Italy s Ten Year Emergency Integration of Refugees and Asylum Seekers in light of the Dublin II Regulation By Roda Siad November 2013
Italy s Ten Year Emergency Integration of Refugees and Asylum Seekers in light of the Dublin II Regulation Introduction There are more refugees and internally displaced people today than in the last two decades. This is according to a Global Trends report released by the UNHCR in the summer of 2013 (UN Refugee Agency). Migration has become an increasingly debated topic for European Policy makers as more and more refugees and asylum seekers make their way by sea to Europe. Southern European countries such as Italy have found themselves at the center of human rights violations by international non- governmental organizations (Human Rights Watch 2011). The purpose of this report is to examine the policies aimed at refugees and asylum seekers in Europe and to document the reality of their integration experiences. Using Italy as a case study, the report aims to shed light on this humanitarian crisis. While on paper the policies aimed at refugees seem to be standard throughout Europe, the practical implications of these policies vary by country as well as within regions. As we will see, the gap that exists between refugee policies and the practical implications of these policies make it Table of Contents Introduction 1 Research Methodology 2 The Italian Case Study 3 What is Integration? 3 The Journey to Europe 4 The Dublin II Regulation 6 Italian Refugee Council 7 The Integration Problem 11 House of Social Rights 12 The Ten- Year Emergency 14 Conclusion 16 Works Cited 17 Introduction 1
almost impossible for the integration process in Italy to be successful. Research Questions The focus of this research is on the integration experiences of African refugees and asylum seekers in the city of Rome. In conducting my initial research, I had several questions in mind. 1) What are the different representations of refugees and asylum seekers? 2) How do these narratives about refugees influence their ability to integrate? 3) Within an Italian context, what does integration actually mean? 4) To what extent do policymakers and organizations reinforce the otherness of refugees and asylum seekers? Ultimately, this research project is an ethnographic study that will examine the ways in which representation of cultural differences (as presented by governments, media and social organizations) have negative consequences for refugees integrative abilities. Research Methodology This project was a compilation of a series of interviews with refugees, non- governmental organization and policy makers. The research relied heavily on qualitative research methodology. It was important that this project be based on qualitative rather than quantitative methodology because qualitative allows for an in depth understanding of the interview subject. In academic circles, refugees are often generalized and grouped as statistics in an effort to understand the large- scale impact of a crisis. While there are merits for studying refugee experiences in a greater context, this sometimes adds to the dehumanization of refugees and asylum seekers. The one- on- one interviews allowed for a human interaction. Furthermore, it created the opportunity for individuals to share their own stories. The interview questions were open ended and answers were recorded using an external audio recorder. In some cases, interviews were also captured on video. All of the interviews were done in public places such as parks, cafes and the streets of Rome to ensure the safety of refugees because of fear they would lose access to shelter for sharing their stories. Follow ups were made with each of the subjects. The average ages of our subjects were between 21-28. While we did interview some women, our subjects were predominately male. While more women are making the journey to Europe, there are considerably more men that come by sea. Our subjects represented countries including Somalia, Mali, Niger, Ghana, Senegal and Gambia. The time spent in Italy span Research Questions 2
from just a little over a month to ten years. These differences provide a range of diverse experiences. The Italian Case Study There were several reasons why Italy was chosen as the case study for understanding the refugee crisis in Europe. Due to its geographical location, Italy has long been a gateway to Europe. Merely a transit point, many people use it to pass through to Northern European countries. Each year, thousands of people make the perilous journey to Europe from North Africa, Map from dailymail.co.uk entering through the Italian territory. Furthermore, Italy is a relatively new asylum country, as it did not pass its first law regarding asylum until 1990 (V. Carlini, interview, September 24, 2013). This is an important fact to consider when comparing Italy s refugee policies to other European countries. What is Integration? In order to understand how integration is understood within an Italian context, it is important to highlight any international definitions of the word. Integration is a complex term as there is no firm definition as it applies to refugees, even in international refugee law (UNHCR, 2013, p.13). The word is difficult to define for a number of reasons. Specifically, the impact of integration and level of its success depend on long- term measurement. At the same time, European policy does not always note the differences between refugees and economic migrants in its policies (p.13) Consequently, the specific needs of refugees are overlooked when cuts are made to government programs. The United Nations High Commission of Refugees definition of integration, simply put, is a two- way process premised on adaptation of one party [the refugee] and welcome by the other [host country] (p.12) The three specific elements needed for refugee integration are: legal protection, economic and social and cultural The Italian Case Study 3
opportunities (p.12). In addition to gaining legal protection, refugees should have the same access to education, social assistance and labor markets as citizens. The Journey to Europe This report focuses on the experiences of refugees once they have arrived on the shores of Italy. However, we must acknowledge the journey individuals have gone on in order to get to this point. Many of the individuals we met have taken different paths to get here (whether it is through Ethiopia and Sudan or Libya) Many of our interviewees have spent up to two years in Libyan prisons for their attempts at illegal migration. Ultimately, however, this did not stop them from trying again. We must also consider the fact that many do not even make it to Europe. Stories of boat collapses have long been reported in European news media. As hundreds of people cram into small, unstable boats, many have lost their lives at sea. Even during our fieldwork in October, more than 300 Africans drowned just half a mile off the coast of Lampedusa when their boat caught fire (Squires, 2013). This made international news because it was the largest death rate in a single event. Unfortunately, since then boats have continued to arrive in Italy. Reception and Integration Those who do survive begin their journey into Europe in places like Lampedusa and Calabria. Once there, they are split up into the different CARA s across the Italian territory (The Norwegian Organization for Asylum Seekers, 2011, p. 18). Here, they are processed for fingerprints and ID. After this process has been completed and their identities are verified, they are sent to smaller center called SPRAR (The system of protection for asylum seekers and refugees) and wait for their appointment (p.18). There is often a delay before their appointment. In brief, the CARA system is financed and run by the central government. Refugees and migrants often stay for up to one month because the The Journey to Europe 4
structure is designed for sole purpose of identification (p.19). CARA s are often located outside city limits in former airports or military camps (p.19). On the other hand, the SPRAR system is considered to be a second level of reception. Local municipalities and non- governmental organizations finance these centers. They are meant to house smaller number of people (15-30) and spread throughout the Italian territory. Here, refugees and migrants stay up to six months for their immigration process. These centers provide things such as language training, legal aid and vocational support (p.19). Lack of Resources Salaam Palace is located on the outskirts of Rome. Due to lack of space available, refugees and asylum seekers may sometimes find themselves on the streets. There are countless squats throughout Rome and while they are technically illegal, the government tolerates them. One of the most well known examples of an illegally occupied, but tolerated housing is Salaam Palace. A former university building, refugees broke in to the place in 2006 and now more than 800 people call it home. A self- sustaining place, Salaam has a council of eight people (representing four countries) and decisions are made communally. The Journey to Europe 5
The Dublin II Regulation Pictured left, a 23- year- old refugee from Mali The most important policy that affects the lives of refugees and asylum seekers in Italy is known as the Dublin II Regulation. This law was implemented in 2003 after a sudden increase in the number of asylum seekers traveling throughout Europe. While this is a complex regulation, the basic outline is that only one EU member state is responsible for an individual s asylum application (p.10). In almost all cases, the EU member state responsible is the country in which the refugee first entered Europe. Through the use of the EURODAC (fingerprinting), officials are able to determine which country the asylum applicant is registered with (p.11). The purpose of the regulation is to prevent asylum seekers from submitting several applications for asylum to several countries. In theory, it is also meant to protect asylum seekers from being passed around by countries (p.11). While this law has not prevented refugees from moving throughout the EU, it has been responsible for the countless Dublin Returnees in Italy. Dublin Returnees The majority of individuals we interviewed had attempted to reach other European countries and were sent back due to fingerprints. They often stay in these countries undetected for months before being returned to Italy. The problems faced by returnees include a loss of their place in a center or shelter (p. 20). Returnees may spend some jail time in the country they were apprehended. Upon return, many returnees find themselves on the streets. The Dublin II Regulation 6
We spent years thinking asylum seekers and refugees were an emergency, [that] they were not an established fact it was not an emergency, it was a new phase of Italian history. - Valeria Carlini, Italian Refugee Council Italy s Ten Year Emergency The Italian Refugee Council One of the first organizations interviewed for this project was the IRC based in Rome. The Italian Refugee Council is a non- profit organization created in 1990. The mission of this NGO is to advocate on behalf of refugees and asylum seekers and provide services including legal guidance, integration assistance, family reunification and information on rights. During my interview with Valeria Carlini, Spokeswoman of the Italian Refugee Council, several reasons attributing to the refugee problem in Italy were highlighted. As she pointed out, Italy s asylum system, which was developed in the 90 s, is relatively new. In fact, this coincided with the creation of the Italian Refugee Council as legislation aimed at refugees were only beginning to be created. The country also has a basic welfare system when compared to other European countries. In fact, the country relies on informal structures such as family, charity and other social support networks (V. Carlini, interview, September 24, 2013). The welfare provisions provided to refugees in Italy are virtually non- existent. Carlini acknowledged that while legislation on refugees have improved considerably the country, the reality for many refugees and asylum seekers have not changed. We also discussed the gap between what the policies say and the practical implications of these policies. According to Italian law, the asylum process should only take 35 days (V. Carlini, interview). This is unrealistic considering the process can take anywhere between six months to two years. This is due to the lack of resources and backlog of asylum applications. While they wait for their asylum process, many refugees and asylum seekers often find themselves in a limbo with very little access to integration services and employment. They spend much of their days sitting in parks and other public spaces. In the personal stories we documented, it was very apparent that there were holes in what the policy stated and what the actual experiences of refugees and migrants were like. The Italian Refugee Council 7
I climb over a fence to go and sleep there, because I don'ʹt have a document to be at the camp. In the morning I have to leave earlier, at 7 or 8 am and I come here, to termini. - Aladgie K. 24 from Mali Aladgie K. is a 24- year- old refugee from Mali. His journey began in Libya where he spent two years working. When the Libyan war broke out, he followed other Africans in fear of persecution and made his way to Europe. After having waited a little over a year for his stay permit, he was granted refugee status. He could not find employment and found himself once again sleeping at a centre for individuals waiting for their asylum process. He does not have permission to be at the centre, however with the help of some friend who are currently there, he finds a place to sleep each night. His story highlights the realities many migrants face once they receive their documents. In fact, some of the individuals who were interviewed for this project have said that they were better off when they did not have their documents because now they must find their own means for shelter and food. Once an individual receives their permit of stays, they are seen as independent agents who can support themselves (The Norwegian Organization for Asylum Seekers, 2011, p.5). In reality, because refugees are the last to be considered for any kind of work, they end up on the streets. This is also evidence of the lack of integrative support offered to refugees and asylum seekers once they have been granted a stay permit. The Italian Refugee Council 8
Above, a 31- year- old refugee shows us his documents Life after Documents There are other stories of hardship once refugees receive their permit of stay. We met Ibrahim M, originally from Ghana. He had lived in Libya for several years before the war broke out. He spends much of the day sitting at a park, as he has not been able to find employment. He has traveled to other cities in Italy but finds the job situation much the same. Ibrahim has lived in Italy for 10 years and in theory should be integrated. Since he has the necessary documentation, he should have the same opportunities of finding work as Italian citizens. However, due to the economic crisis in Europe, Italians have difficulty finding work. Ibrahim understood that his chances are even worse. He told us his documents were useless to him. The only thing he used them for was proof of permit of stay each time he was approached The Italian Refugee Council 9
by a police officer. Ibrahim s story demonstrates the lack of integration for many refugees and asylum seekers. That is, even with his documents and language abilities, he still remains on the margins of society. You are always someone who is waiting, whether it s a job or not, always waiting. - Mohamed (pictured above), 25- year- old Somali refugee The Italian Refugee Council 10
The Integration Problem According to the UNHCR, there needs to be an integration policy in place that supplements the protection status given to refugees (p.10). It is counter intuitive to have one without the other and in Italy, this seems to be the case. As Carlini put it, we are giving refugees legal protection but this is empty without social protection (V. Carlini, interview, September 24, 2013). The refugees we interviewed did not feel anymore safe once receiving asylum. With little social networks, they are expected to fend for themselves. The reality of the situation in Italy is that refugees are protected on paper by policies, but very little support is actually offered. Many of the centers that host refugees are located outside of city limits. The physical isolation is counter- productive to the integration process. There are not only negative stories we also have very lucky stories, but a system cannot be based on stories. A system has to be done by rights and possibilities for everybody. - Carlini on refugee experiences in Italy Italy was one of the countries that made international media headline for its treatment of refugees and migrants. There was an increase in xenophobic attacks throughout the country, documented by Human Rights Watch (2011) Even with the very little support refugees receive, they often become scapegoats for current economic crisis in the region. Politicians and mainstream media added to sensationalist representations by linking migrants to crime (2011). The lack of social support networks in combination with the foreign environment can have devastating effects on the physical and mental well being of refugees. Consequently, a refugee who sleeps on the streets is especially vulnerable for these types of attacks. The Italian Refugee Council 11
House of Social Rights Pictured above, Nobody is illegal is written on the wall of Ex- Snia, a former textile building now used as a Social Innovation Centre. The second organization that was interviewed as part of this project was the House of Social Rights. Created in 1985, House of Social Rights is a grassroots organization that promotes human and social rights of vulnerable peoples. Based in Rome, they provide guidance, legal assistance and help for asylum seekers and refugees. The Centre is located right outside of Termini, the main train station in downtown Rome. This is a relatively small organization that offers services such as addresses, language support, legal aid and counseling. When asked about the challenges faced by local organizations such as House of Social Rights, manager Carla Baiocchi stated that government showed very little interest in issues that affected refugees and asylum seekers in Italy (C. Baiocchi, interview, September 30, 2013).. The Italian Refugee Council 12
Baiocchi pointed to the disconnect between the emerging needs of the refugees and the agendas of politicians (interview, September 30, 2013). Organizations such as this one are overwhelmed with refugees that come there for basic needs. There are many organizations such as these throughout the city of Rome and the Italian territory. The level of integration varies by region because some organizations have more access to resources while others do not. The inconsistency between the types of programs offered by social organizations make it difficult to measure the long- term effectiveness of these programs on refugee integration. I hate the word 'ʹintegration'ʹ because it implies that the minority have to comply with the majority inside a society. The individual also has to change - Carla Baiocchi, House of Social Rights The Italian Refugee Council 13
The Ten- Year Emergency Refugees line up for a meal outside of Centro Austelli, a soup kitchen in Rome. The reality of the European refugee problem is evident on the streets of Rome. Many of the programs targeted at refugees in Italy are based on immediate needs such as proof of addresses, access to soup kitchens and legal aid. Other services such as language support and counseling are limited. That is, the centers refugees and asylum seekers stay at are physically isolated and cannot accommodate to individual needs when there are up to 2000 people staying there. The smaller centers (SPRAR) that are intended to provide a greater level of integrative services are over capacity. There do not seem to be any programs for long- term integration. Ultimately, the approach policymakers in Italy used to deal refugee issues is one that contradicts the basic concept of integration. Policymakers have treated this forced migration phenomenon as an emergency. They have assumed that those people would eventually return to their countries. On the contrary, the situations in many of their home countries have in fact gotten worse. The Italian Refugee Council 14
Dublin III Regulation The Dublin II Regulation received much criticism from NGOs and religious organizations throughout Europe for its lack of protection for asylum seekers. Criticisms include the fact that there is no standard of reception and that European member states application of the Dublin regulation were very different (Jesuit Refugee Service Europe, 2013). The same policy that was implemented ten years ago to protect asylum seekers was at the center of allegations of human rights abuses. On July 19 2013, the Dublin III Regulation went into effect. While there are new protective measures including a personal interview before Dubliners are transferred between countries, critics say the regulation still does not do enough (2013). Once again, its success will depend on how the regulation is interpreted and applied by each state. On the surface, Europe has a common asylum system. However, based on our research, there does not even seem to be a national integration program let alone a European wide program. This inconsistency and lack of structure allows for vulnerable people to slip through the cracks in the system. The Italian Refugee Council 15
Conclusion At its base, human security is about people. It is about the protection and advancement of people (UN Office for the Coordination of Humanitarian Affairs). Sometimes however, human security is compromised for state security. In an effort to protect its borders and control people on the move, states may become participants in human rights violations. In regards to refugees and asylum seekers, human security is about creating a safe environment for people who may have been traumatized. Immigration and refugee policies continue to be popular discussions for policymakers throughout the European Union. On paper, the policies on refugees seem to be standard throughout the EU, however in practice, countries are left to their own methods of implementation. If there is no accountability or standard of implementation, human rights violations will occur. This has immense implications for the everyday realities of refugees and asylum seekers on the streets of Rome. Where to go from here? As the research time in Rome wrapped up, I could not help but think about what the country would look like in ten years. As the number of displaced people around the world increases, the refugee situation is not likely to disappear. The methods that have been used by the Italian government and European policy makers were temporary in nature. There is a gap between refugee policies and the actual application of these policies. Ultimately, this makes long- term integration impossible, leaving refugees and asylum seekers on the margins of society. This lack of integration compromises human security. While organizations such as the Italian Refugee Council continue to advocate on behalf of refugees and asylum seekers, refugee issues continue to be politicized by European policy makers. In turn, this reinforces the otherness of this group and does little to improve the everyday lives of vulnerable people. The Italian Refugee Council 16
Works Cited Jesuit Refugee Service Europe. (2013, July 19). The Dublin III regulation enters into force. Retrieved from http://www.jrseurope.org/publications/ecrejrsstatementondubliniii_publications_190 72013.pdf House of Social Rights (Casa dei Diritti Sociali). Retrieved from: http://www.dirittisociali.org/ Accessed November 28, 2013 Human Rights Watch, Report. (2011 March) Everyday intolerance: Racist and xenophobic violence in Italy, available at: http://www.hrw.org/sites/default/files/reports/italy0311webrevised.pdf Human Rights Watch (2013, April) With new leadership, Italy has a real chance for asylum reform, retrieved from: http://www.hrw.org/news/2013/04/01/new- leadership- italy- has- real- chance- asylum- reform Italian Refugee Council. What we do. Retrieved from http://www.cir- onlus.org/ (accessed November 28, 2013) Squires, N. (2013, October 4). Italy mourns 300 dead in lampedusa migrant boat tragedy. The Telegraph. Retrieved from http://www.telegraph.co.uk/news/worldnews/europe/italy/10355661/italy- mourns- 300- dead- in- Lampedusa- migrant- boat- tragedy.html The Norwegian Organization for Asylum Seekers,(2011 April) The Italian approach to asylum: System and core problems, available at: www.noas.org/ The UN Refugee Agency. (2013, June 19). New unhcr report says global forced displacement at 18- year high. Retrieved from http://www.unhcr.org/51c071816.html UN High Commissioner for Refugees (September 2013), A new beginning: Refugee integration in Europe, available at: http://www.refworld.org/docid/522980604.html (accessed 30 November 2013) United Nations Office for the Coordination of Humanitarian Affairs. Outline of the report of the commission on human security. Retrieved from http://www.unocha.org/humansecurity/chs/finalreport/outlines/outline.pdf The Italian Refugee Council 17
Acknowledgements This report was written based on research done in September and October of 2013 in Rome, Italy. Thank you to Valeria Carlini of the Italian Refugee Council and Carla Biaocchi of the House of Social Rights for their participation. Thank you to all of the interviewees who shared their time and stories. Special thanks to the Irma Parhad Summer Research Program for their support. The Italian Refugee Council 18