large number of
refugees in the camp.
Thus, this lack of information is negative for the morale of refugees, especially as t hey have been
waiting since February/March 2011. In fact, they had to wait from six months to a year to ask for
resettlement and six months on average to receive the response of the resettlement countries. The departure
date is generally eight months afterwards, for a later departure after one to three months. The longest delays
are those for the U.S.A. Finally, women and children are the most affected by the long stay.
The third group interviewed: two refugees rejected for resettlement. Appeal in progress
Refugee
Arrival country
Country of origin
Submission
1 man
Libya
Ethiopia
Spain
1 man
Libya
Sudan
U.S.A.
Both refugees interviewed are renewing their resettlement applications, for the same countries of
initial submission.
Both interviewees came from Libya before December 2011, exactly one year after they were
rejected for resettlement, and since then they have sunk into state of total despair.
Abdelmajid, an Ethiopian, has two wives, he had divorced one of them to be eligible for
resettlement. He was, however, dismissed with his wife and three children, one of them an eighteenyear-old girl. However, his ex-wife was resettled in Spain with a child. He says he does not know the
reasons for his rejection, he feels completely lost and hopes to be picked up on resubmission.
However, we suspect that he was dismissed because of his problematic past in Ethiopia, about which
he refused to give details.
518
As for Taieb from Sudan, he thinks he failed the interview because of his psychological condition
and his difficulty in understanding English. He claims not to know the exact reasons for his rejection
and refuses to return to Sudan, where the war is still being fought. His wish, he says, is to live in a
country of peace, freedom and security.
In addition, both refugees talked a lot about difficult conditions of waiting in the camp and they
regretted not having financial independence.
General conclusions
For better conditions of resettlement
20 June 2011, UNHCR celebrated the sixtieth anniversary of World Refugee Day, under the theme
One refugee without hope is too many, yet in reality we are very far from this ideal. Indeed,
UNHCR evaluates that 800,000 refugees in the world need to be resettled, while there are not more
than 80,000 places a year 21. On the other hand, burden sharing is spread unevenly between the 27 EU
Member States, since the EU received 5,000 refugees between 2011/2012 (4,700 in 2010), the vast
majority are hosted by the USA, Canada and Australia. Despite the resources granted by the European
Refugee Fund 22, European countries are restrictive with regards to resettlement.
Given the various findings, we conclude with the following suggestions:
1.
Constitutionalizing the demand for asylum in countries of first asylum,
2.
Revising laws for refugees in both countries of first asylum and resettlement countries,
3.
Reducing the UNHCR resettlement process around the world, through decentralization
approaches and/or a better division of labour between Geneva and Lebanon. The same for
resettlement countries,
4.
Avoiding duplication between UNHCR and resettlement countries,
5.
Standardizing E.U. criteria,
6.
Harmonizing and shortening the process of resettlement in the EU,
7.
Working for a better diffusion of information for refugees, Also for a better flow,
8.
Increasing annual quotas, and per resettlement country in the EU,
9.
Minimizing subjective factors,
10.
Taking into account civil society work,
11.
Adapting the selection criteria to its historical context.
21
UN, A/AC.96/1108, Progress report on resettlement, 4 July 2012, http://www.unhcr.org/503cce2e9.html
22
Amnesty International, press release, EU Must Boost Refugee Resettlement, Brussels, 28 March 2012,
http://www.amnesty.eu/en/press-releases/asylum-and-migration/0556-0556/
519
Wafa Baba
Annexes
1. Persons of Concern of UNHCR in Shousha Camp Demographics (Internal External)
Source UNHCR Zarzis 13/07/2012
2. Population Statistics for Shousha Camp Internal Source UNHCR Zarzis 13/07/2012
3. UNHCR Tunisia Fact Sheet September 2012
4. Persons of Concern of UNHCR in Shousha Camp Demographics (Internal External)
5. Population Statistics for Shousha Camp Internal Source UNHCR Zarzis 12/10/2012
520
Annex 1
Persons of Concern of UNHCR in Shousha Camp
Demographics (Internal External)
521
Persons of concern of UNHCR in Shousha camp - Demographics (Internal - External)
UNHCR Zarzis
Total Active Registered persons of concern
13/07/2012
All Registered
Refugees
Asylum Seekers
Total Refugees & Asylum Seekers
Others**
1
2 020
1 870
149
2 019
EX-Libya
487
486
487
Others*
25
25
25
Totals
2 532
2 381
150
2 531
Tunisia
*:Registered with other UNHCR operation

**: Spouses of refugees or asylum seekers
Age & Gender Breakdown by Country of Origin
Country of
Origin
0-4
Sub Total
%
Total
Algeria
Cameroon
CAR
Chad
Cte d'Ivoire
DRC
5-11
12-17
18-59
>60
68
91
43
56
39
117
328
1 762
25
481
2 051
57%
43%
57%
25%
75%
16%
84%
11%
89%
19%
43%
159
99
156
2 090
1
8
13
10
8
2
2
19
13
Eritrea
Ethiopia
Gambia
India
Iraq
Liberia
Libyan Arab Jamahiriya
Mali
Morocco
Nigeria
Pakistan
Palestine
Senegal
Somalia
Sudan
Syrian Arab Republic
20
15
1
23
28
Sex and Age
0-4
Female
68
Male
Total
1
1
3
1
2
25
48
14
11
10
1
82
28
1
1
2
14
13
2
246
111
103
1
1
3
2
33
2
20
52
40
80
73
12-17
18-59
60+
Total
% of Total
39
328
481
19,0%
56
117
1 762
25
2 051
81,0%
99
156
2 090
28
2 532
1
1
1
4
6
18
5-11
43
91
159
Avg. case size
3,3%
1,4
5,2%
69,0%
2
5
7
1
631
617
1
Children 16%
Avg. case size excluding single person cases
3,7
Ethnic Origins
Hawiye
324
12,8%
Number of families
313
12,4%
Female-Headed
Arab
240
9,5%
Male-Headed
Massalit
160
6,3%
Oromo
156
6,2%
Religious Background
Tigrinya
152
6,0%
Islam
Shekhal
101
4,0%
Christianity
76
3,0%
Other
1 853
78
1 775
4,2%
95,8%
Adults 84%
2 312
91,3%
224
8,8%
26
1,0%
Fur
72
2,8%
Dir
42
1,7%
Specific Needs
Belin
39
1,5%
Serious medical condition
271
10,7%
Ashraaf
38
1,5%
Specific legal and physical protection needs
181
7,1%
Madiban
36
1,4%
Torture
123
4,9%
Rahan-weyn
35
1,4%
Unaccompanied or separated child
73
2,9%
Nuba
33
1,3%
Disability
59
2,3%
Meidob
31
1,2%
Woman at risk
51
2,0%
Dadjo
28
1,1%
Family unity
41
1,6%
Sahow
26
1,0%
Child at risk
14
0,6%
Berti
25
1,0%
Older person at risk
15
0,6%
Tama
23
0,9%
Single parent
0,4%
Darod
23
0,9%
One individual can have more than one specific need
20
0,8%
None
18
0,7%
Ogaden
18
0,7%
Other
Prepared by UNHCR Zarzis
503
19,9%
2
11
2
1
2
27
13
2
303
184
2
1
269
1
1
6
5
3
12
21
1
818
856
2
Individuals (age)
0,9%
Zaghawa
Rer-hamar
4
5
1
4
3
81%
2 532
1
2
5,3%
Tigre
Total
Annex 2
Population Statistics for Shousha Camp
Internal
523
Population Statistics for Shousha camp - Internal
UNHCR Zarzis
13/07/2012
Persons of concern
Persons Not of concern
Total Residents in the Camp
281
2 813
2 532
Persons of concern to UNHCR

All Registered
Refugees
Asylum
Seekers
Total Refugees &

Asylum Seekers
Others**
2 020
487
25
2 532
1 870
486
25
2 381
149
1
0
150
2 019
487
25
2 531
1
0
0
1
Tunisia
EX-Libya
Others*
Totals
RST Departures (*)

UNHCR resettlement departures

ETC Departures
Non-UNHCR resettlement departures
1159
150
147
Total Departures
1456
Total
- Including recognized refugees
incl. referred to RST
RSD Process (asylum seekers)

Pending 1st inst. decision
Pending appeal
Pending 2nd inst. decision
(Refugees)
Accepted by RST country
1 295
Submitted to RST country
830
In HCR RST Process
1
294
131
23
- Including finally rejected
* As recorder in Progres
RST process
New arrivals registered since 1st Dec. 2011
137
2
11
Population movement since 1st Dec. 2011
Increases
Decreases
Voluntary
Repatriation
Private
Sponsorship
Spontaneous
Departures
20
12
New arrivals
New births
RST
Departures
Dec-11
133
79
Jan-12
56
10
44
Feb-12
11
75
Mar-12
99
Apr-12
6(**)
274
95
165
Jun-12
1(***)
48
31
20
Jul-12
53
Week of 7 Jun - 13 Jul
33
103
65
19
80
17
File Closure
1
2
May-12*
Deaths
*13 persons are waiting clearance for registration (claim to be new arrivals)
** Reopening of 1 case of A/S in detention in Medenine
*** Reopening of 1 case of A/S
Country of Origin and Legal Status

Total
Country of Origin
Cases
Persons
Refugees
% of Total
Cases
Others
Asylum Seekers
Persons
Cases
Persons
Persons
Sudan
646
856
33,8%
607
792
39
64
Somalia
704
818
32,3%
637
747
67
71
Eritrea
251
303
12,0%
249
301
77
269
10,6%
77
269
114
184
7,3%
113
183
Iraq
Ethiopia
Chad
18
27
1,1%
15
24
Palestine
Cte d'Ivoire
Pakistan
8
13
3
21
13
12
0,8%
0,5%
0,5%
8
10
3
21
10
12
Mali
0,2%
Morocco
0,2%
1
1
1
1
Nigeria
0,1%
Democratic Republic of the Congo

Algeria
Gambia
2
1
2
2
2
2
0,1%
0,1%
0,1%
1
2
1
1
2
Central African Republic
0,1%
1
1
2
1
1

Cameroon
Liberia
Senegal
1
1
1
India
Total
1 853
Month of Arrival
fvr-11
mars-11
avr-11
mai-11
juin-11
juil-11
aot-11
sept-11
oct-11
nov-11
dc-11
janv-12
fvr-12
mars-12
avr-12
mai-12
juin-12
juil-12
2
1
1
1
1
0,1%
0,0%
0,0%
0,0%
0,0%
0,0%
2 532
100,0%
16
1 363
335
147
86
86
59
42
124
20
130
25
10
61
7
19
2
-
1
1 732
0,6%
53,8%
13,2%
5,8%
3,4%
3,4%
2,3%
1,7%
4,9%
0,8%
5,1%
1,0%
0,4%
2,4%
0,3%
0,8%
0,1%
0,0%
Persons Not of concern to UNHCR
2 381
121
Ex-Libya Origins
Iraq
Sudan
Eritrea
Somalia
Ethiopia
Palestine
Chad
Others
Total
Total
Country of Origin
Chad
Sudan
Nigeria
Cte d'Ivoire
Ethiopia
Mali
Gambia
Ghana
Liberia
Pakistan
Bangladesh
Others
Total
Cases
86
62
36
30
14
8
7
7
6
3
3
16
278
177
124
79
71
19
10
4
1
487
(rejected asylum seekers)
% of Total
Persons
111
69
41
30
18
8
7
7
6
5
3
18
323
34,4%
21,4%
12,7%
9,3%
5,6%
2,5%
2,2%
2,2%
1,9%
1,5%
0,9%
5,6%
1
1
150
Final rejection decisions - Breakdown by Nationality
524
Not of Concern:
Still residing in the camp
Departed
281 87,0%
42 13,0%
Annex 3
UNHCR Tunisia Fact Sheet
September 2012
525
UNHCR TUNISIA
September 2012
UNHCR 2012/Hala Al-Horany- Resettlement departures from the Shousha Transit Camp to Germany
Latest Developments
- On 3 September, 195 refugees in the Shousha transit
camp were resettled to Germany. The total number of
refugees accepted to Germany is 201, but six had to
postpone their departure for medical reasons.
- On 10 September, a boat heading from Libya to Italy
disembarked 154 passengers in Tunisia. The group was
not transferred to the Shousha transit camp. Rather,
100 arrivals opted to return home voluntarily with IOM
and were transferred to a center in Tunis. 50 arrivals
requested asylum and were transferred to a center in
Zarzis. Four migrants who have not sought asylum are
undecided about return and thus remain in a National
Guard compound.
- The Department of Homeland Security of the United
States completed its fifth and final security ride to interview 569 refugees for resettlement on 11 September. 561 refugees were pre-selected for resettlement.
- UNHCRs Representative met with the Vice President
of Tunisia's Constituent Assembly to seek support for a
reference to the right to asylum and respect for the notion of non-refoulement in the new constitution.
- UNHCR, IOM, ICMPD and the EU will participate with
the Ministry of Interior in a joint assessment of Tunisias border management capacity.
Population of the
Shousha Transit Camp
September 2012
Country of origin
Refugees
Asylum
Seekers
Total
Sudan
678
55
733
Somalia
647
64
711
Eritrea
214
216
Iraq
183
183
Ethiopia
117
119
Chad
23
26
Palestine
21
21
Cte dIvoire
10
13
Others*
30
39
Total refugees and

asylum seekers
1,923
136
2,061
Migrants ex-Libya
Total population in the transit camp
280
2,341
* 14 different nationalities
Departures from Shousha Transit Camp (September 2012)

UNHCR Resettlement
Submissions and Departures (persons)
Country
Australia
Belgium
Canada
Denmark
Finland
France
Germany
Ireland
Netherlands
Norway
Portugal
Spain
Sweden
Switzerland
UK
USA
UNHCR Referral
526
Submitted
150
27
38
28
30
1
290
27
58
582
28
107
222
2
10
2,424
4,024
Departures
110
25
2
21
21
1
195
24
19
476
23
80
201
0
2
396
1,596
Applications that are refused by one resettlement

country can be resubmitted to another country. Final
acceptance of refugees, however, is fully dependent
on the decision of resettlement countries.
1 refugee without hope is too many: visit www.unhcr.org
Refugees submitted for resettlement

In response to the Libya crisis last year and on account of Tunisias own revolution, UNHCR launched the Global Resettlement
Solidarity Initiative.
By August 2012, UNHCR made 4,024 submissions (including resubmissions) to resettlement countries on behalf of refugees registered in the Shousha transit camp before December 2011.
Refugees registered after that date will not automatically be referred for resettlement to prevent a pull factor.
Resettlement countries have accepted 2,139 refugees submitted
through UNHCR. 1,792 refugees have already departed (including
150 to the ETC in Romania/Slovakia).
1,213 refugees await a final decision from a resettlement country.
Other departures from Shousha Transit Camp
In addition to resettlement departures, over 300 persons of concern departed for Canada, Switzerland, Italy and Poland thanks to
private sponsorship or immigration programmes.
Shousha Transit Camp
UNHCR Presence in Tunisia
In response to the 2011 Libya crisis, UNHCR began registering and assisting non-Libyan asylum seekers and
refugees of 22 nationalities in a transit camp (Shousha)
near the border crossing of Ras Ajdir. UNHCR and its
partners provide basic humanitarian assistance while
also facilitating durable solutions for the transit camp
population.
The United Nations High Commissioner for Refugees

(UNHCR) started its operations in Tunisia upon request
of the Tunisian Government in 1957 to assist several
thousand Algerian refugees and established an Honorary
Representation in 1963. Following the signing of the Cooperation Agreement between the Government of Tunisia and UNHCR on 18 June 2011, UNHCRs first Representative was appointed on 15 September 2011.
Today, Shousha hosts 1,923 refugees and 136 asylum

seekers. The majority of refugees in the transit camp
will be accepted for resettlement. UNHCR nevertheless
anticipates some 400 refugees will not be resettled and
will thus be assisted to become self reliant outside the
transit camp once it is closed.
There are also 280 migrants in Shousha who were not
recognised as refugees after a careful review of their
asylum claims by UNHCR. IOM facilitates the voluntary
return and reintegration of these individuals, who do not
come under UNHCRs mandate.
Urban Refugees
In Tunis, there are 84 refugees and 259 asylum seekers
(mainly from Cte d'Ivoire). UNHCR processes asylum
claims and provides assistance to the most vulnerable
among them. Resettlement is reserved for refugees facing an immediate physical protection risk in Tunisia.
A few Libyan families who fled the conflict in 2011 still
reside in urban and semi-urban areas where they have
been generously accommodated by host communities,
with some basic assistance from UNHCR.
Groups of Syrians have also entered Tunisia recently,
but have not yet approached UNHCR. A mapping of the
Syrian population is thus underway with CRT to determine their protection needs.
Collaboration and Partnerships

Government Collaboration
UNHCR is collaborating closely with the Ministries of Interior, Foreign Affairs, Social Affairs, Womens Affairs, Justice,
Human Rights and Employment.
Implementing Partners
Tunisian Red Crescent (CRT)
Danish Refugee Council (DRC)
Islamic Relief Worldwide (IRW)
International Medical Corps (IMC)
France Terre dAsile (FTDA)
Arab Institute for Human Rights (IADH)
International Organisation for Migration (IOM)
UN Coordination
UNHCR is a member of the UN Country Team and plays an
active role in the UNs Transition Strategy for Tunisia, as
lead agency with IOM for emergency preparedness and response.
For further information, please contact:

UNHCR Tunisia
Tel : +216 71963383 / +216 71963367
Fax :+21671963384
Email: TUNTU@unhcr.org
1 refugee without hope is too many: visit www.unhcr.org
Operational Background
During the Libya crisis in 2011, UNHCR supported the
generous relief effort of the Tunisian government and
people for the hundreds of thousands of persons fleeing
the violence in Libya. This emergency operation and Tunisias post-revolutionary climate enabled UNHCR to engage the newly elected Government and non-state actors to work towards a more favourable protection environment for refugees and to explore the potential for a
legal and institutional framework for asylum.
National Legal Framework

Tunisia is signatory to the 1951 Convention relating to
the Status of Refugees and its 1967 Protocol. It has also
ratified the 1969 OAU Convention Governing Specific
Aspects of Refugee Problems in Africa. A national legal
framework for asylum has yet to be enacted but is currently under discussion with the authorities. For the time
being, UNHCR remains the sole entity undertaking refugee status determination.
Objectives
UNHCR Tunisias overall aim is to ensure a favourable
protection environment through:
1. Supporting the government to establish a national
asylum law and system.
2. Registering, documenting and counseling persons of
concern.
3. Undertaking refugee status determination.
4. Targetting assistance to vulnerable refugees.
5. Facilitating durable solutions for refugees.
6. Promoting a constructive and sustainable engagement from the authorities on international protection.
7. Strengthening and collaborating with civil society.
UNHCR Tunisia Offices and Staffing
UNHCR has two offices in Tunisia. The Country Office in

Tunis also acts as a UNHCR Regional Technical Hub for
UNHCR offices in North Africa
Country Office in Tunis:
13 national staff, 5 international staff
Regional Technical Hub for North Africa in Tunis:
6 international staff
Field Office in Zarzis:
23 national staff, 10 international staff
Budget
2012: USD 27.2 million (requirements)
2011: USD 33.3 million (expenditures)
527
Annex 4
Persons of Concern of UNHCR in Shousha Camp
Demographics (Internal External)
528
Persons of concern of UNHCR in Shousha camp - Demographics (Internal - External)
UNHCR Zarzis
Total Active Registered persons of concern
12/10/2012
All Registered
Refugees
Asylum Seekers
Total Refugees & Asylum Seekers
Others**
1 660
1 537
121
1 658
EX-Libya
313
312
313
Others*
19
19
19
Totals
1 992
1 868
122
1 990
Tunisia

Age & Gender Breakdown by Country of Origin

0-4
Country of
Origin
Sub Total
%
Total
5-11
18-59
75
29
36
25
97
211
1 450
18
316
1 676
60%
45%
55%
20%
80%
13%
87%
10%
90%
16%
65
122
1 661
1
3
1
2
3
2
2
2
1
3
9
1
4
2
1
2
1
13
25
12
1
49
1
Guinea Conakry
India
Iraq
Mali
Morocco
Nigeria
Pakistan
Palestine
Senegal
Somalia
Sudan
Total
124
Eritrea
Ethiopia
Gambia
>60
49
40%
Algeria
Cameroon
CAR
Chad
Cte d'Ivoire
DRC
12-17
20
1
1
2
13
13
1
175
77
70
4
2
2
1
1
4
2
3
17
9
1
24
28
1
15
22
1
12
44
26
58
52
Sex and Age
0-4
5-11
12-17
18-59
60+
Total
% of Total
Female
49
28
26
211
316
15,9%
Male
75
36
96
1 451
18
1 676
84,1%
Total
124
64
122
1 662
20
1 992
6,2%
Avg. case size
3,2%
1,3
6,1%
83,4%
1
3
7
1
539
541
1
84%
1 992
2
9
2
1
2
25
14
6
204
117
2
2
1
171
1
8
2
1
8
21
1
686
715
2
Individuals (age)
Children
16%
1,0%
Avg. case size excluding single person cases
3,8
Ethnic Origins
Hawiye
274
13,8%
Number of families
Zaghawa
263
13,2%
Female-Headed
1 534
Arab
159
8,0%
Male-Headed
Massalit
137
6,9%
Tigrinya
107
5,4%
Religious Background
Oromo
98
4,9%
Islam
Shekhal
85
4,3%
Christianity
Fur
62
3,1%
Other
Tigre
47
2,4%
Dir
35
1,8%
Specific Needs
Madiban
32
1,6%
Serious medical condition
210
Rahan-weyn
32
1,6%
Specific legal and physical protection needs
141
7,1%
Ashraaf, Ashraf
28
1,4%
Torture
99
5,0%
50
3,3%
1 484
96,7%
1 825
91,6%
156
7,8%
11
0,6%
Adults
84%
10,5%
Meidob
27
1,4%
Unaccompanied or separated child
67
3,4%
Nuba
26
1,3%
Disability
46
2,3%
Belin
24
1,2%
Family unity
33
1,7%
Dadjo
23
1,2%
Woman at risk
33
1,7%
13
0,7%
Berti
22
1,1%
Older person at risk
Tama
21
1,1%
Child at risk
0,5%
Sahow
21
1,1%
Single parent
0,3%
Darod
19
1,0%
One individual can have more than one specific need
Ogaden
18
0,9%
None
13
0,7%
Rer-hamar
13
0,7%
Other
406
20,4%
529
Annex 5
Population Statistics for Shousha Camp
Internal External
530
Population Statistics for Shousha camp - Internal
UNHCR Zarzis
12/10/2012
Persons of concern
Persons Not of concern
Total Residents in the Camp
1 992
281
2 273
87,64%
12,36%
100%
Persons of concern to UNHCR

All Registered
Refugees
Asylum
Seekers
Total Refugees &

Asylum Seekers
Others**
1 660
313
19
1 992
1 537
312
19
1 868
121
1
0
122
1 658
313
19
1 990
2
0
0
2
Tunisia
EX-Libya
Others*
Totals
RST Departures (*)

UNHCR resettlement departures

ETC Departures
Non-UNHCR resettlement departures
1712
150
145
Total Departures
2007
Total
- Including recognized refugees
incl. referred to RST
* As recorded in Progres
RST process
New arrivals registered since 1st Dec. 2011

310
156
25
- Including finally rejected
RSD Process (asylum seekers)

Pending 1st inst. decision
Pending appeal
Pending 2nd inst. decision
(Refugees)
Accepted by RST country
1 475
Submitted to RST country
110
110
12
Population movement since 1st Dec. 2011
Increases
New arrivals
Dec-11
133
Jan-12
56
Decreases
New births
RST
Departures
Private
Sponsorship
Spontaneous
Departures
20
Voluntary
Repatriation
-
79
10
44
Feb-12
11
75
Mar-12
99
Apr-12
6(**)
274
163
1(***)
48
31
20
Jul-12
11
229
14
Aug-12
103
65
19
80
95
Jun-12
File Closure
12
May-12*
Deaths
17
1
1
42
Sep-12
292
Oct-12
38
Week of 5 Oct - 12 Oct
30
*8 persons are waiting clearance for registration (claim to be new arrivals)

** Reopening of 1 case of A/S in detention in Medenine
*** Reopening of 1 case of A/S
Country of Origin and Legal Status

Total
Country of Origin
% of Total
Refugees
Others
Asylum Seekers
Persons
Cases
Persons
Cases
Persons
Sudan
562
715
35,9%
532
667
30
48
Somalia
601
686
34,4%
546
627
55
59
Eritrea
180
204
10,2%
179
203
50
171
8,6%
50
171
Cases
Iraq
Persons
Ethiopia
81
117
5,9%
79
115
Chad
16
25
1,3%
14
23
Palestine
Cte d'Ivoire
Pakistan
8
14
2
21
14
8
1,1%
0,7%
0,4%
8
10
2
21
10
8
3
2
3
-
Mali
0,4%
Democratic Republic of the Congo
0,3%
Central African Republic
0,1%
Gambia
Algeria
Guinea
2
1
2
2
2
2
2
0,1%
0,1%
0,1%
0,1%
2
1
2
1
1
1
1
0,1%
0,1%
0,1%
0,1%
0,1%
Morocco
Nigeria
Senegal
Cameroon
1
1
1
India
Total
1 534
Month of Arrival
fvr-11
mars-11
avr-11
mai-11
juin-11
juil-11
aot-11
sept-11
oct-11
nov-11
dc-11
janv-12
fvr-12
mars-12
avr-12
mai-12
juin-12
juil-12
aot-12
sept-12
0,1%
1 992
100,0%
9
1 074
265
112
48
67
41
24
81
16
123
22
9
54
6
16
6
7
4
8
0,5%
53,9%
13,3%
5,6%
2,4%
3,4%
2,1%
1,2%
4,1%
0,8%
6,2%
1,1%
0,5%
2,7%
0,3%
0,8%
0,3%
0,4%
0,2%
0,4%
Persons Not of concern to UNHCR
1
1
1
2
1
2
1
1
1
1 433
2
1
1
1 868
1
-
1
-
100
Ex-Libya Origins
Iraq
Sudan
Somalia
Eritrea
Ethiopia
Palestine
D.Republic of the Congo
Others
Total
122
115
72
47
45
14
10
4
6
313
(rejected asylum seekers)
Final rejection decisions - Breakdown by Nationality

Total
Country of Origin
Chad
Sudan
Nigeria
Cte d'Ivoire
Ethiopia
Mali
Gambia
Ghana
Liberia
Pakistan
Bangladesh
Others
Total
Cases
87
62
36
30
14
8
7
7
6
3
3
17
280
% of Total
Persons
112
69
41
30
18
8
7
7
6
5
3
19
325
34,5%
21,2%
12,6%
9,2%
5,5%
2,5%
2,2%
2,2%
1,8%
1,5%
0,9%
5,8%
Not of Concern:
Still residing in the camp
Departed
281 86,5%
44 13,5%
531

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KNOW RESET BUILDING KNOWLEDGE FOR A CONCERTED AND

SUSTAINABLE APPROACH TO REFUGEE RESETTLEMENT

Refugee Resettlement in the EU 2011-2013 Report

Edited by Delphine Perrin

KNOW RESET Research Report 2013/05

2013. All rights reserved.

KNOW RESET RR 2013/05

2013, European University Institute

European University Institute

Emergency Transit Facilities.

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Very few of them have a long tradition of resettlement,

Only six Member States have had no involvement in resettlement.

2. Outputs and Findings

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

KNOW RESET RR 2013/05 2013 EUI, RSCAS

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

Background information: Resettlement and the Joint EU Resettlement Programme

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Background information: Resettlement and the Joint EU Resettlement Programme

EU Member States involvement in resettlement

The Joint EU Resettlement Programme (Jeurp)

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

increase EUs humanitarian impact

to integrate resettlement into external relations policy,

to streamline actions of Member States to make them more cost effective.

On 29 March 2012, the European Parliament voted on the Joint EU Resettlement

For the rest the compensation will remain at EUR 4,000.

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Background information: Resettlement and the Joint EU Resettlement Programme

Pilot scheme in 2013

to provide durable solutions to an increased number of refugees by supporting their transfer

women and children at risk,

persons in need of emergency resettlement or urgent resettlement for legal orphysical

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

first two years 2014-2015 are listed as:

KNOW RESET RR 2013/05 2013 EUI, RSCAS

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Country Comparison Resettlement In The Eu And Its Member States

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Country Comparison Resettlement In The Eu And Its Member States

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Country Comparison Resettlement In The Eu And Its Member States

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Refugee Resettlement in the EU - 2011-2013 Report

KNOW RESET RR 2013/05 2013 EUI, RSCAS

Country Comparison Resettlement In The Eu And Its Member States

KNOW RESET RR 2013/05 2013 EUI, RSCAS