Immigration and Refugees Yale Model Government Europe November 26-29
Council of Immigration and Refugee Ministers In light of recent news, there is no question: the European Union is facing the largest crisis in immigration and refugee management of the 21st century, and one of the largest in the continent s history. It is for these reasons that this committee body will play a central role in YMGE 2015, and that Council members must be diligent and vigilant in their preparations for the conference. Model United Nations and Model Government are meant to serve as an opportunity to brainstorm complex solutions to problems that have no easy answers, and provide a platform for students delegates to develop their skills in diplomacy and statesmanship. This Council is an embodiment of such opportunities, presenting all members of this council with the unique opportunity to critically brainstorm solutions to one of the most pressing problems to exist during their generation. This guide has three objectives. First, to educate Council members on the structure and powers of the Council of Immigration and Refugees Ministers. Second, to present members with an introductory overview of current problems related to immigration and refugees in the European Union. Council members must note that additional research on this topic is not recommended but required, since effective participation in this Council demands a thorough understanding of the history and up-to-date facts on the the current immigration crisis. The third and final objective of this guide is to instruct delegates about how will interact with other Councils when responding to the crises that will unfold at YMGE 2015. YMGE is unique in that it presents a crisis module that is interdisciplinary. The 12 Councils do not function in 12 separate environments but rather one interconnected environment, and every solution this Council produces demands the involvement of other Councils. After all, this Council cannot feasibly consider passing legitimate resolutions if they are not financially supported by the Council of Economics and Finance; logistically supported by the Council of Transportation and Telecommunications; and sustainably enforced in conjunction with the Council of Food and Agriculture, the Council of Energy, the Council of the Environment, and the Council of Health. Best wishes, Lily Engbith lily.engbith@yale.edu
Introduction to the Council of Immigration and Refugees Ministers Although the Council of Immigration and Refugees Ministers is not a body officially represented by the European Union, the Council of Immigration and Refugees Ministers at YMGE 2015 will follow the same procedures, rules, and guidelines set by the the European Union. Councils of the European Union meet with the goal of establishing a coordinated approach and facilitating agreements across European countries. The European Union, previously named the European Economic Community, was created in 1958 during the aftermath of World War II to increase economic interdependence and cooperation among European countries. However, what started as a purely economic venture gradually expanded to include political, humanitarian, and environmental initiatives. The Council of Immigration and Refugees Ministers should be viewed as a further expansion of the European Union to include the important topics of immigration and refugee asylum. While the Council of Immigration and Refugees Ministers convenes as a Council of the European Union tasked with the goal of achieving a united immigration and refugee policy, each minister is defined by his or her country s laws and procedures. Therefore, although the committee as a whole will respond to crises as the Council of Tourism Ministers, each minister will have the authority to react to the energy crisis nationally. The European Union is a conglomerate, but not all of its individual parts are the same. Ingenuity by each minister will be necessary to implement effective responses to crises. The Council of Immigration and Refugees Ministers will be modeled after the governing body of the International Organization for Migration (IOM), known as The Council. The Council meets once every year and can be called for a Special Session at the request of one third of its members during urgent situations. The roles of the The Council are loosely defined, so much of the policy falls upon the shoulders of the ministers to further the progress of immigration and refugees in Europe. Each member state of the Council of Immigration and Refugees Ministers is allotted one representative and one vote. Most decisions of the Council of Immigration and Refugees Ministers shall be decided by a simple majority vote; however, no vote stands unless a majority quorum is present. Decisions regarding the inner-workings of the Council require a two-thirds vote. For a general idea of the types of topics the Council of Immigration and Refugees Ministers will cover, I recommend that each minister research the United Nations Refugee Agency and the International Organization for Migration (IOM). During research, remember that the body is still a Council of the European Union, and its scope extends no farther than the countries within EU boundaries: Belgium, Bulgaria, Finland, France, Germany, Greece, Hungary, Italy, Poland, Portugal, Spain, and the United Kingdom. Mandate of the Council of Immigration and Refugees Ministers After World War II, immigration into Europe and between European countries significantly increased. A second wave of immigration, which continues to this day, began in the 1980s due to individuals from developing countries fleeing war, poverty, oppression, and natural disasters. The result is a sizeable immigrant population within Europe. However, the sheer number of immigrants and the extent of migrant movement are not the only factors that the Council of Immigration and Refugees Ministers must address. Europe is currently embroiled in a serious immigration crisis, specifically a crisis of illegal immigration. Less than five years ago, European Union nations believed that they were beginning to assert control over asylum seekers and illegal immigrants. The numbers seemed to support the beliefs of EU nations. In 1992, 670,000 asylum applications were submitted to the European Union, and in 2006, the number fell to around 200,000. However, beginning in 2010, Greece witnessed a sudden increase in illegal immigration into its borders from countries such as Afghanistan, Somalia, Algeria, and Iraq. FRONTEX, the European Union Agency charged to protect European Union borders, reported that in the span of six months in 2010, 38,000 undocumented persons had taken asylum in Greece. The upsurge in migration coincided with Greece s financial crisis, and what started as merely an economic disaster turned into a humanitarian issue as well as
undocumented families were forced into detention centers or the streets. The United Nations High Commission for Refugees (UNHCR) declared that the refugee status determination system in Greece does not operate properly. As a result, people needing international protection are not identified as such. This is a situation which should not exist in the European Union. Unfortunately, the Arab Spring uprising and the Syrian conflict have prompted further illegal immigration into the European Union. The immigration crisis in the European Union reached the full international community when, in October 2013, more than 300 African migrants died in a shipwreck off the Italian island of Lampedusa. Tens of thousands of Africans attempt to relocate to Italy each year in ramshackle rafts. The tragedy of the coast of Italy exposed the deep divide between European Union leaders about how to prevent further migration disasters. However, the phenomenon developed into a full-on crisis in 2014-15. In 2014, European Union member states received 626,000 asylum applications, granting protection status to 185,000; this unprecedented level of asylum-seekers hadn t been seen since 1992 (672,000), amidst the dissolution of Czechoslovakia and the outbreak of civil wars across then-yugoslavia. Come 2015, the crisis expanded to levels unseen in history. In the first half of 2015 alone, the European Union received 395,000 applications for asylum status, 2/3 of which were directed to EU border states such as Germany, Italy and Hungary. The New York Times has estimated that there are currently 60 million displaced Rhetoric for the term crisis entered news on a massive level in April of 2015, when five boats carrying as many 2,000 migrants sank in the Mediterranean, killing 1,200. According to BBC and the International Organization for Migration (IOM), as of October 27 over 700,000 migrants have arrived by sea to the European Union. Germany is the highest-demand destination, receiving 220,000 applications for asylum-status through August. Hungary has received the second most applications, yet has received the largest volume of applications per capita, in proportion to the Hungarian population. As these graphics show, the majority of immigration has come from Syria, Kosovo, Albania and Iraq, and has been focused most intensely into Germany, Hungary, Austria, France and Switzerland. Ongoing conflict from the Syrian civil war is the largest and most devastating source of migration. Particularly troubling questions each EU member state faces is managing border control operations along the Mediterranean; fighting migrant smuggling; proposing and managing quota systems for incoming migrants; and creating effective systems to relocate and resettle asylum seekers into inland EU nations, so that border nations like Germany and Hungary are not overwhelmed. As Minister for Immigration and Refugees, each delegate is responsible for his or her country s migration policies. Such responsibilities are variable and may include but are not limited to: 1. Monitoring immigration (how people enter a country) and emigration (how people leave a country) 2. Determining the requirements a foreigner must meet to receive citizenship within a country (legal recognition of a person s status as a permanent member of a country) 3. Integrating or deporting irregular migrants, or individuals who enter a country without following the proper rules set out by laws 4. Locating and assisting victims of human trafficking. These victims are usually coerced into moving to a new location for commercial exploitation, and the act of human trafficking is an essential violation of human rights. 5. Resettling refugees (individuals who leaves his or her country to escape war, persecution, a natural disaster, or another conflict) 6. Handling extradition (a process in which a criminal is forced to return to the country where he or she committed the crime in order to go through a trial) 7. Staying connected with a diaspora (people from a particular country who move elsewhere) 8. Fighting xenophobia (bias and violence toward foreigners) 9. Spreading information regarding immigration and emigration to relevant state and private institutions 10. Monitoring migration channels to ensure accuracy of immigration and emigration data 11. Determining methods to assess the success of immigration and refugees initiatives
12. Organizing and implementing campaigns to raise awareness about the crises and benefits surrounding immigration and refugees 13. Establishing and strengthening partnerships with developing countries, especially those responsible for a large percentage of asylum seekers 14. Cooperating with government agencies and other organizations to regulate immigration and emigration During periods of instability, the responsibilities of this Council expand. The key responsibility to remember during YMGE will be that this Council has the power to close borders as well as make recommendations pertaining to police cooperation in times of crisis. During an energy crisis, collaboration between the Council of Immigration and Refugees Ministers and relevant Energy Ministries is also of utmost importance. Collaboration ensures a more synchronized and efficient response to crises. National Perspective 1. Given a country s natural resources, space, and budget, how many people can the country support? Particularly, how many migrants can it support? 2. Every country has a particular cultural fabric and is somewhat defined by social norms. How will migration into a particular nation change its social underpinnings? How important is culture to each particular country? 3. What kinds of immigrants would be most beneficial for your country - young or old, highly educated or low-skilled, temporary workers or permanent citizens? 4. How do the people within a country view the topic of immigration? Is your country averse or welcoming to incoming migrants? 5. How does the geography of a nation influence its particular approach to the topics of immigration and refugees? 6. What is the history of migration into your country? 7. In a standard year, how many immigrants does your country allow? Are they usually permanent or temporary residents? 8. What is the demographic composition of your country? European Union Perspective 1. How rapidly is your country s population growing relative to other European Union nations? 2. What kinds of workers does your country need to remain economically competitive, and can migrants fill those needs? 3. What European countries are sending immigrants into your country? To which European countries are your people moving? 4. How can you use the resources and connections of your diaspora people from your country living abroad to benefit the people still living within your country? 5. What is the best balance between European Union policy and the policy of your country? 6. How essential is a coordinated European Union approach to the prosperity of your country? 7. What immigration and refugee problems do European Unions seem to share? Which only affect particular regions or groups of nations? The success of the Council of Immigration and Refugees Ministers relies on the advice of numerous government agencies and other national and international organizations. Descriptions of several helpful groups are provided below: European Union Agencies FRONTEX: The name FRONTEX come from the French Frontières extérieures which means external borders. FRONTEX is an agency of the European Union in charge of border security, particular border security between European Union member nations and non-member states. The agency combats illegal immigration, human trafficking, and infiltration by terrorists. FRONTEX is responsible for many important tasks such as planning joint operations between EU member states, analyzing intelligence on EU borders, training border security, and researching developing along European Union borders. European Defense Agency (EDA): The EDA was established by the Council of Minister to support the Member States and the Council in their effort to improve European defence capabilities in the field of crisis management and to sustain the European Security and Defence Policy as it stands now and develops in the future. The agency is primarily charged with
developing defense capabilities, promoting defense and research technology, and encouraging armament cooperation. Eurojust: Eurojust was established in 2002 to improve the management of cross-border criminal activity. Most relevant to the Council of Immigration and Refugees Minister: Eurojust may act in matters pertaining to illegal immigrant smuggling and human trafficking. Europol: Europol serves as the European Union s primary law enforcement agency. Europol assists EU members states in combating international crime and terrorism. Part of Europol s mandate is to target criminal networks supporting the human trafficking and illegal immigration into European Union member states. European Union Agency for Fundamental Rights (FRA): The FRA provides European Union member states with objective, evidence-based advice on human rights. Their mission is to ensure that all European Union nations act in accordance with fundamental human rights. International Organizations International Organization for Migration (IOM): The International Organization for Migration was originally founded in 1951 to help resettle people displaced by World War II. Today, the IOM is dedicated to promoting humane and orderly migration for the benefit of displaced individuals and the societies in which they are entering. The IOM specifically states that it acts with its partners to assist in the growing operational challenges of migration management, advance the understanding of migration issues, encourage social and economic development through migration, and uphold human dignity and well-being of migrants. United Nations High Commissioner for Refugees (UNHCR): The United Nations Refugee Agency was established in 1950 to address the refugee crisis following World War II. It was the first international agency specifically dedicated to comprehensively address the life of refugees. Today, the UNHCR leads action not only to protect refugees but also to resolve refugee problems worldwide. Its staff helps about 33.9 million people throughout the world. International Consultations on Migration, Asylum, and Refugees (IGC): The IGC is an informal forum for intergovernmental and organizational exchange of information and policy debate about issues concerning migration, asylum, and refugees. The IGC brings together the IOM, UNHCR, and European Commission as well as other sources to stimulate productive conversations on the topics addressed in the Council of Immigration and Refugees Ministers. International Centre for Migration Policy Development (ICMPD): The ICMPD is an organization of 15 member states that strives to provide expert advice and services to encourage multilateral cooperation about migration and asylum conflicts. Not all European Union nations are a part of the ICMPD, but its long-term strategies are applicable for many nations worldwide. The Role of the Council of Immigration and Refugees Ministers in the Crisis The Council of Immigration and Refugees will play a central role in responding to any crisis. Even if a crisis situation does not directly involve a rise or complication in immigration, the enormous traffic of immigrants which the European Union is enduring and managing will complicate an existing problem. It is therefore essential that Council members carefully reflect upon the broad roles they will play as leaders at YMGE 2015 in mitigating a crisis in the following areas: Austerity Since the crisis at YMGE 2015 will revolve around the fallout from an austerity crisis in Europe, this section is very important to know well in order to perform during committee session. Austerity refers to the restrictive reduction of government spending and often an increase in taxation in order to reduce government budget deficits, and is often also used in order to alleviate sovereign debt (debt owed by a government to an international creditor, for example another government or an international financial institution such as the IMF or World Bank). In times of austerity (especially severe austerity), it becomes difficult for a country to maintain its operations at the full capacity if the country does not have the capability to pay the necessary running costs. Such budgetary constraints will complicate each member state s ability to approve support larger quotas of migrants and construct sustainable support systems to make sure asylum-seekers are adequately addressed,
whether in the Council member s state or a neighboring one. Given the public dissatisfaction and financial constraints that accompany austerity, what measures should this Council take to optimize the quantity of migrants the European Union can take in and the quality of care provided to them? How can this Council ethically balance national concerns with migratory concerns? Political Unrest Often, austerity can lead to major dissatisfaction amongst the people of a country and can lead to large protests. Campaigns against austerity gather steam very quickly and it makes it very difficult in order for governments to curb and control them. On one hand, protests are every citizen s fundamental democratic right, but at the same time, governments very rarely push for austerity unless they are in a situation where they simply have no alternative. Thus, drawing a balance between these two government priorities can often prove difficult for sitting administrations. Often, austerity protests are so severe that they push for government resignations: the fall of subsequent governments in Greece in the last few years illustrates this well, as many Prime Ministers and their cabinets rose and fell within a short period of time owing to their inability to reconcile the country s financial needs with appeasing the common man. For the Council of Immigration and Refugees Ministers, political crises will challenge ministers to find a balance between coordinating with other councils to counteract the uprising, while making sure the needs of immigrants and refugees are best accounted for. In times of protest, how should immigrants within the targeted country be addressed? What about the ongoing need of migrants who may attempt to relocate to that country? Economic Instability A common consequence of political unrest and austerity is shocks to the economy. With restricted resources in certain parts if not all of the European Union, what should this Council prioritize to meet the needs of current alien residents and incoming asylum seekers? How should migrants be distributed between economically stable countries and economically unstable countries in the short- and long-term? How can economically stable countries aid the unstable? How can this Council go about procuring aid from NGOs and even other nations? Terrorism In light of all these tensions come crises of terrorism. While terrorist threats are being addressed, how can this Council ensure the safety of present migrant populations? What about asylum-seekers who have not yet received status, or other aliens who are not resident in the European Union or a specific state legally? How can the members of this Council coordinate, and how can this Council coordinate with others to ensure the safety of immigrants and refugees while balancing the other immediate concerns the European Union would face? Cooperating with Other Councils of Ministers By its very nature, immigration and emigration demand cooperation between nations: immigrants and emigrants move from one country to another. However, successful handling of asylum seekers, immigrants, and emigrants is impossible without further cooperation between European Union agencies, international organizations, and especially other Councils of Ministers. Since immigration and refugees is such a widespread topic that is affected by most national and international developments, coordination with other Councils of Ministers is essential for the success of the Council of Immigration and Refugees Ministers and YMGE. Example questions for interactions with other councils are provided below: 1. Economic and Financial Affairs: Since people often flee their home country for financial reasons, how can countries work to prevent sudden drops in GDP? How can member states balance budgetary needs while maximizing the aid and asylum they can provide to migrants? 2. Education, Youth, and Culture: What can member states do to increase the ease of assimilation and thus reduce discrimination and an otherness mentality against migrants? How can member states counter xenophobia? How does an upsurge in immigration into a particular country or in emigration out of a particular country affect countries social fabric? 3. Energy: How many people rely on the energy industry for sources of jobs (to assess how a possible
energy crisis will affect the financial situation of possible migrants)? 4. Environment: Since people often seek asylum after natural disasters, ministers should ask which countries are particularly susceptible to environmental disasters? 5. Food and Agriculture: How can a member state balance an increase in its migrant population without constraining food production, or at least the production of healthy and sustainable food? Is most produce cultivated locally/familially or do people tend to buy their produce from supermarkets that import much of their food from out of state? 6. Foreign Affairs: How should the European Union address war-torn nations that are the root of its migrant population, such as Syria? Which countries within the European Union countries? Which tend to disagree over the topics of immigration and refugees? 7. Health: People emigrate to achieve a better standard of living. What is the standard of living for different European Union and neighboring countries? What is life expectancy and infant mortality rates of such countries? 8. Justice and Home Affairs: How should refugees fleeing persecution, oppression, or war be handled? Which countries should be continuously monitored for further instabilities in domestic affairs? 9. Labor and Social Affairs: Which countries receive much of their labor from immigrants and which countries could possibly benefit from immigrant labor? How can this Council work to make sure employment levels are stable for migrants and locals? 10. Tourism: Nations with flourishing tourism industries can also be unfortunately accompanied by human traffickers to cater to tourists. What is the intersection of tourism and human trafficking, and how can European Union countries prevent the movement of human traffickers? 11 Transportation and Telecommunications: How can this Council work with the Council of Transportation of Telecommunications to devise an effective transportation system to balance the distribution of refugees in the European Union? Should the Council of Immigration and Refugees Ministers regulate transportation to achieve its goals?