reception of asylum seekers voluntary return

Transcription

1 reception of asylum seekers voluntary return * Annual Report 2011

2 2 Fedasil Annual Report 2011 Contents Foreword // 3 About Fedasil // 4 Reception of asylum seekers // 5 Arrivals, Reception capacity, Occupancy, Unaccompanied minors Voluntary return // 12 Return programme, Assistance, Figures This Annual Report in English is a concise version of the reports published in French and Dutch. Published by: Fanny François, Director-General a.i. Chief Editor: Mieke Candaele Editors: Benoît Mansy, Peter Neelen, Tine Provoost, Lin Vanwayenbergh Layout: Marthe De Clercq Translations: Oneliner and Fedasil Printing: Boone-Roosens (printed on recycled paper) All rights reserved - No part of this publication may be reproduced by any means - electronic, mechanical, photocopying, film, or otherwise - without the prior written permission of the publisher Brussels, March 2012.

3 Foreword Fedasil Annual Report Foreword It is our pleasure to present our Annual Report for 2011, a year once again marked by the asylum crisis in Belgium. However, in view of the important measures expected in 2012, we hope that, next year, we will be able to present you more optimistic trends. Following the proposal by the State Secretary for Asylum and Migration, Maggie De Block, the federal government will approve a global and structural plan on asylum and reception. Different measures will be taken, such as the acceleration of the processing of asylum applications, the drawing up of a list of safe countries, better identification of unaccompanied minors, the implementation of a return plan, dissuasion campaigns in countries of origin, etc. Fedasil, as the organisation responsible for the reception of asylum seekers, is counting on the positive impact of these measures to reduce the pressure on its reception network. In 2012, despite a difficult budgetary context, additional resources were freed up for asylum and reception. Fedasil is planning to use this extra budget effectively, whilst also reinforcing its voluntary return programme in collaboration with the Aliens Office, our partners in Belgium, and local partners in the countries of origin. The reception of unaccompanied foreign minors (MENA) is another major challenge, despite the number of places created for MENA in Today, the guidance provided is, as a priority, reserved for unaccompanied minors who apply for asylum (UMA s). Fedasil is planning soon to open specific places for MENA who are not applying for asylum, during the identification phase. In terms of voluntary returns, no fewer than 3,358 migrants returned to their country of origin in These were asylum seekers (who had been turned down), illegal immigrants, or migrants for whom life in Belgium was not quite as they had imagined it to be. Fedasil is setting up a full process to extend, widen and professionalise its voluntary return programme. The increase in these figures reflects the positive results: voluntary return has become one of the pillars of our country s asylum and migration policy. I hope you enjoy reading our Annual Report. Fanny François, Director-General a.i. The reception capacity in Belgium has risen constantly in recent years. With more than 24,000 reception places available, we have now reached an upper limit in operational and budgetary terms. We also encountered difficulties in our search for suitable buildings. Our aim is definitely not to continue to expand the reception capacity.

4 4 Fedasil Annual Report 2011 About Fedasil About Fedasil The federal Agency for the reception of asylum seekers in Belgium (Fedasil) is a public interest organisation. Fedasil is in charge of guaranteeing the granting of material aid to asylum seekers and to other categories of foreigners with equal rights to reception. Fedasil coordinates high-quality reception and support services, both directly and together with its partners. The Agency also monitors and provides guidance for unaccompanied foreign minors ( MENA ). Fedasil contributes to the design, preparation and implementation of the reception policy. By setting up various initiatives Fedasil helps integrating the reception centres within the local community. Fedasil is also the competent authority for the European Refugee Fund (ERF) in Belgium. The Agency also coordinates the voluntary return programmes. At the end of 2011, 1,123 full-time employees worked at Fedasil (this equals 1,288 people). Employees were based at the 19 reception centres (in total 918 full-time employees) and at the head office, the Dispatching service and the four regional offices (a total of 205 full-time employees). In the course of one year, the number of full-time employees has risen by 109 (or 120 people). More staff was required due to the increase in reception places. EPRA Fedasil is a member of ENARO (European Network of Asylum Reception Organisations) which brings together reception organisations from different European countries. Since March 2011, Fedasil has also piloted a new Europe-wide consultation programme: EPRA (European Platform of Reception Agencies). With ENARO focusing on exchanges in good practices between workers in the field, the EPRA programme aims to become a forum centred on the strategic aspects of reception. Therefore, these two brainstorming forums are complementary. Seven countries are participating actively in the EPRA programme: Belgium, the Netherlands, Ireland, Norway, Sweden, France and Spain. Through EPRA, Fedasil wishes to develop a network which is able to improve national and European policies. In order to increase the reception capacity, in 2011, Fedasil obtained a further budgetary increase. In 2011, Fedasil s total revenue rose to million (including a federal government grant of million). Total expenditure rose to million. Subsidies paid to partners to finance the reception of asylum seekers represent the main item of expenditure ( million).

5 Arrivals Fedasil Annual Report Reception of asylum seekers arrivals 25,479 asylum applications were made in Belgium in 2011 (one application may correspond to one person or to a family with children), this is a 28% increase compared to This figure confirms the upward trend in asylum applications observed in Belgium since The main countries of origin are, in order of importance, Afghanistan, Guinea, Iraq, Russia, Serbia and Kosovo. Further information: Fedasil s Dispatching service is in charge of referring asylum seekers to a reception structure where they will receive material aid. This aid (reception and support) is provided for throughout the asylum application examination process. In 2011, 32,574 newly arrived asylum seekers applied to Fedasil s Dispatching service for a reception place. As in previous years, the increase in asylum applications (and therefore in the number of reception applications) has contributed greatly to saturating the reception network. The Dispatching service has referred 24,355 people towards a reception structure, generally an emergency centre. As in 2009 and 2010, the Dispatching service was also forced to proceed with non-referrals owing to a lack of available places. Although, in principle, these people are entitled to reception, they can also apply to a Public Social Welfare Centre and request social assistance. In 2011, 4,314 people received a non-referral. Policy In April and July 2011, the Belgian federal (interim) government adopted different measures in the field of asylum: dissuasion campaigns in certain countries of origin, additional staff for the asylum organisations, opening of reception places and extension of emergency reception. While awaiting the formation of a new government, a majority also emerged in Parliament which aimed to modify the law on reception, excluding certain categories of asylum seekers from the right to material aid. In December 2011, the new Di Rupo government came into power. Maggie De Block became the State Secretary for Asylum and Migration: reception and asylum procedures now fall under the authority of a single person. The government agreement includes a large section devoted to asylum. In order to resolve the current crisis, the State Secretary is planning to set up a global plan (procedures, arrivals and departures, minors, return, cooperation between the asylum authorities). Of all the newly arrived asylum seekers who applied to Dispatching in 2011, 75% were given a reception place and 13% did not receive a place. The other 12% were no show asylum seekers (asylum seekers who do not want accommodation or who are applying for asylum for a third time or more and who are no longer entitled to reception).

6 6 Fedasil Annual Report 2011 Arrivals Evolution of asylum applications in Belgium Asylum applications N of people concerned * * Until 2009: estimation of the number of people corresponding to asylum applications. From 2010: number of people registered by Fedasil s Dispatching service. Sources: CGRS and Fedasil. Reception capacity The reception network for asylum seekers in Belgium had 24,026 places at its disposal at the end of Within one year, the reception capacity increased by 2,614 places (21,412 places at the end of 2010), namely a 12% rise. Owing to the reception network s saturation, a situation observed since 2008, the network s extension continued in The network has 21,589 regular places and 2,437 emergency places. Regular places are divided up between collective centres and individual housing (each 50% of the reception capacity). Fedasil directly manages 20% of the total capacity. The other places are entrusted to partners through conventions: Public Social Welfare Centres (local reception initiatives which represent 37% of the total capacity), the French-speaking Red Cross (17%) and the Flemish Red Cross (7%), NGOs (CIRÉ and Vluchtelingenwerk Vlaanderen, 8%) and other partners (1%). Emergency reception structures represent the remaining 10%. In principle, the reception system in Belgium provides for a 2-step process: asylum seekers start by staying in a collective reception structure (a centre), then, after a four-month stay, they can request a transfer to individual housing (subject to availability) which offers them greater autonomy. Owing to the permanent saturation of the reception net-

7 Reception capacity Fedasil Annual Report work, this model was reviewed in January 2011: newly arriving asylum seekers are firstly accommodated temporarily in emergency reception centres, before being transferred to a collective centre. From a two-step process, Fedasil has now moved to a three-step process. At the end of 2010, by decision of the federal government, the number of emergency places increased considerably thanks to the provision of barracks managed by the Red Cross. The sites were fully operational in March Emergency reception was provided for a temporary period, originally until the end of 2011, but this was extended, in order to ensure enough places during the winter period. Since 2009, asylum seekers have been housed in lowcost hotels, mainly in Brussels. At the start of 2011, almost 1,200 people were still housed in hotels, but both Fedasil and the government wanted to put an end to this policy. During the first term of 2011, the people concerned were gradually transferred to the regular reception network. At the end of 2011, despite Fedasil s efforts, there were still about one hundred people staying in hotels (mainly unaccompanied minors whose age is in doubt and who are awaiting the result of the age test). In 2011, Fedasil created almost 400 additional places in its federal centres, in particular via the installation of prefabricated housing at several existing centres. Fedasil also opened three new federal reception initiatives. A federal reception initiative comprises one or more individual housing structures, and is situated close to an existing reception centre and is managed by it. The residents live independently and the main centre plays a support role. Very few staff is needed to manage a federal reception initiative. The first federal reception initiative was inaugurated in At the end of 2011, the four federal reception initiatives offered a total of 99 reception places. New federal reception initiatives were opened at the start of 2012 and others are planned according to available resources. Resettlement Resettlement involves selecting and transferring refugees from a country where they have sought protection to a third country. In this way, the project offers a solution for refugees who are unable to count on sufficient protection in the first reception country, or where they have no prospect of integration. In July 2011, Belgium welcomed 25 refugees (Eritrean and Congolese) from Libya. These people benefited from a protected status in Libya, but when war broke out they were forced to flee to a temporary camp in Tunisia. Their resettlement in Belgium started with an initial reception period of a few weeks in a Fedasil centre. In order to facilitate their adjustment to life in Belgium, the refugees stayed there in a secure environment and followed training courses. After this first period they were able to settle in individual housing. Two partner organisations, Caritas and Convivial, took further charge of the support and helped with the search for proper housing. Further information on

8 8 Fedasil Annual Report 2011 Reception capacity Evolution of reception capacity Reception network: contribution of partners regular emergency Green: regular reception capacity (structural). Gray: emergency reception capacity (hotels included since May 2009). Situation end of December. places % Regular reception Fedasil French-speaking Red Cross Flemish Red Cross Local reception initiatives (CPAS) Vluchtelingenwerk Vlaanderen Ciré Other partners Emergency reception Fedasil, Red Cross and Samu social Hotels 135 <1 total

9 Occupancy Fedasil Annual Report Occupancy At the end of 2011, a total of 23,148 people were accommodated in the reception network, representing an occupancy rate of 96.3%. The occupancy rate compares capacity to the number of people received. A situation is referred to as critical above an occupancy rate of 94%, given that not all the beds available can be used (for example, one room for a family of 6 people occupied by a family of 5 people means that one place is lost, or if a room cannot be occupied owing to works). That this rate could reach 96.3%, is a result of the setting up of additional beds in existing centres (overcapacity), but also of the flexibility and inventiveness of the reception structures and Dispatching service. The increase in arrivals combined with the extension of the length of stay in the reception structures (mainly as a result of the backlog in the processing of asylum applications) has had a negative impact on the number of departures. Given that the network s extension is unable to provide all the solutions to the reception crisis, Fedasil has suggested different measures to encourage departures from the network. In 2011, Fedasil asked for a move to financial help for some of the people received. This is possible in the framework of the law, but the government s approval is required for its implementation. No political decision has been made in this sense. In terms of the composition of households, Fedasil and its partners mainly welcomed families (64% of residents). 25% of the people received were single men, 7% were single women, and 4% were unaccompanied foreign minors (MENA). More than one resident out of every three is under 18 years of age (minor in a family or unaccompanied). In 2011, we observed a high proportion of single men applying for asylum, although the regular network does not have enough places for this type of public: as an example, in the middle of 2011, one asylum seeker out of every two was a single man. In terms of nationalities, more than one hundred countries are represented in the reception network. 44% of the residents come from Europe (Caucasia and Balkans), 28% come from Africa (Guinea, Congo) and 27% come from Asia (Afghanistan, Iraq). We have observed an increase in the number of Afghan citizens (12% of people received at the end of 2011). Handling incidents In 2008, Fedasil created stress teams at its federal reception centres. Stress teams are made up of voluntary colleagues who offer a frontline solution to colleagues faced with a shocking workplace incident (assault, fight, suicide, accident, etc.). These volunteers help and listen to the people affected and are attentive to how they progress over the following days and weeks. Stress team members (two or three per centre) receive proper training. In 2011, 337 incidents were reported in the Fedasil centres, this is about one per day. These figures are stable compared to 2010, although they do vary from one centre to another. When a (large) group of staff members is involved in an incident, Fedasil calls upon an external prevention service.

10 10 Fedasil Annual Report 2011 Unaccompanied minors Unaccompanied minors Minors arriving in Belgium without a parent or a legal guardian ( unaccompanied foreign minors - MENA), benefit from a specific reception plan and guidance. The reception of MENA has also been greatly affected by the reception network s saturation. At the end of 2011, Fedasil and its partners were accommodating 1,281 MENA (+64% compared to the end of 2010). In principle, the reception plan for MENA is organised in three phases. In the first reception phase, MENA (whether asylum seekers or not) are housed in one of the two observation and orientation centres managed by Fedasil, each offering 50 reception places. If a minor applies for asylum, he is transferred to a collective reception structure in the Fedasil network (2nd phase, total of 841 places). Reception and supervision are provided there in wings designed specifically for minors. In the third phase, the young asylum seeker may be referred to a more individual style of reception centre ( supervised autonomy ) organised by a Public Social Welfare Centre or a partner association (total of 133 places). If a minor does not apply for asylum, the law also provides for appropriate reception which, as a priority, depends on the Communities. The asylum crisis has disrupted this principle of reception in phases. First of all, we have observed a steady increase in the number of young people applying for asylum (about 1,500 in 2011, compared to 900 in 2010 and less than 400 in 2006). We have also observed an extension in the length of stay at reception structures, a lack of places organised by the Communities specialist services, and difficulties in leaving the reception structure once the young person has obtained a resident s permit. Over the past few years, we have also noted delays in identifying and determining the age of MENA about whom the authorities have a doubt. In July 2011, Fedasil, the Guardianship service and the Aliens Office set up a new working method in order to be able to carry out the identification and the age tests within a reasonable period of time. The results of this collaboration are positive: At the end of 2011, the transit period for MENA whose age is in doubt has been cut to an average of 13 days (compared to 36 days in 2010). Therefore, a minor whose age is in doubt, is firstly placed in transit (46 places available at the end of 2011,divided between four centres), or, failing that, in a hotel, while awaiting the test results. This system also enables specific reception places for MENA to be reserved for proven minors. Minors who are declared to be adults are accommodated in a reception structure for adults. In 2011, Fedasil continued to extend the reception capacity for MENA. Most federal centres now have a wing for unaccompanied minors. Fedasil also received additional resources in order to convert adult reception places into places for autonomous minors (180 places), generally designed for minors aged 17 years and/or who have acquired sufficient autonomy. The profile of the MENA received has been much the same over the years. Most of them are boys (78.5% of young people received in 2011), often 16 or 17 years of age. Afghanistan and Guinea are by far the two main countries of origin for MENA received in 2011 (respectively 40% and 25% ofall unaccompanied minors).

11 //01 //03 //04 //02 //05 //06 //01 IOM organises the return journey practically. Candidates receive supervision on the way to and at the airport //02 Reception centre in Sugny (Fedasil) //03 Reception centre for unaccompanied minors in Neder-over-Heembeek (Fedasil) //04 Reception centre in Sugny (Fedasil) //05 Reception centre Petit Château in Brussels celebrates its 25th birthday //06 Resettlement of refugees from Libya (the reception centre in Pondrome)

12 12 Fedasil Annual Report 2011 Return programme Voluntary return Return programme In 2011, 3,358 migrants left Belgium to return voluntarily to their country of origin. These were asylum seekers (whose application had been denied), illegal immigrants, or migrants for whom life in Belgium was not as they had imagined. Since 2006, Fedasil has been responsible for the voluntary return programme from Belgium (formerly called the REAB programme). Its organisation is ensured in close collaboration with major partners, namely Caritas and the International Organisation for Migration (IOM), and several small local partners in Belgium. The voluntary return programme has gained ground in recent years. It comprises two parts: return and additional reintegration support. Almost every migrant wishing to return to his country of origin can apply to the voluntary return programme. This programme enables migrants to overcome difficulties preventing their return, as much in terms of costs as in terms of practical organisation. Candidates receive a flight ticket to the destination of origin, support in organising the journey, a return allowance of 250 per person ( 125 for minors), and supervision at departure, transit and destination airports. Since its creation in 1984, the voluntary return programme has enabled more than 52,000 migrants to return home. Fedasil entrusts IOM with the journey s practical organisation. The return of migrants often requires more than a simple flight ticket to their country of origin. Once they have arrived in the country, they have to overcome many obstacles before they can resume normal life. That is why, in recent years, Fedasil has developed a Reintegration Programme. This involves material support (not cash) granted to them once they arrive in their country of origin. The migrant may use this support for training, for restoring part of one s house, for starting up a business, or for assistance when looking for work. This support must allow him to resume his life in his country of origin. It represents 700 for an adult and 350 for a minor. Vulnerable people, such as unaccompanied minors, seriously Ill people, and pregnant women, receive extra material aid worth 500 to cover additional costs, such as hospital bills. Since 2010, this Reintegration Programme has been co-financed by the European Return Fund. But, it is not just material support that is important. It is just as important that, on arrival in their country of origin, someone is available to deal with potential problems encountered by migrants. On site, local partners provide administrative and social help for people who have returned. IOM and Caritas have a network of small partners in almost all the countries of the world. IOM has 450 offices in 144 countries. Caritas has access to a network of partner organisations which, in some countries, extends to even the smallest communities. IOM manages about two thirds of reintegration cases, with Caritas managing the remaining third.

13 Return programme Fedasil Annual Report Who is taken into consideration for the voluntary return programme in 2011? 1. Asylum seekers access to voluntary return access to return allowance access to reintegration Less than 1 month in Belgium No No No More than 1 month in Belgium EU countries: Yes * Outside of EU: Yes EU countries: No Outside of EU: Yes ** EU countries: No Outside of EU: Yes ** 2. Asylum seekers who have been turned down Order to leave the territory EU countries: Yes * Outside of EU: Yes EU countries: No Outside of EU: Yes ** EU countries: No Outside of EU: Yes ** 3. Illegal immigrants who have never applied for asylum Less than 3 months in Belgium EU countries: No Outside of EU: Yes More than 3 months in Belgium EU countries: Yes * Outside of EU: Yes EU countries: No Outside of EU: Yes EU countries: No Outside of EU: Yes ** EU countries: No Outside of EU: Yes ** If at least 12 months on the territory or if order to leave the territory. * Access only for new Member States: Bulgaria, Estonia, Hungary, Latvia, Lithuania, Poland, Romania, Slovakia and Czech Republic. ** In principle, not accessible to citizens of Serbia, Macedonia, Montenegro, Albania and Bosnia + people with a Serbian passport returning to Kosovo.

14 14 Fedasil Annual Report 2011 Assistance Assistance It is essential that, during all the different phases of their time spent in Belgium, migrants and asylum seekers can easily obtain information about voluntary return. Therefore, in 2011, Fedasil invested in wider and better assistance for return, as much within as outside of the reception structures. There are now different types of assistance for voluntary return according to whether a person is within or outside the reception network. The difference can be explained by the approach used. Assistance within the reception network is active. This means that assisting staff presents the programme proactively and encourages asylum seekers to question their future: what will happen if their asylum application is turned down? Fedasil has a staff member in charge of assistance for voluntary return at each of its federal reception centres for asylum seekers. This staff member is the centre s contact person for all information about voluntary return. In order to gain enough knowledge and experience, these staff members follow an intensive training course with observation missions in countries of origin. They are given the opportunity to meet people who have returned voluntarily to their country of origin and learn how to recognise the opportunities offered by the programme. In 2011, these types of missions were organised in Ukraine, Serbia, Kosovo, Georgia, Armenia, Nigeria and Senegal. pre-defined times. The information plan indicates when it is advisable to consider a return and for what purpose. At the start of the asylum procedure, the focus is placed mainly on information: people need to know what opportunities are available. Gradually, more focus is placed on raising awareness, and migrants are actively encouraged to make alternative arrangements. Outside of the reception process, assistance is reactive. Access to the voluntary return programme is conducted through a network of partners, namely about sixty NGOs, local authorities and organisations for migrants, with services to prepare and submit return applications. The great advantage of this network is that it facilitates access to the programme. Their assisting staff must be able to provide a quick and accurate reply to people expressing a wish to return voluntarily to their country of origin. But, it is not easy to organise a return. Many obstacles lie in the way between Belgium and the country of origin: inclusion in population registers, request for passports, preparation of tickets and documents, etc. Therefore, Fedasil has five regional repatriation supervisors: these supervisors work each in a different region of the country. They provide information for the Public Social Welfare Centre and partners and they help submitting the applications from people wishing to return home. In in order to simplify the task of the assisting staff at reception structures, Fedasil developed an information plan which enabled each resident in a reception centre to be informed about the opportunity for voluntary return at

15 Figures Fedasil Annual Report Figures In 2011, a total of 3,358 people returned to their country of origin, with 1,271 of them benefiting from additional reintegration support. Voluntary returns from Belgium have risen since Among the people who returned voluntarily in 2011, 528 were asylum seekers (16% of the total), 1,155 were asylum seekers who had been turned down (34%), and 1,675 were illegal immigrants who had never applied for asylum (50%). Reintegration support is used mainly by asylum seekers who have been turned down. Brazil (770 returns) and Kosovo (457) were the main countries of return, although the number of returns to Brazil has fallen in comparison to The other main destination countries were Russia (Chechnya), Ukraine, Macedonia and Armenia. Returns to Kosovo, Russia, Macedonia, Armenia and Iraq have risen. In terms of reintegration, projects mainly concerned people returning to Kosovo, Russia, Armenia and Iraq. Furthermore, at the end of 2011, the Aliens Office organised (with Fedasil s support) several returns by bus to the Balkans. More and more asylum seekers are coming from these countries and their chances of being recognised as refugees are very low. In November and December 2011, six bus journeys were organised, enabling the return of 157 people to Albania, Bosnia, Macedonia and Serbia. Other trips are planned in Evolution of voluntary returns Voluntary returns by migrant category (2011) Voluntary returns Reintegration Number of returns Number of reintegration allowances asylum seeker asylum seeker who has been turned down illegal migrant In 2011, a total of 3,358 people returned to their country of origin, with 1,271 of them benefiting from additional reintegration support. The number of voluntary returns and the number of projects for reintegration support have risen over the past years. Both asylum seekers (who have been turned down) and illegal immigrants can apply to the voluntary return programme. Reintegration support is used mainly by asylum seekers who have been turned down.

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