Listening to the refugees - Report in the Gender, Age and Diversity Roll-Out

UNHCR
Regional Representation
Budapest

Conducted September through November 2005

Foreword
Planning for Refugees first and foremost must be planning with refugees, listening to their concern and building all protection and assistance activities around their needs and concerns. In theory this has been UNHCR's guideline for many years. However in the practical planning of programmes refugees themselves are often not given the chance to communicate their needs and problems as they should.

Moreover, not all refugees are in the same situation. They come from different backgrounds, are of different age, have different legal statuses. They are men and women. All these factors influence the refugees' lives and should be taken into consideration when developing a refugee policy and refugee programmes. This is part of UNHCR's goal to mainstream gender, age and diversity issues into the work of the Refugee Agency and its partners.

It is against this background that the United Nations High Commissioner for Refugees in 2004 launched the Gender, Age and Diversity Roll-out, a novel global tool that enables UNHCR, host governments and NGOs to place refugees at the centre or all their planning and decision making processes.

Hungary, Poland, the Slovak Republic and Slovenia were among the first 40 countries worldwide to join this programme. In only two months the countries prepared the exercise and carried out the hearings successfully.

During the participatory assessment the four Multi Functional Teams held discussions with several hundred refugees, both during one on one talks and in 112 different focus groups. The compiled data give us clear picture of the refugees' needs and views. The sheer number of participants and the structure of groups warrants that this report is not a compilation of individual stories but a relevant overview of the refugee situation in the countries involved

This document contains a condensed and structured summary of the findings. I hope that it will serve as a very sensible hands-on tool to address the concerns of those our work is committed to: refugees and asylum seekers in Central Europe.

Lloyd Dakin
UNHCR Regional Representative
to Central Europe

Regional Summary
The Central European sub-region covered by the Regional Representation in Budapest covers Hungary, Poland, the Slovak Republic and Slovenia. In the first nine month of 2005 a t of 8,797 applied for asylum in these countries. In comparison with the same period in 2004 when 16,194 persons applied for asylum, this is a sharp decline of 45.67 %.However, numbers are somewhat misleading as up between 30 and 70 percent of applicants abscond during the first instance procedure.
Main findings
During the conception of the GAD programme refugee experts assumed that the worries and concerns of refugees will differ considerable depending on gender, age and ethnic background of the interviewees. However, in Central Europe the most decisive factor turned out to be the legal status of the people concerned.
Recognised refugees on the one hand and asylum seekers on the other face two completely diverse sets of problems, while discrepancies between genders and generations and, to some extent, even between ethnic backgrounds are much smaller. It is the legal status of an individual that determines all aspects of life such as the right to liberty and security, the right to education and employment, chances of finding accommodation, access medical care and so on.
Problems for asylum seekers differ from country to country. In Poland, primary education is the biggest concern. Not only do Polish schools expect their pupils to speak the language before they enrol, many reception centres are placed far from towns and it is physically difficult for the children to get to a school. As a consequence, nearly half of asylum seekers' children of school age do not attend school.
In Slovenia, asylum seekers were unhappy about the overcrowded facilities they live in, and about overworked, sometimes unsympathetic, staff.
Hungarian asylum seekers very often felt that they are not informed properly about their rights and entitlements and that they have difficulties to find gainful employment.
One of the world's lowest recognition rate is the main problem in Slovakia. One Afghan man told the Multifunctional Team that he has been waiting for an asylum decision for more than three years. Refugees trapped in such situations can neither really start integrating nor making any other plans for their and their family's future lives.
"We're more or less satisfied with accommodation, food, free time activities, so why discuss this? We've also learned the language, but for what? Maybe we will never be granted asylum here!"
Afghan asylum seeker in Bratislava in perfect Slovak
For all recognised refugees in Central Europe the supreme problem is the lack of integration programmes. Once people are recognised as refugees, the governments expect them to be self sufficient, whilst access to accommodation, to the labour market and to social benefits is hampered by language barriers, xenophobia and legal provisions. With integration, race and colour of skin also have a significant impact. The more "different" the looks, the less easily refugees are accepted by their host societies.
Multi Functional Teams in all countries identified the need for national integration policies that would establish horizontal (inter-ministry) and vertical (local government, government, NGO) co-ordination mechanisms. Integration programmes would have to offer of orientation programs for newly recognised refugees and promote their self-organization. In order to give refugees a voice, any efficient integration strategy should also include regular needs assessments with a gender/age perspective and encourage refugees to actively participate in policy making.
Information turned out to be a precondition for integration, Not only do refugees themselves want to know more about their rights and obligations. There is also a need to inform possible landlords, employers, educational institutions and health care providers about the rights and entitlements of recognised refugees and persons enjoying subsidiary protection
Methodology
In the Central European sub-region the GAD Roll out was conducted between September and November 2005 in four steps: preparatory, active, coordination and final phases.
Preparatory Phase
In the preparatory phase Multi Functional Teams (MFTs) were formed, consisting of eight to ten members, which had been nominated by UNHCR, the host governments and non-governmental refugee organisations.
They reviewed the national refugee statistics and agreed on locations and on the focus groups that were to be formed. Practical arrangements for the missions to the camps were made at that stage.
GAD guidelines recommend the following structure of focus groups:
Gender/Status Children
10-13 yearsAdolescents
14-17 years Younger adults
18-39 years Older Adults
40 + years Male refugeesNationality 1Nationality 1Nationality 1Nationality 1Female refugeesNationality 1 Nationality 1 Nationality 1 Nationality 1
Male asylum seekers Nationality 1 Nationality 1 Nationality 1 Nationality 1
Female asylum seekers Nationality 1 Nationality 1 Nationality 1 Nationality 1
Male refugees Nationality 2 Nationality 2 Nationality 2 Nationality 2
Female refugees Nationality 2 Nationality 2 Nationality 2 Nationality 2
Male asylum seekers Nationality 2 Nationality 2 Nationality 2 Nationality 2
Female asylum seekers Nationality 2 Nationality 2 Nationality 2 Nationality 2

Those categories were adapted by the MFTs in a pragmatic way in order to better reflect the conditions on the ground: Some nationality groups would have been too small so they were convened by region (e.g. Middle East, Africa etc.) In Poland, a third category of subsidiary protection status was introduced.
Active Phase
By end September / beginning of October the MFTs visited the main refugee locations in their respective countries for the participatory assessment. Their data collection was based on three methods:
• Observation and spot checks: Looking at the situation or behaviour of people to uncover structural problems in the accessibility of services
• Semi-structured discussions: Informal talks with individuals, a small number of persons or a family
• Focus group discussions: Formal meetings with groups of refugees that share common characteristics such as age, gender, ethnic background, marital status
According to MFT practically all discussions were constructive and refugees of all ages were pleased to be able to express their views and to be listened to.
Being refugee experts, the team members already had ample anecdotal knowledge of refugees' problems prior to the exercise, but the GAD methodology allowed for a much more structured data collection which usually does not transpire from traditional casework.
Coordination Phase
All Multi Functional Teams meet in a three day workshop in Bratislava from 5 to 7 October 2005 to discuss and structure the overwhelming amount of information gathered.
The team members systematised and prioritised the results and worked out recommendations on how to respond to the problems raised.
Final Phase
Each MFT completed report forms and finalised a country report, once more systemising and condensing the results. The final reports are focusing on the most important problems and the underlying legal concerns.
"When I became refugee, I went from having a political problem to having a money problem. At least when I had a political problem, people would listen to me."
Recognized Iranian refugee in Hungary
Country Report Hungary
In the first three quarters of 2005, 1,232 persons applied for asylum in Hungary. Compared to the same period in 2004, there was a slight increase (+1.3%). Applicants from Serbia and Montenegro constitute the biggest group, totalling 189 claims. They are followed by asylum seekers from Georgia (81), Turkey (49), the Russian Federation (29) and the Islamic Republic of Iran.
The Multi Functional Team in Hungary was established on 15 September 2005 and was composed of eight persons: four UNHCR staff, two officials from the Hungarian Office for Immigration and Nationality (OIN) as well as two NGO activists representing one legal (Hungarian Helsinki Committee) and one social organisation (Menedék).
In order to cover as many locations as possible, the MFT split in two groups and visited the following locations:
• Bicske Refugee Reception Centre
• Orosháza Border Guard Detention Facilities
• Békéscsaba Refugee Reception Centre
• Békéscsaba NGO Oltalom's Separated Children Home
• Nagykanizsa Red Cross Separated Children Home
• Debrecen Refugee Reception Centre
• Budapest (NGO Menedék office)
The focus groups not only distinguished between gender, age and cultural background but were also divided by status in asylum seekers on the one and refugees on the other hand.
Most asylum seekers brought forward very similar concerns that are therefore presented jointly in this report.
"Why do I waste my time here in Hungary where I cannot support my family and do not get any help to integrate? I have no work and the only money I have is from relatives abroad... Can you (UNHCR) help me to get to another European country?"
Recognised Serbian refugee in Debrecen.
As for recognised refugees and persons with subsidiary protection, complaints differed from group to groups and are therefore reported in separate age and gender clusters.
1. Asylum seekers (all sub-groups)
Right violated / Problem reported Suggested Action
Right to special care and assistance during motherhood and childhood
Appropriate/adapted food for children is not available Some provisions in the Refugee Reception Centres are not adequate for the needs of mothers and children (medication, food, hygienic products, including sanitary napkins, blankets).

Adjust food according to special needs;
Allow more participation of asylum seekers in designing the composition of food;
Asylum seekers themselves should not only wait for the situation to improve but communicate their needs. The government is encouraged to adjust provisions accordingly and might look for additional funding possibilities with the EU (e.g. ERF)
Right to education:
Children lack Hungarian language skills and therefore have difficulties to be admitted to school. Language courses are insufficient.
Raise awareness of schools regarding their obligation to enrol children;
Offer Hungarian language courses;
Right to information
Asylum seekers do not feel informed about the asylum procedure and about their rights and entitlements in general. Information is either unavailable or outdated.
Produce and disseminate up-to-date information in printed form as well audio/video information;
Expand comprehensive free legal counselling systems;
Principle of family unity
Due to improper application of Dublin regulations family members get separated.
All separation cases need to be documented and analysed;
The Dublin Coordination Unit at the Office for Immigration and Nationality is to review regulations and practices.
Right to liberty and security
Children reported several cases of physical violence and verbal abuse, especially in small towns.
Women complained that bathroom doors cannot be locked and that there is no separation for women during the initial quarantine period.
Men reported that they were exposed to physical violence, verbal abuse and cases of aggressive behaviour of guards.
Awareness raising programme for police and security guards should be introduced.
A mechanism should be established for asylum seekers to report the problems in a confidential manner.
A mediation system should be introduced in the centre so problems faced by the community can be addressed effectively.

2. Refugee children, Separated Children
Right violated / Problem reported Suggested Action
Right to special care and assistance during and childhood
Children with special needs have no adequate integration related assistance.
Separated Children generally have a fear of ageing-out of the special programmes designed for this group and be forced to leave the homes for separated children. They face the risk of being relocated to normal Refugee Reception Centres in other parts of the country and also to be confronted with various obstacles to integration without sufficient opportunities for self-empowerment.

All stakeholders to jointly review integration related policies to e.g. introduce more flexibility towards young adults;
The system of caregiving should ensure continuity and allow for a transitional period until they reach sustainable level of self-support in the areas of work, education, housing etc.
Right to education
Refugee children find it hard to adapt their Hungarian language skills to the levels required for education. Thus they face difficulties to be admitted to schools. They feel that language courses offered to them are insufficient.
Sometimes they are accommodated too far from schools.
Raise awareness of schools regarding their obligation to enrol children;
Establish mandatory Hungarian language courses;
Create system to independently assess the level of Hungarian language and education;
Project to provide after-school lessons;
Offer free local transportation / arrange school bus;
Right to liberty and security of person
Incidents of domestic violence are exacerbated by the fact that there is a lack of awareness on the part of authorities and social workers.
Create a system that allows for anonymous reporting of cases of domestic violence and sexual harassment;
Introduce a Code of Conduct;
Initiate awareness raising programmes, especially for police and security guards

3. Refugee women
Right violated / Problem reported Suggested Action
Right to liberty and security of person
Refugees reported security issues such as allegations of sexual harassment, blackmailing by security guards.
Young children were allowed to leave the Refugee Reception Centre without the parents' authorization.
Train and sensitize security guards;
Establish confidential referral and mediation structures;

4. Refugee men
Right violated / Problem reported Suggested Action
Lack of integration system
Access to the Hungarian labour market is generally very difficult for refugees.
Male refugees need specialised counselling and vocational training in order to find employment.
All stakeholders should jointly review policies and regulations regarding integration of refugees and persons authorized to remain and especially examine the following issues:
+ Access to labour market and possibilities to simplify procedures;
+ Access to affordable housing, medical services etc.
+ Possibilities for more efficient cooperation between Government and NGOs;
Lack of information about refugee rights and entitlements in particular regarding social welfare;
Right to education
According to current legislation, a recognised refugee is entitled to 360 hours of Hungarian language lessons free of charge. The fact that the courses have to take place within a period of twelve months starting from the date of recognition causes difficulties. Sometimes no appropriate courses are available right away, but the entitlement expires after twelve months regardless.
Lobby for more flexibility or adjust regulations accordingly: Extend the one-year period to two years or commence the countdown when language courses have started;

Country Report Poland
In the first three quarters of 2005, 3797 persons applied for asylum in Poland. Compared to the similar period in 2004, there is a 26.1% decrease. Applicants from the Russian Federation constitute the vast majority, totalling 3448 claims. They are followed by asylum seekers from Belarus (55), Ukraine (46), Georgia and Pakistan (33 each).
In Poland, the Multi Functional Teams were formed by nine individuals, including five representatives of UNHCR, two NGO representatives (one from the Association for Legal Intervention and one from Polish Humanitarian Action) as well as one official from the Mazovian Voivodship Office and one from the Office for Repatriation and Aliens.
The participatory assessment exercise took place from 28 to 30 September 2005. Out of a total of 16 Receptions Centres in Poland, the MFTs visited the following sites situated close to Warsaw:
• Linin R/C
• Warsaw Siekierki R/C
• Warsaw Bielany R/C
• Warsaw Wola R/C
• Lingua Mundi Foundation - Centre for the Teaching Foreign Languages
The Teams conducted interviews with asylum seekers, persons enjoying tolerated stay (subsidiary protection) and with recognised refugees. Focus group participants were divided according to age, gender and nationalities.
As is typical for the Central European sub region, the difficulties faced by the interviews are largely determined by their legal status and much less by age or gender.

1. Asylum Seekers (all sub-groups)
Right violated / Problem reported Suggested Action
Educational issues
Access to education remains one of the problems in reception centres. As of the beginning of September 2005, around 53% of all school-aged children attended schools. In comparison to previous years, the number of children attending school is rising.
Children who are already Polish speaking tend to be admitted more easily.
Although textbooks are provided, sometimes students have inadequate access to additional educational materials, e.g. stationery.
To attend secondary school (gymnasium) children have to submit a document proving that they have graduated from elementary school, which is difficult for foreign children.
Children have difficulties to follow the school curriculum because of language problems, but also because some asylum seeking minors have experienced long breaks from school. Learning conditions in some centres are not conducive for students.
Incidents of disrespectful treatment by teachers were reported.
NGO, ORA and UNHCR have already taken some steps to increase the amount of children attending schools, but a lot remains to be done.
School directors should fulfil their obligation to admit all children to local schools.
The reluctance of some parents to send children to school and school directors to admit asylum seekers must be addressed through an adequate campaign.
NGO's and parents should work together motivating children to learn Polish and attend schools
Schools should be encouraged exercise their right to request additional educational funds.
Children should take more care of school supplies and other materials distributed to them.
NGO's should utilize their capacities to collect and distribute used school materials from various sources of donations and contributions.
Authorities at Reception Centres should organise additional and better language lessons as necessary.
Schools should promote the integration of asylum seeker children in their local communities.
Social conditions
There is limited access to sports and recreational facilities at some reception centres.
In some reception centres privacy for couples is limited as parents and children share one room. Also there is no separation between adults and teenagers.
In addition, some asylum seekers complained about insufficient supplies of seasonal clothing, as authorities concentrate on providing winter clothes and clothes for newborn children.

Asylum seekers should be encouraged to organize activities based on their previous skills and experiences.
NGO's should organise activities which promote child development and social reintegration.
Authorities of reception centres should facilitate contacts between the children of asylum seekers and Polish children.
Authorities of reception centres and NGOs should facilitate recreational and sports activities outside the centres.
Authorities of reception centres should ensure that a portion of government funds is allocated to providing seasonal clothing.
Asylum seekers' should be encouraged to express and their needs so government and NGOs can respond accordingly. In this context NGOs should launch funding and contribution campaigns.
Authorities of reception centres should make adjustments in the centres to address the privacy needs of all family members..
Protection matters
Fairness and effectiveness of the asylum procedure is endangered by inadequate legal assistance: The fact that legal NGOs are located far from some reception centres causes additional hardships for asylum seekers, especially those with disabilities. Due to financial constraints, only selected reception centres were regularly visited by legal NGOs.
Many women have limited knowledge about their rights in the procedure. As a consequence, female asylum seekers very rarely take part in the process actively.
There is no systematic identification of victims of trauma, including victims of violence.
The introduction of Dublin II regulations has resulted in an increase of the number of asylum seekers in reception centres in spite of an overall decrease in new applications in 2005. This rise has not been accompanied by a corresponding increase in the overall availability of legal services.
The restrictive application of the Dublin II Humanitarian Clause by other EU countries results in low number of successful family reunification cases.
Financial support to legal NGOs from available sources of funding should be increased.
UNHCR should provide more training for legal NGOs and government. officials on asylum related matters.
Legal NGOs should visit reception centres on a frequent and regular basis.
Legal assistance should not be limited to the asylum procedure.
Government, NGOs and UNHCR should facilitate family reunification and distribute information on the procedures.
Women should be informed about their rights and encouraged to exercise them.
The number of social worker in reception centres should be increased.
Eligibility and migration officers need to be sensitised on how to identify victims of trauma and the number of psychologists available during the asylum procedure should be increased.
Decision makers and interpreters should be sensitised to gender issues.
Medical care
Asylum seekers have limited access to treatment in some difficult and expensive medical cases.
Victims of trauma have limited access to psychological assistance.
Pregnant women in some cases do not have sufficient access to basic diagnostic examinations such as ultra sound screening.
Although the treatment of serious diseases is available to asylum seekers, the initial basic medical screening of new arrivals does not insure the timely medical interventions. Polish authorities admit this shortcoming and efforts are already under way to improve the screening system.
The government should provide additional funds in order to ensure adequate medical and psychological assistance.
NGOs should be encouraged to improve medical and psychological assistance for victims of trauma and violence.
Security issues
Teenage girls and young women report about harassment by male asylum seekers in the reception centres.
There are conflicts and fights among asylum seekers and a mutual distrust between asylum seekers and the local population.
Asylum seekers are afraid of ticket controllers in public transport.
Asylum seekers are reluctant to revert to police or reception centre staff for help. This problem is exacerbated by the limited familiarity of the staff with the cultural backgrounds of the asylum seekers.
An additional problem arises from the fact that violence is widely regarded as an acceptable method for resolving conflicts within the asylum seeker community.
Reception centre authorities and local police should organize meetings with asylum seekers in order to get to know each other better.
Authorities should sensitise the Polish population with regard to the situation of asylum seekers and refugees.
Open House Days should be organised to establish a record with the local population.
Local authorities responsible for public transport should be informed about improper behaviour of ticket controllers.
Government, NGOs, and UNHCR should pay more attention to cases of violence in reception centres.

2. Recognised refugees
Right violated / Problem reported Suggested Action
Employment
Refugees have difficulties finding jobs as their original professional skills of refugees do not meet labour demands in the country.
Previously there were problems with the availability and quality of Polish lessons. Although this situation has recently been resolved, language problems still persist as many recognised refugees do not speak Polish well enough. These problems are likely to continue as many recognised refugees show a reluctance to study Polish.
Because of a generally high unemployment rate in Poland, recognised refugees face problems finding jobs in Poland. Although they have a right to vocational training, this right is underutilized because of language barriers and limited availability of vocational training courses.
Government, NGOs, and employers should promote the principle of non-discrimination in the workplace and employers should be encouraged to offer equal employment opportunities to refugees.
The refugee community should encourage and support newly recognised refugees to learn Polish.
A system of recognising and enhancing previous professional skills of refugees should be established.
Vocational training courses meeting labour market needs should be made available to recognised refugees. NGOs should start integration programmes.
Social welfare
Refugees complain that the duration of integration assistance is limited to one year. Subsequent social welfare allowances for unemployed do not cover basic integration needs.
Due to the economical and social conditions in Poland, general social support available in the country is limited. Although refugees have the same social rights as Polish citizens, they sometimes encounter practical problems in exercising those rights.
Furthermore, in many cases social workers do not speak foreign languages. This makes it difficult for social workers to explain to refugees their legal and social rights.
The government should adjust the integration assistance according to individual needs of recognised refugees.
Government needs to earmark funds from within the country's social welfare budget to be spent on recognised refugees.

Living conditions
Refugees find it difficult to find a place to live. There is very limited access to municipally subsidized accommodation.
For private accommodation, landlords tend to charge higher prices to foreigners or even refuse to rent to them.
Because of job opportunities and community networks refugees mainly want to live in big cities where prices for accommodation are higher.
Local authorities should review and increase the number of municipal apartments for refugees
NGOs and refugee organisations should assist newly recognized refugees, with finding jobs and accommodation.

Medical care
Recognized Refugees have access to the Polish medical system. However, due to generally poor quality medical services in the country, the access to adequate medical care and quality psychological assistance remains at an unsatisfactory level.
The situation is aggravated by the refugees' limited knowledge of the medical system in the country and the language barrier between themselves and medical staff.
Government and NGOs should inform refugees about how the medical system works
In cases of special need, NGOs should assist recognised refugees.
Legal issues
Persons with tolerated stay are largely uninformed about their legal status and entitlements to assistance.
As there are only few NGO lawyers, they focus on asylum seekers and not on recognised refugees. Therefore in many cases refugees are left without legal assistance that would enable them to exercise their conventional rights.
Refugees should be informed about their rights by government and NGOs, and should be encouraged to exercise them.
Financial support to legal NGOs should be increased.
The government should provide free legal assistance to recognised refugees so they can realise their conventional rights.
UNHCR should provide training for NGOs and government officials on integration matters.

3. Persons with subsidiary status
Persons with tolerated stay face very similar problems as recognised refugees when it comes to access to medical care, finding jobs or general living conditions. Therefore, the list below contains only those complaints which are specific for that group and do not repeat concerns mentioned by recognised refugees as well.
Right violated / Problem reported Suggested Action
Employment
In addition to high unemployment rates in Poland, persons with tolerated stay are confronted with the fact that they have neither the right to vocational training nor are they eligible for integration programs or language training. Employers should be encouraged to offer equal employment opportunities to persons granted complementary protection.
Government should change the legislation on social assistance to enable persons with tolerated stay to access integration programmes including vocational training, and advise on how to look for jobs and language courses.
Living conditions and social welfare
Despite the fact that persons granted complementary protection have the right to receive the same benefits from the social welfare system as Polish citizens, in practice a lack of familiarity impairs theirs ability to use the system.
The awareness of Polish government officials about the rights of persons with tolerated stay should be increased. And the government should pledge more funds for the social welfare of this group.
Government should extend the right to stay in Reception Centres until persons with tolerated stay - especially vulnerable cases - have secured outside accommodation.
Increase awareness among persons with tolerated stay of how the social welfare system works.
Legal issues
Persons with tolerated stay are largely uninformed about their rights and possibilities of getting help. NGO lawyers concentrate on asylum seekers and do not have the capacity to deal with this caseload.
.
Government and NGOs should inform persons with tolerated about their entitlements while they themselves should be encouraged to exercise their rights.
Financial support to legal NGOs should be increased.
The government should provide free legal assistance to persons granted complementary protection.

Country Report Slovak Republic
In the first three quarters of 2005, ,2448 persons applied for asylum in the Slovak Republic. Compared to the equivalent period in 2004, there is a sharp decrease in applications (-73%). Applicants from the Russian Federation constitute the biggest group, totalling 718 claims. They are followed by asylum seekers from India (283), Moldova (258), Georgia (221), Bangladesh (195) and China (179)
The Multi Functional Team in Slovakia was composed of ten members (six UNHCR staff, two governmental officials from the Ministry of Interior and the Ministry of Labour respectively as well as one representative from a legal and from a social NGO each).However the representative of the Minister of Labour after attending the first meeting excused herself due to a mission and was not replaced.
The Team split up in groups of two to three persons accompanied most of the time by interpreters and for four days conducted interviews in the following centres for asylum seekers:
• Rohovce (reception center),
• Adamov (reception center)
• Gabcikovo (accommodation center)
• Brezova pod Bradlom (accommodation center)
The Team has also conducted field visits to Zvolen (Central SR) and Kosice (Eastern SR) to talk to recognised refugees.
Detailed lists of people to be interviewed according to age, gender and nationality had been prepared in advance. However, it turned out quite frequently that the persons in question had left the centres in the meantime and had to be replaced in loco by new participants. The interviews lasted from one to three hours and involved between one and eight persons.
We were denied entry at Bratislava Airport in spite of valid Slovak visa and we could not lodge our asylum claim. They deported us to Prague but Czech authorities sent us back here. Now we are allowed into the asylum procedure. So somehow Slovak authorities conceded that they made a mistake in the first place.
Group of African asylum seekers
Formal and informal meetings with staff of the Migration Office also took place in the different locations. Some of them expressed their frustration for the continued movement of people trying to reach other EU countries. Others mentioned with warmth that they have received thank you cards from those who had moved on....

"For some of them, where the language was not a barrier , we started to care for them like for relatives..., we are all human beings with our positive and negative aspects " and surely we understand their difficult situation".
A staff member from the Migration Office in Bratislava

1. Adult male asylum seekers

Adult males constitute the largest group. Most of the concern expressed in this chapter would apply in the same way to most other asylum seekers.
Right violated / Problem reported Suggested Action
Access to the territory
Right to seek asylum
Nearly all asylum seekers claim that they were unable to obtain legal entry to EU territory and therefore resorted to smugglers.
Some also reported that they came to Slovakia first, taking a rest in a reception centre to be smuggled on to the Western EU. Later they were returned in accordance with Dublin II regulations.
A group of Africans reported of irregularities when trying come to Slovakia by plane and with valid documents.

Organise information sessions on the risks of using smugglers after having asked for asylum in EU, briefing on Dublin II Regulation and the consequences of leaving the procedure;
Create a border monitoring system at the airport involving NGOs and organised training of authorities using the example of best practices in other countries such as. Austria;

Right to physical safety and dignity
There was an incident when one asylum seeker was brutally beaten up near a reception centre.
The inhabitants of the centre are terrified by surprise raids. Once a month police comes to the centre during the night. They enter with dogs searching for illegal residents. Asylum seekers claim to be shocked by those raids as they are taking them back to situations they fled from.
Create opportunities for encounters between the locals and the asylum seekers;
Open existing cultural, sports and educational facilities in the centres to the local population;
Introduce regular meetings between asylum seekers, guards and local police in order to decrease tensions and increase mutual understanding;
Right to a fair procedure
Asylum seekers complained that in many cases there was no or poor interpretation. There were also instances when interpreters breached confidentiality disclosing the content of interviews.
Choose from a wider group of officially certified interpreters and utilise technologies to make up for the lack of interpretation services such as telephone interpretation;
Offer ad hoc training for interpreters involved in the asylum procedure;
Right to correct information
Inability to understand the different phases of the asylum procedure is creating uncertainty and tensions.
Not only do authorities not provide procedural information pro-actively, but the asylum seekers also underestimate the crucial role of the interview and the whole legal procedure.
Provide comprehensible Information on the asylum procedure in writing and by audio visual means;
Encourage refugees to deal with legal issues from the beginning;

Right to fair asylum procedure
Right to durable /solutions
Asylum seekers complained about the length of the asylum procedure, low recognition rates and the lack of alternative solutions. Some have been in the procedure for more than two years after repeated applications. They say they are unable to pay smugglers to move further West and expressed fear of persecution if returned to the country of origin.
Many asylum seekers felt neglected and depressed and with no real prospects for the future.

Establish a joint board where the Migration Office, Aliens and Border Police, the Ministry of Labour, NGOs, UNHCR can discuss durable solutions for long-stayers;

Right to free legal assistance/counselling
Asylum seekers felt that there were not enough lawyers to meet their needs for legal counselling and assistance;
Recommend that asylum seekers be entitled to free legal counselling by law, as is the case in Hungary and Slovenia;
Make information on reception conditions, legal assistance readily available through printed materials and audio visual means in several languages;
Create a system of legal and social counselling for asylum seekers in agreement and co-ordination with the Migration Office;
Encourage people in need of protection to better cooperate during the procedure in order to speed it up;
Right to basic reception condition in dignity and safety
Many complaints were related to the quantity and quality of food provided and the difficulties for Muslims and Hindus to keep dietary rules imposed by their religions.
Provide food that is in accordance with different cultural eating habits or allow asylum seekers to cook their own food;
Language training
Asylum seekers repeatedly expressed their wish for better language training. They criticised that current Slovak language courses are inadequate and that they are held irregularly.
Improve Slovak language courses;
Encourage asylum seekers to participate in language courses in their own interest;
Inform them that Slovakia is a country of asylum and bring to their attention the consequences of irregular movement within the EU (Dublin II and EURODAC regulations);
Right to work
Asylum seekers are entitled to work after one year. In many cases the claim that the MO did not provide them with the necessary document to prove that they can be legally employed.
Encourage NGOs to monitor the situation and to notify the Migration Office of each case so the document can be issued

2. Asylum seekers (adult women)
In comparison to their male counterparts, female asylum seekers were more concerned about their and their families' physical and psychological well-being than male asylum seekers.
Female asylum seekers are more concerned about the post -conflict situation they find themselves in. They feel they are in need of physical protection and alleviation of trauma.
Right violated / Problem reported Suggested Action
Right to physical security
Lack of safety and security in the rooms and corridors of some facilities, intrusions of male asylum seekers in the rooms;
Notify authorities to ensure a proper protection of vulnerable categories and organise monitoring system by NGOs;
Right to confidentiality and privacy
Some issues discussed with social counsellors were then disseminated among asylum seekers.
Offer staff in the centres training on how to deal with asylum seekers;
Introduce Code of Conduct;
Right to information
Women complained that they do not know how to access legal and social assistance nor are they aware of their rights to health and educational services.
They feel uncertain about their future perspectives with regard to asylum procedures and their stay in the centres.
Introduce information meetings where asylum seekers learn about their entitlements;
Motherhood and childhood are entitled to special care and assistance
Mothers feel that their babies are not provided sufficient amounts of food nor health services, especially those who have children with specific needs.

Improve social services for vulnerable categories;
Right to dignity
Women complained about the lack sanitary and hygienic items and adequate clothing and shoes.
Pay more attention to the specific needs of women

3. Asylum seekers (children, elderly)
Right violated / Problem reported Suggested Action
Children
Both boys and girls said that they often feel lonely and bored. They are forced to remain inactive which makes them tense and depressed.
Design series of recreational activities (sports, culture, education) to prevent apathy in younger people;
Elderly men
The right to work after one year in the procedure is not implemented correctly due because the Migration Office does not issue the necessary papers;
NGOs to notify the Migration Office of each case and stimulate a prompt response. NGOs could also stimulate local communities to involve asylum seekers in different jobs;

4. Recognised Refugees

Right violated / Problem reported Suggested Action
Adult refugee men and women (families)
A refugee couple reported about problems with family reunification. Their son and his family still living in country of origin and they have not been able to reunify so far.
NGOs should intervene with central and local authorities in order to facilitate legal process of family reunion (release of visa / entry permits) and discuss future plans for employment education of newly recognised refugees;
Need to access education opportunities and re-qualification courses;
Adult refugee women
Lack of real possibilities to integrate into the society;
Dependency on financial support from sources other than social system;
Inability to sustain a decent living condition with the funding provided by the state welfare system;
Poverty and undignified life which may trigger sexual and gender based violence;
Constant deterioration of the psycho-socio-economic condition ;
Great difficulties in finding employment;
Facilitate the creation of skill development activities for recognised refugees, involving the local offices of the Minister of Labour
Encourage NGOs to get involved in integration assistance;

Elderly refugee women
They have complained about expensive drugs and additional payments for medical care; NGOs should monitor vulnerable cases closely and assist them;

Country Report Slovenia
In the first three quarters of 2005, 1,320 persons applied for asylum in Slovenia. Compared to the same period in 2004, there is a sharp increase of applications (+55%). Applicants from Serbia and Montenegro constitute the biggest group, totaling 423 claims. They are followed by asylum seekers from Bosnia and Herzegovina (210), Turkey (181) and Bangladesh (152).
Eight members were selected for the Multi Functional Team in Slovenia: two government officials (Ministry of Interior, Directorate for Internal Affairs), two from non-governmental organisations (Slovene Philanthropy, Centre for Psychosocial Assistance to Refugees) and four UNHCR staff.
In order to have a representative sample of caseloads present in Slovenia, the Team decided to split up in pairs and interview three categories: asylum seekers, refugees end vulnerable ex-refugees from Bosnia who obtained permanent residency in Slovenia, but continue to live in government provided collective accommodation.
We stick out in this homogenous white society. Police keep checking us, people look at us in funny ways, Many Africans feel isolated and then we end up with this victim attitude, seeing harassment even when there isn't.
African refuges, Ljubljana
A total of 89 participants was interviewed in 22 focus groups in the cities of Ljubljana and Maribor. The selection of focus groups was proved difficult due to the small number of cases (400 asylum seekers, 150 refugees and 200 vulnerable ex-refugees). For that reason, in some cases different age groups and persons originating from different countries of the same region had be interviewed in clusters.
As for asylum seekers, the selection of focus groups was further complicated by the high fluctuation of that groups and the departure of selected candidates before the interview took place.
In Slovenia the Gender Age and Diversity Roll out had an immediate empowerment effect: In practically all focus group discussions in the Ljubljana Asylum Home participants complained about the hostile attitude and arbitraty services of the warehouse manager and the nurse. As a direct result of the discussions all residents signed a letter of protest which let to some improvements.
Life in an asylum Home makes you feel miserable anyway. Then when even small things happen like the removal of a coffee vending machine or the breakdown of a washing machine it can really make you desperate.
Female Roma asylum seeker, Ljubljana

1. Asylum seekers (general)
As far as good practices are concerned, the Multi Functional Team noticed that access to primary education was exemplary. In addition, the NGO projects through which assistance in learning is provided to asylum seeker children allows for a fast and successful integration of children in the local schools. It is recommended that government funding is provided for such projects.
It was evident that majority of interviewed asylum seekers decided to make use of available free legal aid and hence was able to benefit of legal assistance in refugee status determination.
The Team noticed that no specific topic was brought up by children and women. Women were usually raising family related issues, difficulties with health care and accommodation in the reception centre as indicated above. All children were enrolled in the local schools and did not raise difficulties with regard to local environment or other specific issues. The present caseload does not include elderly persons.
Right violated / Problem reported Suggested Action
Right to basic reception conditions in dignity and safety
Overcrowded reception facility negatively impacts the basic reception standards;
Difficulties with respect to family unity (more families accommodated in one room);
Security issues arising from inadequate separation of caseloads (female asylum seekers, families, separated children)
Tensions between asylum seekers of different ethnic backgrounds (Kosovo Albanians and Roma) give rise to security concerns;
Lack of support / specialized assistance for destitute and vulnerable asylum seekers;
Arbitrary delivery of of goods (such as hygienic package, cloths, etc.) or services (medical treatment) by staff in Asylum Home.

Secure additional reception capacities in line with regional standards;
Improve the physical separation between different departments in Asylum Home (AH);
Strengthen the existing internal security control;
Establish a confidential reporting system for security issues;
Further strengthen social services in AH to allow a more intensive follow-up of vulnerable;
Establish a separate reception facility for separated children;
Adjust financial support for destitute asylum seekers with due consideration of individual needs (children in school, single mother, etc.)
Establish a control mechanism over arbitrary delivery
Involve asylum seekers (representative of age and gender) in AH management so that assistance is designed in a more realistic manner;
Adopt a Code of Conduct for staff in AH;
Sensitise staff to gender and cultural diversity;
Introduce orientation programs for new arrivals.
Right to a standard of living adequate for the health and well being
Right to health care, including family planning
Inappropriate level of medical care, especially for children and other vulnerable categories;
Lack of information among asylum seekers on eligibility to health care opens the door for manipulation by staff;
Asylum seekers face discrimination in provision of medical treatment.

Raise the level of medical care available for asylum seekers, especially for children and vulnerable categories and inform asylum seekers accordingly;
Establish regular presence of a doctor in the reception facility;
Inform medical professionals on entitlements of asylum seekers, so they do not deny them access to quality medical treatment;
Sensitize train medical professionals on specific medical needs of asylum seekers including trauma relief;
Right to information
Asylum seekers repeatedly complained about the lack of information on daily matters in AH, but also on important issues like health care, education. The risk of manipulation (from other asylum seekers and AH staff) was mentioned as a result;
Asylum seekers showed particular interest information on job possibilities. Having an income was seen as an important prerequisite for self-sufficiency.
Provide asylum seekers with reliable and comprehensible information;
Introduce orientation programs for new arrivals and establish an information point in AH;
Strengthen capacity of social workers so they can provide more individual consultations;
More Slovene language courses should be funded for asylum seekers to break the language barrier.

2. Refugees
The main difficulty for recognised refugees is the lack possibilities to integrate fully into society. Therefore they remain dependent on state assistance, live on poverty line and in poor housing condition. Refugees have great difficulties to find regular employment. They lack information on their entitlements and are not supported by contacts with the local community.
Right violated / Problem reported Suggested Action
Right to a standard of living adequate for the health and well being
Right to equality in dignity and rights, without distinction of any kind
Newly recognised refugees are overwhelmed with language training and job search and therefore have difficulties to secure self-sufficiency and consequently housing.
Unlike Slovene citizens, recognised refugees are not entitled to social housing but to rental subsidies for a maximum of three years. This is very problematic for elderly and vulnerable persons who are not able to work even after that period.
Rental subsidies for refugees are too low for market prices; As subsidies are calculated per capita, single refugees have the greatest difficulties;
Inflexible delivery of rental subsidies does not meet the realities of the local housing market: Landlords request rental advances for three to six months, but refugees are not paid their subsidies up front.
Often landlords are not willing to take tenants with refugee status.

Introduce changes into legislation to include refugees in social housing schemes and related assistance in the same way as nationals;
Create integration houses where refugees could live for some time immediately after recognition;
Adapt the level of rental subsidies and payment regulations to market realities;
Establish authority information point, prepare targeted information for land-lords on refugees' situation and provide refugees with letters of support;
Assistance refugees with finding accommodation (e.g. through NGO projects, twinning between locals and refugee families etc.);
Adopt an integration strategy which includes measures to facilitate refugees' access to housing (mortgage for refugees, information point, etc)
Right to gainful employment and other employment related rights
Right to equality in dignity and rights, without distinction of any kind
Lack Slovene language skills in the beginning is a major obstacle in obtaining a job;
Refugees lack information and assistance with regard to finding jobs. They rated the services of the National Employment Office as unsatisfactory;
Refugees expressed a need for vocational training and guidance for job applications:
Employers rigidly request written proof of professional qualifications that refugees often cannot submit;
Many employers are not willing to take employees with refugee status. In addition, they are not aware that refugees are entitled to work under the same conditions as nationals. According to refugees having Slovene citizenship would make a significant difference on the job market;

Create government and NGO programmes to increase employability of refugees both with regard to presentation skills (CV, job interviews);
Inform refugees about the local labour market;
Create and fund vocational training programs for refugees to obtain required certificates;
Introduce specialised job counsellors for refugees and migrants in the National Employment Office;
Raise awareness among employment officers on refugee specific issues;
Include refugees into job creation programs (public works...);
Raise awareness among employers on refugees' right to work;
Encourage employers to support on-the-job language training;
Right to health care, including family planning
Right to equality in dignity and rights, without distinction of any kind
Refugees perceive not having a health card as a major obstacle for accessing health services;
Medical service providers are largely uninformed about refugee entitlements to medical car. This creates unnecessary delays because refugees have to ask special NGO integration to intervene. Such practices also raise concerns about the right to confidentiality;
Refugees are ill informed about their entitlements to various treatments and do not understand how the national medical services work (need to select a family doctor; different types of medical providers, etc.);
Refugees sometimes feel discriminated in the provision of treatment (receiving cheaper and less effective drugs, being denied certain types of services, particularly dental treatment).

Include refugees into the national health system or provide health card that would remove undue hardship in accessing medical care. The card contains al the information required by service providers (i.e. info on entitlements to cures, previous treatment, etc.);
Inform refugees in writing about their medical entitlements and related services such as family planning or counselling;
Provide training and written information brochures to medical service providers on rights and entitlements of refugees;

Right to non-discrimination as to race, religion or country of origin
Right to equality in dignity and rights, without distinction of any kind
Discrimination was identified as one of the key obstacles for accessing medical services, housing and employment;

Raise awareness and Combat racism xenophobia among the general public with the active participation of refugees;
Involve civil society in assisting individuals and in the fight against discrimination (monitoring and legal assistance in individual procedures);
Encourage individual citizens to help refugees on the housing and job market to make up for the refugees' lack of family and community support.

3. Elderly refugees and other vulnerable categories
Right violated / Problem reported Suggested Action
Right to social-welfare provisions as provided to nationals
Right to a standard of living adequate for the health and well being
Elderly refugees do not have family and community network in the asylum country. This is particularly problematic for vulnerable individuals who rely only on weak and unhelpful national social welfare structures.
Elderly refugees complained about unreasonable administrative difficulties when accessing even minimal social welfare. Every three months they have to file a new application in order to renew their financial assistance. There is no state support targeted to refugees who are to old or too vulnerable to work;
Older people without family support raised the issue of housing after once the three-year integration period expires (see also under point 1);
Elderly refugees have more difficulties to learn the language and feel often isolation and passivity. This is particularly the case with former Bosnian refugees living in collective accommodation.

Ensure appropriate systems are in place to deal with particular rights and needs of groups at risk;
Entitle destitute elderly refugees without family to permanent social welfare;
Create programmes for elderly refugees (also in collective centres) to overcome their social isolation;
Right to special protection and assistance for children deprived of their family environment
There is no specialised systemic state support for separated children (no child-friendly accommodation facilities and no parental type of guardianship is provided to children);

Establish a separate hous