Régimes d'asile

This paper gives an overview of the current integration standards established within the Common European Asylum System and highlights the possible effects of the changing EU and national legal environment on the integration of beneficiaries of international protection. These integration standards are the starting point of the development of the integration indicators within the project “National Integration Evaluation Mechanism” (NIEM), which aims to support key integration and social actors in 14 EU Member States and Turkey to evaluate and improve the integration outcomes of beneficiaries of international protection. The EU’s greatest impact on the integration of beneficiaries of international protection has been through the stable legal framework of the Common European Asylum System (CEAS). The recast Asylum Procedures, Reception Conditions, Qualification and Family Reunification Directives all build on the standards set by the 1951 Geneva Convention and aim for its full and effective implementation. They set a series of standards that shape the integration process, starting from the reception phase until the full legal, socio-economic and socio-cultural integration allowing refugees to realise their full potential to contribute to society. These binding legislative acts are complemented by the Common Basic Principles for Immigrant Integration Policy in the EU1 and its re-affirmation, 10 Years On2 , which guide Member States on how to respond to the needs and opportunities that beneficiaries of international protection bring to their new homes. However, in the past year, the emergence and strengthening of exclusionary, anti-migrant narratives has threatened to undermine national – and now the EU’s – stable legal framework and level of ambition to promote refugee integration. The negative political discourse induced a surprisingly coordinated race-to-the-bottom reply at national level, whose approach is reflected in the most recent European Commission Communication “Towards a Reform of the European Common Asylum System and Enhancing Legal Avenues to Europe”. This document shows a fundamental change in the approach towards beneficiaries of international protection. These proposals reframe the logic of asylum to a more temporary legal status in its nature and have more often recourse to the cessation clause4 , without assessing the long-term consequences: how will it affect the integration of beneficiaries of international protection?

Asielzoekers die de EU op irreguliere wijze inreizen, blijven vaak niet in de lidstaat waar zij aankomen. Doormigratie van asielzoekers in de EU is niet helemaal te voorkomen, maar kan wel beter worden aangepakt. De Adviescommissie voor Vreemdelingenzaken adviseert daarom een bredere aanpak in EU-verband. Het aantal asielzoekers dat na aankomst in de EU doorreist naar een andere lidstaat is de laatste jaren sterk toegenomen, terwijl het aantal asielaanvragen in de EU sinds 2016 weer op het niveau van 2014 ligt. Tijdens de ‘vluchtelingencrisis’ in 2015 reisden de meeste asielzoekers door van Zuid- naar Noord- en van Oost- naar West-Europa. Sinds 2016 vindt er juist meer ‘secundaire migratie’ van asielzoekers plaats tussen de Noordwest-Europese lidstaten. Doormigratie van asielzoekers in de EU zet de asiel- en opvangstelsels van de lidstaten onder druk, tast de solidariteit tussen lidstaten aan, ondermijnt het maatschappelijk draagvlak voor migratie, houdt mensensmokkelnetwerken in stand en kan tot langdurige verblijfsonzekerheid en verdere uitzichtloosheid voor asielmigranten leiden. Lidstaten proberen het doorreizen van asielzoekers onder meer tegen te gaan door: 1) Het herinvoeren of intensiveren van grenscontroles; 2) Meer toezicht op vreemdelingen; 3) Het versoberen van de opvang; 4) het invoeren van verblijfsrechtelijke beperkingen; 5) Het toepassen van vreemdelingenbewaring (waar mogelijk). Nationale beleidsaanscherpingen kunnen asielzoekers afschrikken, maar dat leidt tot meer doormigratie naar andere lidstaten. Voor de EU als geheel is dat dus geen oplossing. De implementatie van de EU-Turkije verklaring en het sluiten van de Balkanroute hebben geleid tot een vermindering van het aantal asielzoekers dat direct na aankomst in de EU doorreist. Tegenwoordig reizen vooral asielzoekers door die ergens nog een asielaanvraag hebben openstaan of van wie de aanvraag is afgewezen. Het Dublin-systeem, dat is ingevoerd om te bepalen welke lidstaat verantwoordelijk is voor het behandelen van een asielaanvraag, werkt niet goed om het doorreizen van asielzoekers tegen te gaan. Met name de omgang met evident kansarme aanvragen van asielzoekers uit veilige landen van herkomst vormt een probleem. Ook lukt het niet goed om afgewezen asielzoekers terug te sturen naar hun land van herkomst. Doormigratie van asielzoekers in de EU kan effectiever worden tegengegaan door: 1) een overtuigende aanpak van de grondoorzaken van asielmigratie, zowel buiten als binnen de EU; 2) Positieve prikkels te introduceren voor zowel asielzoekers als lidstaten om zich aan de regels te houden. Zorg voor een verschillende behandeling van asielzoekers die al sociale, economische of culturele banden met lidstaten hebben, die afkomstig zijn uit veilige landen van herkomst en die evident kansarme aanvragen indienen en die niet onder de eerste twee groepen vallen; 3) Door onder meer in de relaties met landen van herkomst niet eenzijdig te focussen op het tegengaan van irreguliere migratie.

Upon request by the LIBE committee, this study examines the workings of the Common European Asylum System (CEAS), in order to assess the need and potential for new approaches to ensure access to protection for people seeking it in the EU, including joint processing and distribution of asylum seekers. Rather than advocating the addition of further complexity and coercion to the CEAS, the study proposes a focus on front-line reception and streamlined refugee status determination, in order to mitigate the asylum challenges facing Member States, and guarantee the rights of asylum seekers and refugees according to the EU acquis and international legal standards.

The Asylum Information Database (AIDA) is a database containing information on asylum procedures, reception conditions and detention across 20 countries. This includes 17 European Union (EU) Member States (Austria, Belgium, Bulgaria, Cyprus, Germany, Spain, France, Greece, Croatia, Hungary, Ireland, Italy, Malta, Netherlands, Poland, Sweden, United Kingdom) and 3 non-EU countries (Switzerland, Serbia, Turkey). Country and annual reports, legal briefings and video testimonies of asylum seekers; conduct fact-finding missions to further investigate important protection gaps established through the country reports. The website also allows for a comparison of different types of data related to the asylum procedure, reception conditions and detention among up to three countries. AIDA started as a project (September 2012 – December 2015) of the European Council on Refugees and Exiles (ECRE), in partnership with Forum Réfugiés-Cosi, the Hungarian Helsinki Committee and the Irish Refugee Council, and is now developing into a core research and documentation activity of ECRE. The overall goal of the database is to contribute to the improvement of asylum policies and practices in Europe and the situation of asylum seekers by providing all relevant actors with appropriate tools and information to support their advocacy and litigation efforts, both at the national and European level. These objectives are carried out by AIDA through the following activities: - Country reports - AIDA contains national reports documenting asylum procedures, reception conditions and detention in 20 countries. - Comparative reports - AIDA comparative reports provide a thorough comparative analysis of practice relating to the implementation of asylum standards across the countries covered by the database, in addition to an overview of statistical asylum trends and a discussion of key developments in asylum and migration policies in Europe. Annual reports were published in 2013, 2014 and 2015. This year, AIDA comparative reports are published in the form of thematic updates, focusing on the individual themes covered by the database. Thematic reports on reception and asylum procedures were published in March and September 2016 respectively. - Fact-finding visits - AIDA includes the development of fact-finding visits to further investigate important protection gaps established through the country reports, and a methodological framework for such missions. Focus on the reception conditions; transit zone at borders and on issues relating to asylum detention and the criminalisation of irregular entry; looking at registration and the unavailability of accommodation as barriers to access the asylum procedure. - Legal briefings - Legal briefings aim to bridge AIDA research with evidence-based legal reasoning and advocacy. With the assistance of information gathered from country reports, these short papers identify and analyse key issues in EU asylum law and policy and identify potential protection gaps in the asylum acquis. Legal briefings so far cover: (1) Dublin detention; (2) asylum statistics; (3) safe countries of origin; (4) procedural rights in detention; (5) age assessment of unaccompanied children; (6) residence permits for beneficiaries of international protection; and (7) the length of asylum procedures.

The so-called migration and refugee crisis is one of the most contentious topics on the EU agenda in the current context. The recent events related to the Syrian civil war, political turmoil in Libya and the subsequent influx of refugees and other migrants towards Europe as well as perceptions caused by internal migration that led to ‘Brexit’ have had a polarsing effect on Europe. Therefore, territorial evidence on the flows of asylum seekers and refugees, their distribution between and within EU countries, regions and cities, impact on socio-economic development as well as information on crisis management and integration is in high demand. The ESPON applied research activity “Impacts of refugee flows to territorial development in Europe” addresses these issues and aims to provide relevant territorial evidence and policy recommendations. The research aims to answer the following questions: How does the distribution of asylum seekers and refugees look like at regional and urban level and how has this been changing over time as a result of European and national policy decisions in recent decades? What skills and qualifications do the refugees possess and how does the influx of refugees impact the recipient countries´ regional and local labour markets and demographic imbalances (especially concerning regions which are facing the challenges of losing population and ageing)? Do the skills and qualifications meet the needs of local labour markets and how do they compete with local population and regular migrants? How are different European regions and cities located in arrival, transit and destination countries responding to the refugee crisis in terms of providing humanitarian aid, services (accommodation, material support, healthcare provision, education, language courses, labour market programmes), community building, internal distribution of refugees and medium and long term integration? How does the diversity within Europe in terms of integration policies at regional and local levels look like? What are the main challenges and what are the good policy responses and the best practices for successful integration of refugees into the local communities, societies and labour markets at regional and local levels? What kind of support do they need? How successful have the integration measures been in the past? How to improve the use of existing funding opportunities? Is there a need to improve the legislation? What kind of impacts would the implementation of the proposal of European relocation scheme generate to European countries regions and cities? How are countries redistributing refugees internally? What are the main concerns for the host countries and communities? Consortium: VVA Europe, IT (lead contractor), Istituto per la Ricerca Sociale, IT, InTER - Insitute for Territorial Economic Development, SRB Central European University, HU International Centre for Migration Policy and Development (ICMPD), AT Katholieke Universiteit Leuven, BE Bernd Parusel, SE Bastian A. Vollmer, DE Richard Williams, UK Gianni Antonio Carbonaro, UK

The EU has had its greatest effects on the integration of beneficiaries of international protection (BIPs) through the stable legal framework of the Common European Asylum System (CEAS). The 2013 Reception Conditions and 2011 Qualification Directives build on the standards set by the 1951 Geneva Convention and aim for its full and effective implementation. As presented in the MPG paper “Lost in transition? The European standards behind refugee integration”, they guarantee a series of standards that shape the integration process, starting from the reception phase until full legal, socio-economic and socio-cultural integration allows refugees to realise their full potential to contribute to society. On 13 July 2016, a set of proposals was presented to reform these standards, including to replace the Qualification Directive with a Regulation and to amend the Reception Conditions Directive.1 The social consequences of these proposals are serious. Since BIPs today are fleeing many protracted conflicts that take on average 25 years to resolve2 , our societies will have to live with the consequences of these proposals for years—if not generations—to come. These proposals largely represent a missed opportunity and a potentially major risk for integration. The minor improvements on reception and qualification standards would only marginally improve the situation on the ground in most Member States. Moreover, several of the recast’s proposals would actually delay and undermine the integration process for asylum-seekers and BIPs by reducing support for potentially large numbers and removing some possibilities for more favourable conditions for integration. Unlike the 1 st and 2nd generation of the CEAS, which consolidated the most common national practices in EU law, several of these proposals are modelled on hasty and politicised recent restrictions in only a few Member States. These restrictions have not yet been demonstrated to be justified, proportionate or effective for improving integration outcomes. Overall, national governments and civil society agreed that better implementation of the current Reception and Qualification Directives would have greater effects on integration, without jeopardising the effectiveness of other proposed reforms to the CEAS. Particularly as the Commission’s 2016 asylum proposals were drafted more hastily than previous EU asylum and immigration proposals, these two proposals would need to be revised or seriously amended by Council and Parliament in order to make integration the top priority of this recast and avoid a de facto race-to-the-bottom where Member States are further demanding integration but not effectively supporting BIPs, Member States and the local, social and civil society actors that make integration a reality.

As a result of the refugee reception crisis in 2015 the advocacy for increasing resettlement numbers in the overall refugee protection framework has gained momentum, as has research on resettlement to the EU. While the UNHCR purports resettlement as a durable solution for the international protection of refugees, resettlement programmes to the European Union are seen as a pillar of the external dimension of the EU’s asylum and migration policies and management. This paper presents and discusses the literature regarding the value transmissions taking place within these programmes. It reviews literature on the European resettlement process – ranging from the selection of refugees to be resettled, the information and training they receive prior to travelling to their new country of residence, their reception upon arrival, their placement and dispersal in the receiving state, as well as programs of private and community sponsorship. The literature shows that even if resettlement can be considered an external dimension of European migration policy, this process does not end at the border. Rather, resettlement entails particular forms of reception, placement and dispersal as well as integration practices that refugees are confronted with once they arrive in their resettlement country. These practices should thus be understood in the context of the resettlement regime as a whole. In this paper we map out where and how values (here understood as ideas about how something should be) and norms (expectations or rules that are socially enforced) are transmitted within this regime. ‘Value transmission’ is here understood in a broad sense, taking into account the values that are directly transmitted through information and education programmes, as well as those informing practices and actors’ decisions. Identifying how norms and values figure in the resettlement regime aid us in further understanding decision making processes, policy making, and the on-the-ground work of practitioners that influence refugees’ lives. An important finding in this literature review is that vulnerability is a central notion in international refugee protection, and even more so in resettlement. Ideas and practices regarding vulnerability are, throughout the resettlement regime, in continuous tension with those of security, integration, and of refugees’ own agency. The literature review and our discussion serve as a point of departure for developing further investigations into the external dimension of value transmission, which in turn can add insights into the role of norms and values in the making and un-making of (external) boundaries/borders.

(En) Morocco has long been a country of asylum seekers and refugees from various origin countries. Currently, in Morocco, refugees and asylum seekers are mainly from African and Middle-Eastern countries. Morocco is party to the Refugee’s Convention (1951) and its additional Protocol (1967). Morocco has ratified the Agreement of 23rd November 1957 on maritime refugees as well as its protocol. In 1957, Morocco adopted a law on the implementation modalities of the Geneva Convention related to the refugee status. This law enables the Office of Refugee and Stateless persons (ORS) for the administrative and legal protection of refugees. The law, as it stands, is too general and the ORS has ceased its activities. In spite of it being short lived, Moroccan Law refers to the Geneva Convention (1951) and thus to the rights related to refugee status in terms of the right to work, to education, to health, to freedom of movement etc (article 12-34). UNHCR has had an official representation in Morocco since 1965, through an honorary delegation, and since 2007 it has had diplomatic representation in the country. Because of the absence of any effective national procedure in the field of asylum, UNHCR registers asylum seekers and determines the refugee statute. The UNHCR office deals with all asylum claims and decides on the recognition of refugee status in Morocco. The refugees recognised in Morocco by UNHCR do not benefit from all the rights normally associated with the refugee statute in the Geneva Convention (1951). The Moroccan authorities do not automatically deliver a stay permit which is a necessary condition for migrants wishing to enjoy their rights. Since 2007, UNHCR in Rabat, in partnership with some local NGOs, is active in supporting recognised refugees. UNHCR’s presence in Morocco, in particular, its recent diplomatic representation in the country is considered by some experts and civil society actors as a sign of the ‘externalisation’ of European borders brought about by the EU’s European Immigration and Asylum policy. (Fr) Le Maroc a été depuis toujours un pays de réfugiés et de demandeurs d’asile pour plusieurs peuples venant de plusieurs pays. Actuellement les réfugiés et les demandeurs d’asile au Maroc proviennent principalement des pays africains et du Moyen Orient. Le Maroc a adhéré à la Convention de 1951 et à son Protocole additionnel de1967. Il a également ratifié l'Arrangement du 23 novembre 1957 relatif aux marins réfugiés et le Protocole à cet Arrangement. En 1957, le Maroc a adopté une loi qui a fixé les modalités d'application de la Convention de Genève relative au statut des réfugiés et qui a confié la protection juridique et administrative des réfugiés au Bureau des Réfugiés et Apatrides (BRA). Mais cette loi est assez peu détaillée et le BRA a presque cessé actuellement toute activité. Malgré son caractère bref et assez peu explicite, la législation marocaine se réfère à la Convention de Genève de 1951 qui accorde des droits bien précis aux personnes reconnues comme réfugiés, comme le droit au travail, à l’éducation et à la santé, à la liberté de circulation etc.(articles 12 à 34). Le HCR est représenté officiellement au Maroc depuis 1965, tout d’abord à travers une délégation honoraire puis par une représentation diplomatique en 2007. En l’absence d’une procédure nationale effective en matière d’asile, c’est le HCR qui enregistre les demandeurs d’asile et conduit la détermination du statut de réfugié. Le bureau du HCR traite ainsi toutes les demandes d’asile, détermine et reconnaît le statut de réfugié dans le pays. Les réfugiés au Maroc reconnus par le HCR ne bénéficient pas de tous les droits inclus dans la Convention de Genève de 1951. Les autorités marocaines ne leur délivrent pas automatiquement une carte de séjour qui leur permettra de jouir de leurs droits de réfugiés dans le pays. En partenariat avec certaines ONG locales, le HCR à Rabat est actif dans l’accompagnement des réfugiés reconnus, particulièrement depuis 2007. La présence du HCR au Maroc et son installation diplomatique dans le pays depuis 2007 est considérée par certains spécialistes en migration et par des acteurs de la société civile comme l’une des manifestations de l’externalisation des frontières européennes, du fait de la politique commune d’immigration et d’asile développée par l’Union Européenne.