Ad-Hoc Query on support projects for applicants for international protection. Requested by the LU EMN NCP on 16 February 2015

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1 Ad-Hoc Query on support projects for applicants for international protection Requested by the LU EMN NCP on 16 February 2015 Compilation produced on 28 April 2015 Responses from Austria, Bulgaria, Belgium, Estonia, Finland, France, Germany, Hungary, Ireland, Italy, Latvia, Luxembourg, Netherlands, Slovak Republic, Slovenia, Sweden, United Kingdom and Norway (18 in Total) Disclaimer: The following responses have been provided primarily for the purpose of information exchange among EMN NCPs in the framework of the EMN. The contributing EMN NCPs have provided, to the best of their knowledge, information that is up-to-date, objective and reliable. Note, however, that the information provided does 1. Background Information In Luxembourg, the bill transposing the Directive 2013/33/EU of the European Parliament and of the Council of 26 June 2013 laying down standards for the reception of applicants for international protection (recast), foresees the setting up of a support project in which applicants for international protection may participate. This support project, elaborated in agreement with the applicant for international protection and based on his/her needs and personal interests, aims at developing his/her autonomy and at encouraging the improvement of individual skills. The project notably foresees: 1 of 11

2 1. Activities related to learning one of the three official languages of Luxembourg (French, German, Luxembourgish); 2. Activities related to learning about the fundamental rights of citizens and the public institutions of Luxembourg; 3. Activities related to facilitating financial and administrative procedures; 4. Social, cultural and sports-related activities. For the applicant for international protection, who subscribes to the support project, the modalities of the current monthly allowance may differ (no more vouchers will be handed to the applicant with an aim of increasing his/her autonomy and responsibility for the management of his/her daily life). In the framework of the elaboration of the support project, Luxembourg would like to know: 1. Whether your (Member) State has put into place similar projects aimed at empowering applicants for international protection during their international protection procedure? 2. If yes, what is the content of such projects (objectives, duration, activities and attractiveness for the applicants)? 3. What are the experiences made by your (Member) State when social aid granted to applicants for international protection is entirely paid out in cash? 2. Responses Wider Dissemination? Austria Yes Austria does not conduct specific programmes for the integration of applicants for international protection. This group of persons is, due to the fact that before completion of the asylum procedure no permanent legal residence is ensured, in principle not considered as a target group for integration measures. In general, all asylum seekers have the following possibilities of activities during the asylum procedure: - 3 months after admission of their asylum procedure employment of apprentices until the age of 25 years is possible in shortage occupations after labour market test. - auxiliary activities: applicants for international protection which are accommodated in reception facilities at the federal level or in the provinces can without any delay with their consent be involved for auxiliary activities, which are directly related with their accommodation (cleaning, kitchen, maintenance) and for non-profit auxiliary activities on behalf of the federal government, the province or the municipality (landscape work and design, care of park and sport facilities, support in the administration, etc.). These activities are remunerated with a financial allowance but do not count as employment (Art. 7 para 3 Federal Government Basic Welfare Support Act). - Non-material reception conditions can include leisure activities in organized accommodation (Art. 9 of the Basic Welfare Support Agreement). Activities offered in the different reception facilities vary in practice (e.g. language and integration courses, IT courses, sports and excursions). 2 of 11

3 - Furthermore, the care for unaccompanied minors (UAMs) in particular foresees an adequately structured daily routine, for example through education, leisure activities, sports, housekeeping and group and individual activities (Art. 7 and 9 Basic Welfare Support Agreement). (See also EMN Study: The Organization of the Reception System in Austria, Saskia Koppenberg, 2014, IOM) - UAMs who receive basic welfare support are entitled to support in the form of 200 teaching units of German language courses with a maximum cost of 3.63 EUR per unit per person (Art. 9 Basic Welfare Support Agreement); access to German language classes or secondary education are mostly undertaken by private initiatives or NGOs. - Asylum-seeking UAMs who are entitled to basic welfare support may receive integration support as defined in the Basic Welfare Support Agreement. The support includes the development of an integration plan and preparation measures with regard to schooling, vocational training and employment (Art. 7 para 3 Basic Welfare Support Agreement). There are several projects providing support, which are implemented by NGOs and international organizations. (See also EMN Study: Unaccompanied Minors in Austria Legislation, Practices and Statistics, Saskia Koppenberg, 2014, IOM) 3. In Austria there is no social aid granted to applicants for international protection entirely paid out in cash. Austria s basic welfare support can comprise, (amounts and structure of material and non-material reception support vary depending on the types of reception facility or private individual accommodation, the applicant for international protection is accommodated in): a cash allowance as well as vouchers and/or support in kind allowance. Belgium Yes For information on activities related to learning one of the three official languages of Belgium, activities related to learning about the fundamental rights of citizens and the public institutions of Belgium we would like to refer to our answer to Ad-Hoc Query on Educational projects for immigrants, requested by GR EMN NCP on 30th January 2015 (last compilation version sent on 13/03/2015). In the reception facilities for applicants for international protection, the financial and administrative procedures are explained and facilitated by the social workers. Social, cultural and sports-related activities are organised in the reception facilities or the residents can take part in those activities organised outside the reception structures for the general public. 3. The so-called Belgian Reception Act provides that asylum seekers are entitled to material aid/aid in kind. This material aid in reception centres comprises: accommodation; food; clothing; medical, social and psychological help; access to interpretation services; access to legal representation; access to training; access to a voluntary return programme and a small allowance (so-called pocket money) that has to be paid out in cash. After four months in a reception centre the applicant may in principle be eligible for individual reception in the municipalities, the so called local reception initiatives (LOI s) managed by the Public Centres for Social Welfare, or in private housing provided by NGOs, where the autonomy is much greater than in communal centres, and so part of the material aid is provided in the form of meal vouchers or cash or on a social assistance bank account (a prepaid debit card, for the moment only used for asylum seekers who are accommodates in the LOI managed by the Public Centres for Social Welfare) to enable the asylum seeker to buy food and other basic commodities him or herself. The amount that is foreseen as pocket money is until now still paid in cash. In Belgium we want try to avoid payments in cash as much as possible because of security reasons and to avoid the costs of securing 3 of 11

4 cash-transport operations. Fedasil (Federal Agency for the Reception of Asylum Seekers) started a pilot project in two of its federal collective reception centres. They provide the asylum seekers with a rechargeable debit card. It is a prepaid bank card on which Fedasil can transfer money. The card stays in the name of the organization (Fedasil) and the cardholder does not necessarily need to be identified by the bank. This is a practical solution in cases where an institution doesn t have the possibility to pay the beneficiary (who doesn t possess a valid identity document) directly on a regular bank account. The card may be used by its holder to carry out payments for point-of-sale purchases (that accept Bancontact/MisterCash or Maestro) and/or to withdraw cash from ATMs. The payments and cash withdrawals made by the card can in no way exceed the available balance on the account (no credit). The card stays inactive as long as she has not been assigned to a card holder by Fedasil. After evaluation of the pilot project the system of the rechargeable debit card will be implemented in all the federal reception centres and will replace all payments in cash. Bulgaria Yes 1. Up until 7 July 2014, there were training courses in Bulgarian language and professional qualification taking place at the State Agency for Refugees. In addition, there was training in language and social adaptation. Courses in art, sports and culture were offered in the form of different activities. At the present time, the support and adaptation of asylum seekers are provided by non-governmental organizations. 2. Non-governmental organizations projects: - Caritas-Sofia and CVS-Bulgaria project Refugees : supporting the adaptation of asylum seekers; permanent; courses in Bulgarian language for children, English language courses for children and adults, music, sports and arts for children. - Association Rescue Mission : supporting the adaptation of asylum seekers; Bulgarian language training for children and adults, art and music for children; permanent. - Citizens Association Right to choose project Second home : supporting the adaptation of asylum seekers; Bulgarian language courses for children; trips to cultural and historical sites for children and parents; project lasting until July Association on pedagogical and social support to children FICE-Bulgaria project Security and support to children : offering social services in accordance with the specific needs of unaccompanied minors seeking protection; project lasting till June 2015; psychological help and support to children, trips and excursions for children. 3. Social aid is not paid in cash. Estonia Yes 1. During application process, applicants for international protection offered some activities, for example in accommodation centre they are invited to take part of language classes. NGO Johannes Mihkelsoni Keskus (JMK) and International Organization Migration (IOM) provides more project-based support, like cultural orientation trainings for asylum seekers and individual support (translation aid while visiting doctors etc.). Aim of trainings and personal support is to help persons adapt and integrate better to Estonian society. 2. There is no time limit for such activities. According to accommodation centre feedback, they are obliged to provide languages courses, 4 of 11

5 but for asylum seekers participation is voluntary. 3. The social aid paid out per month in cash is approximately 80 euro per person and covers only person costs for food. Finland Yes Finnish courses are organised in reception centres (duration = continuous activity; objective = learning Finnish language, early integration, and providing activity sustaining mental health, activities = Finnish classes, reception centre curriculum; attractiveness = it s obligatory but at the same time it s popular activity) We are implementing a new project spreading materials and we have continuous practise to inform asylum applicants about asylum process and fundamental rights (duration = continuous activity; objective = provide information about Finnish society and rights and life skills and providing activity sustaining mental health etc.; activities = Information sessions and interactive classes provided in reception centres; attractiveness = it s obligatory but at the same time it s popular activity) Applicants are asked to take responsibility for their own financial and administrative procedures. (duration = continuous activity; objective = required by Finnish legislation and empowering applicants; activities = applying for reception allowance and taking responsibility for applicants own asylum process ; attractiveness = get reception allowance promptly) We are co-operating with different NGOs to organise social, cultural and sports-related activities. (duration = continuous activity but changing projects; objective = promotion of physical and mental health, early integration; activities = football, street dance, cooking and crafts, art, theatre, gym ; attractiveness = sports and arts are popular, street dance is also attractive to young women ) 3. Social aid is paid in cash for applicants in private accommodation and for those living in reception centres without food service. Experiences vary and no comprehensive research has been made. France Yes 1. In France, different types of social support and activities are offered in the reception centres for asylum seekers (CADA: centre d accueil pour demandeurs d asile). It is important to note that these centres receive persons who are less autonomous (families with children, non-french speakers, and people having health or psychological problems) and who consequently need priority support. CADA do not offer temporary support projects but an overall support aiming ultimately at empowering asylum seekers. 2. Different activities may be organized in the CADA (education, access to healthcare, civic courses, information on housing and work in France, etc.). French courses are not directly financed by the State but may be offered by volunteers in the CADA, based on the principle that the reception scheme and empowerment of asylum seekers is different from the specific integration measures for beneficiaries of international protection. The National agency for the assessment and quality of social and medico-social establishments and services (ANESM) has drawn up recommendations for good professional practices for personnel working in CADA (see document in French: ). Chapter 5 focuses on the empowerment of the persons received in CADA, with the aim of involving asylum seekers in their administrative procedures and the daily life so that they can be more autonomous. This project has not been implemented in the framework of the directive but is entirely part of the social work. 5 of 11

6 3. NA. Germany Yes According to the present legislation, applicants for asylum are not entitled to participate in an integration course since they do not hold the required legal status of a permanent residence title. A permanent residence prevails if the foreigner has been granted a residence title for at least one year, or if he/she has already been in possession of a residence title for more than 18 months, unless the residence is of a temporary nature. Therefore, with regards to issues 1 to 4 the German Federal Government does not sponsor any integration measures for refugees and asylum seekers. Currently there are several legislative initiatives: One legislative proposal intends to provide foreigners who were granted an exceptional temporary leave to remain with a consolidated resident status with the provision that their participation in an integration course will be made possible. To this end several conditions must be met: issuance of a residence title in the case of a proven successful economic integration (eight years of residence, families with minor children after six years of residence, securing the means of subsistence, proficiency of sufficient oral skills in German, no substantial criminal offences). There is one further legislative initiative intending to enable all refugees and asylum seekers to participate in an integration course (i.e. language course consisting of 600 teaching lessons and the orientation course with 60 teaching lessons), regardless of a permanent resident title that had been required up to now. As of 1 st March 2015 the German Asylum Seekers Benefits Act (Asylbewerberleistungsgesetz) has been amended insofar as certain groups of refugees will not receive benefits in accordance with the German Asylum Seekers Benefits Act but in accordance with SGB II (= Book Two of the German Social Code) since asylum seekers, too, will always have access to the labour market after 3 months of residence in Germany. The participation in an integration course will only be possible if a permanent residence prevails. Nevertheless, there are several German Federal States that allow for the participation in the integration courses for refugees and asylum seekers on a self-pay basis and if places are available. In these cases the German Federal States bear the costs for the participation in an integration course. Furthermore, government-funded alternatives offering language courses are available in German Federal States. Hungary Yes 1. Yes. 3. As of 1 st March 2015 the principle of monetary payment prevails over the benefit in kind to provide basic guarantees for asylum seekers for the period of first reception. The persons concerned receive monetary payments in cash to cover their basic requirements such as food, clothes, health care, and consumables as well as some pocket money. However, instead of monetary payments, the benefits can - depending on the requirements given by the circumstances - be granted in the form of non-cash bills and invoices, vouchers or benefits in kind. The funds required for accommodation, heating, and household goods is granted separately in the form of monetary payment or benefit in kind ( 3, section 2, German Asylum Seekers Benefits Act). This revision takes into account the reality of the granting of benefits by the German Federal States that are responsible for the execution of the German Asylum Seekers Benefits Act, and their experiences; and after many German Federal States have already previously and more often rendered this service in the form of money instead of benefits in kind for reasons of administrative economy. This is how this revision additionally strengthens the autonomy of the beneficiaries of 11

7 - Activities related to providing information about fundamental rights and public institutions: To ensure fair and effective asylum procedures, in the framework of the legal counselling projects for asylum-seekers, they can receive information on fundamental rights and Hungarian public institutions. Continuous. - Activities related to administrative procedures: In order to develop asylum procedures, 3 projects were held between October 2012 June 2014 to advance the quality of decision-making in asylum cases (both at administrative and at court levels) by providing up-to-date and professional COI and collecting and examining actual EU case law. Trainings were held for asylum officers and judges and course materials were also compiled for a more general use in the future. - Social, cultural and sport-related activities: By providing additional services to improve the reception conditions, organized (by social workers) sports (eg. football, volleyball) and leisure activities (e.g. common cooking, film clubs) become available for the applicants including maintaining internet rooms and gyms at the reception centres. Continuous. 3. In Hungary, no specific social aid is granted to applicants for international protection; instead, full board is provided to them or in case there is no cooking facility available at the reception centre, cash support is granted (for alimentation) to them. Ireland Yes There is no overall project of the kind envisaged by Luxembourg. However, applicants for international protection are eligible for reception-related supports from the European Refugee Fund and will also be a target group of the new Asylum, Migration and Integration Fund. For example, one current ERF project develops outreach programmes to three direct provision centres (see below as regards direct provision) to provide information and supports, advocacy/self-advocacy training, language and cultural orientation supports and mentoring. 3. Social aid for applicants for international protection is mainly provided through what is known as the direct provision system. Under this, applicants are provided with full board accommodation and certain ancillary services while their applications are being processed. Applicants in direct provision also receive a weekly allowance of per adult and 9.60 per child. This allowance is a cash supplement for incidentals. Therefore, most support is provided in kind rather than in cash. Other aspects of the regime applying to applicants for international protection are: no utility charges (gas, electricity, TV etc.) or rent; free laundry facilities; pre-schools/crèche facilities at larger direct provision centres; free primary and post-primary education; additional resources for schools with special needs in the area of English language; full access to public health service; free general practitioner care; designated psychological service; exceptional needs payments in addition to the weekly allowance; and back to school clothing and footwear allowance. The Minister for Justice and Equality has established an independent Working Group to report to Government on improvements to the protection process, including direct provision and supports for asylum seekers. Italy Yes 1. Through a System of protection for asylum seekers and refugees (SPRAR), over the years Italy has developed a number of local projects aimed at supporting applicants for international protection. The SPRAR, set up by Law No 189/2002 is made up of local 7 of 11

8 authorities throughout all national territory that use third-sector operators specializing in immigration-related issues. In order to implement reception projects, local authorities access the National Fund for Asylum Policies and Services, managed by the Ministry of the Interior and provided for in the National Budget Law. 2. The SPRAR local projects that have been adopted so far have provided integrated support, consisting in in the provision of meals and accommodation as well as of information on the following: (a) the local community, (b) available services (including social and health care), (c) application procedures for international protection and (d) rights and duties arising from international protection status. In particular, activities were carried out for the learning of the Italian language, adult education and children school enrolment. Education and professional retraining programmes were developed aimed at promoting the future integration of applicants into the labour market. Special projects concerned the accommodation and support of vulnerable people (disabled or with health problems, unaccompanied minors, victims of torture, single-parent families, and single pregnant women). 3. Italy does not normally provide for social aid paid in cash to applicants for international protection. This type of social aid is definitely ruled out for the above projects, which are managed by local authorities in collaboration with third-sector operators. Latvia Yes Such project does not exist in Latvia. But OCMA is performing a European Refugee Fund Project within the framework of which asylum seekers may receive various types of support receive translation and interpretation services, transport cards, receive various hygiene items and medical aid in case of necessity, etc. Latvian language courses are provided by NGOs. Luxembourg Yes 1. At the moment such a project does not exist in Luxembourg. However, the Government is currently developing a support project for applicants for international protection, which will be managed by the Luxembourg Reception and Integration Agency (OLAI). 2. The support project is elaborated in collaboration with the applicant for international protection and the social worker of the OLAI, taking into account the personal situation (familial, medical, social, etc.) and the needs of the applicant. The objective is to encourage his/her autonomy in the host society. 3. N/A. In Luxembourg, the social aid which is allocated to applicants for international protection currently comprises a cash component as well as vouchers and/or support in kind. Netherlands Yes 1. In The Netherlands, COA is responsible for the reception, supervision and departure (from the reception location) of asylum seekers coming to the Netherlands. COA is the abbreviation of Central Agency for the Reception of Asylum Seekers. COA, an independent administrative body, falls under the political responsibility of the Ministry of Security and Justice. COA gives account for its operations to the Ministry. COA views asylum seekers as being responsible for their own choices. COA supervises them in making these choices. COA encourages 8 of 11

9 the independence, initiative and self-development of asylum seekers they need to enable them to give shape to their future in the Netherlands or elsewhere. Adults take part in programmes and supervisory interviews tailored to the phase of their asylum procedure. COA offers a range of education programmes at the asylum seekers centres. The programmes depend on the current phase of the occupant s asylum procedure. Examples are Dutch language lessons and the Knowledge of Dutch society course for recent arrivals in the Netherlands. Residence permit holders can prepare for their integration in Dutch society during the rest of their stay at the reception centre. The occupants follow a Knowledge of Dutch society training programme and supplementary Dutch lessons to prepare them for the mandatory integration programme they will follow in their municipality. These lessons focus on the knowledge residence permit holders will need once they have been assigned a home in their municipality and cover subjects such as working in the Netherlands, citizenship, bringing up children, education and healthcare. Children of compulsory school age go to school. Adults wishing to follow adult education can get help from the Refugee-Students Association UAF. The UAF helps refugees and asylum seekers by providing advice and information, as well as by guiding them during their studies, acting as an intermediary in finding work and providing financial support. Occupants can visit the Open Learning Centre to exercise with educational materials and keep in contact with their family and friends. The Open Learning Centre is equipped with computers with an Internet connection. Children can do their homework at the Centre. The users are supervised by other occupants and Dutch volunteers. Asylum seekers may work a maximum of 24 weeks with pay. Any income is deducted from their clothing and pocket money. Occupants wishing to work must find their own job. COA gives advice, but does not mediate. The occupants are involved in the day-to-day work at the asylum seekers centre and the grounds. They are paid a small amount for this. Occupants may also carry out voluntary work outside the asylum seekers centre. Asylum seekers self-help is also promoted by taking part in the maintenance of the grounds and cleaning the communal areas, etc. They are paid a small sum for this. Occupants and their children can also take part in courses or sports at the local sports club. 2. The activities described above are part of the standard offer for asylum seekers. An important aspect is room for the individual needs and capabilities. It determines the effectiveness and attractiveness of the offerings. Individual locations have room to adept the exact offerings to the local situation (the background of the asylum seekers, the activities in the local community, the local infrastructure, etc.). Another important aspect is the relatively short duration of most activities. In our experience, a significant part of the target group does not or cannot commit to an activity that takes more than several months. 3. That depends on what you define as social aid. In general, COA wants to encertain that the asylum seeker takes part in a programme or activity that has the aforementioned effect of empowerment. Handing out cash (besides the standard allowances) is not part of this approach. Slovak Republic Yes 1. There is no special project aiming at empowering asylum seekers during their international protection procedure. However, similar activities are financed from ERF and during the next period from AMIF. These activities of the Migration Office of the Ministry of Interior of the Slovak Republic are carried out by NGOs. The Migration Office monitors these activities and acts as a guarantor of quality of these projects. 9 of 11

10 2. The main activities carried out from these projects are social work, legal counselling and psychological assistance. The aim of the project is assurance of preparation for integration, preparation for independence and development of skills. NGOs try to reach this aim through the following: learning of Slovak language, learning about the Slovak culture, spare time activities, practical experience (creating an account, work with PC and internet etc.), paid assistance work (simple repair of devices, work in the greenhouse, interpreting, etc.). Duration: AMIF Asylum seekers are interested in these activities as they are the only activities in accommodation centres. 3. Asylum seekers do not receive any social benefit in the Slovak Republic as they have the possibility to stay in an accommodation centre where all the costs are covered (food, accommodation, basic toiletries as well as material and social assistance). They receive pocket money (40 cents per day received on monthly basis) which serves as a motivation as it can be twice or three times higher if the asylum seeker assists in the accommodation centre. Slovenia Yes 1. Republic of Slovenia has put in place support projects which offer to illiterate adult applicants for international protection or who are inadequately literate in Latin script possibility to become literate in Slovenian script. We also offer applicants possibility to improve their everyday conversation skills in Slovenian language. Children and young adults usually get language knowledge through regular education in one of Slovenian school which they are entitled. Outside of school they are provided with additional assistance support on Slovenian language and also on other subjects which are mater of primary education curriculum. 2. Objective of this program is to facilitate potential integration of applicants, if and when they received international protection status and to enabling the school goers to get as much as from the educational possibilities which are offered. Program runs every workday for two hours/day. One hour being reserved for children and other for adults. Activities are usually run inside asylum home with a possibility of being implemented in other institutions as well. We are hoping easier orientation in Slovenian society after gaining of international protection status offer motivation for applicants. 3. NTR Sweden Yes 1. In Sweden the government programme for introduction and learning the language is normally started after the asylum process when the refugee has been granted residence permit. 2. Since this is based on local initiatives it is hard to describe on a general basis. Often these programmes are arranged by NGOs like the Red Cross and can differ a lot in their approaches and aims. 3. In Sweden all asylum applicants are given cash allowance and we do not have, and haven t had for a long time, a system with vouchers or in-kind support. An alternative system has not been discussed. 10 of 11

11 United Kingdom Yes 1. No. The UK has not opted into the recast Directive. 2. N/A. 3. The UK provides destitute asylum seekers with accommodation and a weekly cash allowance to cover their essential living needs. This meets the UK s international obligations under the 2003 Reception Conditions Directive to which the UK did opt in. Norway Yes 1. We have a programme designed for two groups: unaccompanied minors with a temporary permit that expires after they turn 18 years old and unaccompanied minors who received a negative decision on their asylum application. The programme is offered and financed by The Norwegian Directorate of Immigration (UDI) and consists of activities such as educational courses and vocational training that participants choose themselves. There are at the moment no such programmes for adults. We used to offer courses with vocational training for asylum seekers with a negative decision, in the hope that this would help motivate them to return voluntarily. However, we have terminated the programme as it did not have the desired effect it did not increase the likelihood of return. In addition, the general legislation on education is as follows: persons younger than 16 years old, regardless of whether they are in the country with a permit or not, are entitled by law to receive primary education for free, as long as their stay in Norway exceeds three months. People between 16 and 18 years old, with an application for protection pending decision, are entitled to primary or secondary education for free. People over the age of 16 with a negative decision are not entitled to either primary or secondary education. 2. The objective of the programme directed at unaccompanied minors is to strengthen and develop skills that will enable them to support themselves after return to their native country. The duration for the courses is normally a few months and the UDI covers costs of the courses. Most of the youth who are offered a chance to participate in this programme, do so. ************************ 11 of 11