Annexes to COM(2016)720 - Seventh report on relocation and resettlement - Main contents
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This page contains a limited version of this dossier in the EU Monitor.
| dossier | COM(2016)720 - Seventh report on relocation and resettlement. |
|---|---|
| document | COM(2016)720  |
| date | November 9, 2016 |
Actions to address challenges related to the relocation of vulnerable applicants and unaccompanied minors: No unaccompanied minor has been relocated yet from Italy. Implementing the procedure is a key priority as about 4,000 unaccompanied minors potentially eligible for relocation (most from Eritrea) have disembarked in Italy since the beginning of 2016. After calls from the European Commission, several Member States (Belgium, Finland, Germany, the Netherlands) have made available places for unaccompanied minors, including both travelling on their own and separated children. The Commission encourages Italy to take all necessary steps to render possible the relocation of unaccompanied minors when such an action is found to be in their best interest, and to take into consideration the possibility to set up as soon as possible one or more relocation Hubs for unaccompanied minors. Implementing the relocation procedure would also contribute to responding to the high absconding rate of unaccompanied minors potentially eligible for relocation. According to data published by Ministry of Labour, Eritreans are the second nationality of unaccompanied minors reported to have absconded from reception facilities. 29
Actions to limit secondary movements: As part of actions taken by the Italian authorities to limit secondary movements, the Italian police continue regularly transferring migrants who moved irregularly from the South to the North of the country, back to the reception facilities in the South of the country. EASO has intensified the activities of the roving team that performs registration for relocation in various areas where candidates for relocation are accommodated (based on needs indicated by the Italian authorities) outside of registration Hubs. The presence and movements of irregular migrants on Italian territory should be closely monitored, and irregular secondary movements prevented.
2.4Actions by the Commission and EU agencies
• European Commission
The Commission has continued supporting Italy and Greece on the ground on a day to day basis, helping with the coordination among various stakeholders and assisting the Greek and Italian authorities to identify bottlenecks, find solutions to challenges in close cooperation with all stakeholders and develop specific procedures. As part of this support, the Commission facilitated the conclusion of the arrangements between Italy and Europol described above for additional security checks, one of the main bottlenecks slowing down relocations from Italy and it is expected that more Member States will now actively engage with Italy.
The 7th Forum on Relocation and Resettlement gathered the National Contact Points for relocation of all Member States and Associated Countries and relevant stakeholders (EASO, UNHCR, IOM, Europol) to discuss the progress made in the implementation of the relocation scheme one year after the entry into force of the Council Decisions on relocation. It had a special emphasis on unaccompanied minors (UAM) and security issues. The meeting aimed at identifying remaining obstacles in the relocation procedure, finding common solutions and sharing best practices. The main conclusions of the meeting have already been highlighted throughout this Report. These conclusions will be closely followed-up in Greece and Italy at the regular Liaison Officers meetings organised by the Commission. The next of such meetings will take place in the second half of November.
As part of its monitoring of the implementation of the Council Decisions on relocation, the Commission raised and will continue to raise concerns with those Member States that are falling behind in implementing the Council Decisions. Commissioner Avramopoulos recently sent letters to Member States reminding them of their obligations under the Council Decisions on Relocation.
• European Asylum Support Office
Actions to speed up the relocation process and increase the registration capacity in Greece and Italy: Experts are deployed in a number of functions.
In Greece, 9 experts currently support the registration process directly through joint processing, with 9 other experts involved in information and advice functions. Based on the recommendations on how to enhance the matching process, aimed at matching applicants to specific Member States, EASO will test the matching tool in December 2016-January 2017.
Following the pre-registration exercise the Greek Asylum Service is reinforcing its registration capacity. EASO has diversified its support to the relocation procedure and included more experts on exclusion indicators, Dublin Regulation, family unit and document fraud as well as senior registration officers. These experts function as an escalation desk for difficult cases which will help decongest the regular registration process and safeguard the quality of the relocation files. Reinforced support throughout the various steps of the relocation procedure, from information provision, to registration and the matching process remains needed. EASO will further increase its number of registration experts in Thessaloniki and is currently procuring mobile units to provide working space for these experts. EASO also foresees the need of additional experts for information provision in the camps.
In Italy, EASO is currently deploying 47 out of the 74 requested experts from Member States and associated countries: 10 experts in the hotspots, 7 experts in two mobile teams (based in Rome and Catania), 10 experts in registration Hubs, 5 experts in the registration roving team, 1 expert providing support in press communication activities and 14 experts in the Dublin Unit in Rome. EASO is also deploying up to 48 cultural mediators (for Arabic, Tigrinya and Kurdish) to support the relocation process (as of 7 November, 36 cultural mediators are deployed on the ground). In the reporting period EASO has intensified the activities of the roving team that performs registration for relocation in various locations where candidates for relocation are accommodated (based on needs indicated by the Italian authorities) outside of registration Hubs. 30 The roving team also supports the local Questura by building the capacity of Police officers in performing registrations themselves.
EASO is also working to ensure appropriate and efficient working conditions in the hotspots for the EASO teams. 5 Mobile offices (containers) in some of the hotspots and Hubs were installed (1 in Trapani hotspot, 2 in Villa Sikania and Bari Hubs, respectively) and another 1 to be placed in the Augusta harbour where numerous disembarkations happen. Technical equipment (computers) was also made available to the Italian authorities to support relocation-related work (5 working stations were made available in each registration Hub and in the Questura in Rome, further 20 to be placed in the Dublin Unit once internal security clearance is obtained to link them to the existing system).
The European Council Conclusions of 20 October 2016 called on EASO to ensure that the Asylum Intervention Pool (AIP) becomes operational as soon as possible. EASO has therefore sought support of its Management Board to swiftly update its AIP through nomination of national experts with certain profiles by 27 October 2016. In addition and in order to facilitate greater response to calls for experts, EASO is developing a pilot induction training programme for case officers with limited experience and also proposed amendments to the relevant rules on experts' fees, to enable the agency to pay a fee to experts deployed through national services, which are not permanent staff of those services.
3Resettlement
Based on the information received from the participating States, by 7 November 2016 11,852 people have been resettled in the framework of the resettlement scheme of 20 July 2015 to 21 resettling States (Austria, Belgium, the Czech Republic, Denmark, Estonia, Finland, France, Germany, Iceland, Ireland, Italy, Latvia, Liechtenstein, Lithuania, the Netherlands, Norway, Portugal, Spain, Sweden, Switzerland and the United Kingdom). Sweden, the United Kingdom, and Finland as well as associated states Switzerland, Liechtenstein, and Iceland have already fulfilled their pledges.
A majority of States participating in the scheme indicated that their resettlement efforts were primarily, but not exclusively, directed at Syrians staying in Jordan, Lebanon and Turkey. This includes efforts from Member States to resettle Syrians from Turkey under the EU-Turkey Statement of 18 March.
The number of resettlements from Turkey continues to increase as Member States continue their assessment of files referred to them by Turkey via UNHCR. Member States are also preparing further missions to Turkey to interview resettlement candidates. The drop-out rate of candidates included on the referral list provided by the Turkish Directorate General Migration Management to the UNHCR in early September has been lower as compared to previous lists, which points to an overall improvement in the selection processes. The Turkish authorities are working on the next lists of referrals which are likely to be shorter, and delivered on a more regular basis to ensure a smooth planning of operations.
Since 4 April 2016, 2,217 Syrians have been resettled from Turkey under the resettlement part of the 1:1 scheme. In addition, 346 persons have been approved and are now waiting to be resettled. Altogether, 472 resettlements are expected to be carried out in November and the remaining number of all pledges is 11,228.
The pace of resettlement has been maintained with 603 Syrians resettled between 26 September and 7 November. In addition to Belgium, Estonia, Finland, France, Germany, Italy, Latvia, Lithuania, Luxembourg, the Netherlands, Portugal, Spain and Sweden resettlement has also taken place to Norway.
Council Decision (EU) 2016/1754 31 was adopted on 28 September to allow Member States to fulfil their obligations under Decision (EU) 2015/1601 by using the unallocated 54,000 places to either relocate applicants for international protection from Italy and Greece or admit to their territory Syrian nationals in clear need of international protection present in Turkey through resettlement or other forms of legal admission. As an immediate follow up, the Commission has already asked Member States to communicate by 7 November the number of Syrians present in Turkey to whom the Member States plan to grant legal admission under this Decision.
The Commission's proposal for a regulation establishing a Union Resettlement Framework 32 adopted on 13 July 2016 is currently being examined by the co-legislators.
4Way forward
The Heads of State or Government have repeatedly recognised the urgent need to address Europe's migratory situation and have called for further action to accelerate the implementation of the relocation scheme, as an essential expression of solidarity towards frontline Member States. In October, the European Council reiterated once more the need for Member States to further intensify efforts to accelerate relocation.
The Commission has been constantly working with the Italian and Greek authorities, Member States and UNHCR, IOM, EASO, Frontex and Europol to support and improve the relocation procedure on the ground. Greece has increased its processing capacity by 60% in the last reporting period and it will continue doing so in the coming month. Italy is increasing its processing capacity and has shown flexibility to the demands of the Member States of relocation regarding security issues. The arrangements with Europol are now in place. UNHCR, IOM, EASO, Frontex and Europol are all increasing their support to Italy and Greece to accelerate and make more efficient the relocation procedure. Some Member States have shown to be truly committed to relocation and significantly contributed to the positive trends observed in the last months in terms of pledges and relocations actually performed.
However, the results achieved do not yet measure up to the commitments and obligations foreseen in the Council Decisions and the scale of the challenges faced. Our efforts must not slow down. Thousands of applicants in Italy and Greece are waiting to be relocated. When the relocation schemes slow down, it means longer waiting times in reception centres for applicants and increased uncertainty about their future, affecting the capacity of Italy and Greece to cope effectively with the crisis. Italy continues to receive a high number of migrants while Greece still faces a challenging humanitarian situation. Relocation remains therefore crucial to alleviate the pressure in these countries. Higher transfers per month and more regularity are essential to allow for effective planning and the even flow needed to avoid logistical problems on the ground.
The calls made by the Heads of State or Government must be matched with determined action now by the competent national services. Member States of relocation should build further on what has been done so far by responding fully to these calls and further intensify their efforts urgently to support Greece and Italy, thereby delivering on their legal obligations and applying solidarity in practice.
To ensure the effective implementation of the two Council Decisions on relocation, the Commission calls on Member States:
For their part, Greece and Italy should continue increasing their processing capacity. Greece should also establish urgently the remaining relocation centres and Italy implement the arrangements agreed with Europol and the first relocations of unaccompanied minors.
In its First Report on Relocation and Resettlement 33 the Commission assessed that at least 6,000 relocations should be completed per month if the targets set in the Council Decisions were to be achieved. As the Council Decisions on relocation enter their second year of implementation, meeting legal obligations under the Council Decisions will require a substantial increase in the number and regularity of pledges and acceleration in relocation in the coming months.
The Commission will continue to closely monitor and report regularly on the implementation of the two Council Decisions on relocation and will present its Eighth Report in December 2016. The Commission reserves the right to take action against those Member States not complying with their obligations.
In parallel, Member States should continue delivering on their resettlement commitments, including as part of the implementation of the EU-Turkey Statement. 34
(1)
COM(2016) 636 final.
(2)
European Council Conclusions of 20 October 2016 http://www.consilium.europa.eu/en/press/press-releases/2016/10/21-european-council-conclusions/ .
(3)
The number of detections of illegal border-crossings between border crossing points (BCPs) reported by Greece from Turkey through sea and land borders from 26 September 2016 until 6 November as recorded in JORA (Joint Operations Reporting Applications).
(4)
Source: Greek authorities. The numbers in mainland Greece should progressively decrease in line with
relocation transfers.
(5)
Source: Italian Ministry of the Interior covering from 26 September until 6 November.
(6)
Conclusions of the Representatives of the Governments of the Member States meeting within the Council on resettling through multilateral and national scheme 20,000 persons in clear need of international protection (11130/15).
(7)
SN 38/16, 18.03.2016.
(8)
Article 2(l) of the Qualification Directive (Directive 2011/95/EU) defines "unaccompanied minor" as a minor (under 18 years old) who arrives on the territory of the Member States unaccompanied "by an adult responsible for him or her whether by law or by the practice of the Member State concerned" [emphasis added]. As a consequence of the differences in law and practice among Member States, the definition of unaccompanied minors varies from Member State to Member State which makes that separated children, including minors married to adults, be considered unaccompanied in some Member States while not in others. These also creates inconsistencies in the reporting of total number of unaccompanied minors relocated since some Member States only consider as such those on their own and exclude from the reporting separated children relocated.
(9)
Only nationalities potentially eligible for relocation mentioned.
(10)
http://asylo.gov.gr/en/wp-content/uploads/2016/08/Preregistration-data_template_5_EN_EXTERNAL.pdf .
(11)
The biggest group of unaccompanied minors in Greece are Afghanis, who are not eligible for relocation. However, the Greek government is in contact with several Member States to negotiate a possible voluntary transfer of these minors with a different status, other than as applicants for international protection.
(12)
In the previous report the total number of unaccompanied minors relocated was 75. The total in this reporting period should therefore be 118 unaccompanied minors relocated. However, the number included minors travelling on their own and only certain categories of "separated children". The numbers have been revised to reflect more accurately the total number of unaccompanied minors relocated including minors travelling on their own and all categories of "separated children".
(13)
These numbers should be understood as a minimum. The Commission is still expecting additional replies to its call for pledges for unaccompanied minors travelling on their own. Furthermore, some Member States' pledges are open offers and do not have attached a specific maximum number of unaccompanied minors travelling by themselves that can be relocated.
(14)
24 to Belgium, 23 to Bulgaria, 17 to Estonia, 110 to Finland, 203 to France, 1 to Germany, 40 to Ireland, 72 to Latvia, 61 to Lithuania, 81 to the Netherlands, 73 to Portugal, 153 to Romania, 35 to Spain and 28 to Switzerland. To be noted that 2 people reported in the previous report as relocated to Romania were Dublin transfers.
(15)
5 to Croatia, 20 to Luxembourg, 20 to Malta, 108 to the Netherlands, 20 to Norway, 78 to Portugal, 31 to Romania and 9 to Slovenia. 62 people relocated to Finland on 27 September were not counted in the previous report.
(16)
170 to France, 38 to Lithuania, 103 to The Netherlands, 20 to Norway, 15 to Portugal, 149 to Romania, 6 to Slovakia, 41 to Slovenia. In addition, additional transfers to Portugal, Luxembourg, Malta and Germany are expected also in November but final date or total people to be transferred not confirmed..
(17)
226 to Germany, 39 to Finland, 50 to France, 21 to Switzerland and 61 to Norway.
(18)
Cyprus 30 for Greece and 30 for Italy, Estonia 21 for Greece, Finland 150 for Greece and 150 for Italy, Germany 500 for Greece and 500 for Italy, Ireland 80 for Greece, Latvia 60 for Greece, Malta 28 for Greece, the Netherlands 100 for Greece and 100 for Italy, Spain 400 for Greece and 100 for Italy.
(19)
Switzerland 100 for Greece and Norway 60 for Greece and 225 for Italy.
(20)
A pledge from Romania from 9 September had not been included in the previous report.
(21)
In accordance with Council Decision 2016/408 of 10 March 2016, Austria benefits from a temporary suspension of the relocation of up to 30% of applicants allocated to Austria under Council Decision (EU) 2015/1601. As a consequence, the relocation to Austria of 1 065 applicants shall be suspended until 11 March 2017. However, the obligations under Decision 2015/1601 continue to apply to Austria in respect of the relocation of the remaining allocation, so pledges and relocations are still required.
(22)
In early April, Poland suspended the processing of 73 relocation requests that the Greek Asylum Service sent to Poland on the basis of a pledge that Poland submitted on 16 December 2015 thus de facto freezing the relocation procedure three and a half months after the submission of the pledge. The same applies to requests from Italy.
(23)
EASO's fifth call for experts to support relocation in Greece was launched on 21 April and was first reported in the 3rd Report on Relocation and Resettlement. The term of deployment of several experts ended during the reporting period.
(24)
This need is distinct from the separate requirement for Member States to support EASO work in the islands to implement the EU-Turkey Statement (which is part of EASO's 7th call).
(25)
Austria, Switzerland, Lithuania, Poland, the Czech Republic, the United Kingdom, Romania, Germany, Latvia, Spain, France, Croatia, the Netherlands, Norway, Sweden, Malta, Belgium, Slovakia and Bulgaria.
(26)
This figure includes the places provided under the UNHCR rental scheme capacity and the reception places at the hotspots. http://www.media.gov.gr/images/prosfygiko/REFUGEE_FLOWS-27-10-2016.pdf
http://data.unhcr.org/mediterranean/documents.php?page=1&view=grid&Country[]=83
These temporary emergency and permanent facilities are established on the Aegean islands in the hotspots as well as on the mainland. As of 8 November 2016, and based on the information available to the Commission, there are currently only 1,140 permanent accommodation places that exclusively host applicants for international protection and unaccompanied minors.
(27)
The Delegation Agreement reached with UNHCR for the 20,000 places rental scheme in January 2016 primarily benefits asylum seekers eligible for relocation. The Delegation Agreement was revised in July 2016 in order to make it clearer in the text that the accommodation scheme includes also the possibility to establish places in relocation sites managed by UNHCR, and that the target group of the accommodation scheme includes not only relocation candidates but also other asylum seekers. UNHCR agreed to make 6,000 places from the rental scheme available to relocation centres to accommodate all fully registered relocation applicants.
(28)
http://www.libertaciviliimmigrazione.dlci.interno.gov.it/sites/default/files/allegati/hotspots_sops_-_english_version.pdf .
(29)
http://www.lavoro.gov.it/notizie/Documents/Report%20MSNA%2030_09_2016.pdf (last page).
(30)
To-date, the team has covered the following locations Cagliari (Sardinia), Foggia, Bologna, Torino, Milan, Verona, Venice, Vicenza, Teramo, Chieti, Florence, Pisa, Grosseto and Modena.
(31)
OJ L 268, 1.10.2016, p. 82–84.
(32)
COM(2016) 468 final.
(33)
COM(2016) 165 final.
(34)
Third Report on the Progress made in the implementation of the EU-Turkey Statement, COM(2016) 634 final.