Transcript Folie 1

COUNTRY REPORT – ITALY
THE ROLE OF MIGRATION ORGANIZATIONS IN THE
ITALIAN MIGRATION SYSTEM
International Workshop  5th of July 2014
Nils Backhaus, Isabella Mann, Anne Reisenweber, Vajani Zarges
TABLE OF CONTENTS:
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1. Country facts - Italy
2. Italian migration policy
3. Research question
4.
5.
6.
7.
8.
State of the art
Data
Research results
Conclusion
Sources
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COUNTRY FACTS - ITALY
Area
301.340km² (1)
Population
60.021.955 (30. November 2013)(2)
Registered unemployment
12,9% (3)
Refugees
78.061 January 2014(4)
Asylum seekers
13.653 (4)
Asylum applications: Top 3
nationalities 2010-2012*
1. Pakistan (2.600)
2. Nigeria (1.615)
3. Afghanistan (1.495)
Ruling party
GRAND COALITION GOVERNMENT (PD - Partito Democratico –
democratic party - including PSI Partito Socialista Italiano – Italian
socialist party), NCD - Nuovo Centrodestra - New centre right, SC Scelta Civica – Civic choice, UdC - Unione di Centro – Union of the
centre, Ppl - Popolari per l'Italia – Populars for Italy)
*Source: Eurostat migration statistics http://ec.europa.eu/dgs/home-affairs/what-we-do/networks/european_migration_network/reports/docs/countryfactsheets/italy-emn-country-factsheet_en.pdf (checked on 2nd of July 2014)
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Italian migration policy
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Reception system
•
CARA (reception centres . mostly the first contact made by asylum seekers in Italy)
– Fingerprints, starting the procedure for grantin the right of asylum (six month)
•
SPAR (Sistema di protezione per richidenti asilo e rifugiati - system of accommodation)
– 19.510 places
– at a national level with local partners for accommodation and integration of refugees and
asylum seekers
– 2010 there could only 6855 persons make use of benefits of the SRAR - 12.955 without
receiving a position
•
CIE (Identification and Expulsion Centres)
function
1.
allowing to confirm the identity of the persons without documents
2.
view of a possible expulsion
3.
or to hold persons awaiting expulsion
conditions
immigrants are placed in containers and in other types of inadequate housing in an extended
stay, exposed to extreme temperatures, under conditions of overcrowding (Amnesty
International)(5)
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ITALIAN MIGRATION POLICY (2)
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3 kinds of protection in Italy:
1.
refugee-status
2.
subsidary protection
3.
Italian humanitarian protection (given to 'voulnerable persons')
Residenzia
– need to be listed in the public register with an address (can be controlled by
police)
– most of the refugees are homelessness, do not have an address - no
„residenzia“.
– don’t have a pass of healthcare and no access to healthcare
– Aid is given only in an emergency
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Research Question
WHICH ROLE DO COLLECTIVE ACTORS PLAY WITHIN THE
ITALIAN MIGRATION SYSTEM REGARDING TO TALK AND
ACTION?
HYPOTHESIS
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The Italian migration system depends on
the work of NGO‘s and outsources
governmental responsibilities.
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4. STATE OF THE ART
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•
Ratfisch, Pfilipp /Scheel, Stefan(2010):„Securitisation trough Refugee
Protection? The role of the UNHCR in the externalisation of the
European migration regime“,in Hess,Sabine/ Kasparek, Bernd (eds.)
„Border Regimes. Discourses,Practises, Institutions.“ Berlin
(Assiotation A), 89- 110
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PARLIAMENTARY ASSEMBLY (COUNCIL OF EUROPE):
„The arrival of mixed migratory flows to Italian coastal areas“
(Chope, C. (2013), published in August 2013)
► „Italy has, unfortunately shown itself, once again, ill prepared for what
appears to be a new surge of mixed migration flows, and appears to
have learnt few, if any, lessons from it's experiences in 2011.“
→ Italian Authorities should:
- develope a coherent mirgation policy
- establish a reliable asylum system
- meet international standards
(reception & detention conditions)
- ensure transparency of return
Provisions (bilateral agreements)
→ COE member states should:
- comply the obligation to rescue
persons in distress at sea
- establish clear rules to ensure
the right to apply for asylum for
those people rescued at sea
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PARLIAMENTARY ASSEMBLY OF THE COUNCIL OF
EUROPE:
„The “Left-to-die” boat: actions and
reactions“ (Strikt, T. (2014) in: „Reference to Committee, Doc. 13164“)
“The Assembly acknowledges that important efforts by member
states, Italy in particular, have been engaged towards saving
more lives at sea.
However, a number of concerns still remain including failures to
cooperate, define and admit responsibility and learn lessons. The leftto-die incident clearly highlighted the urgent need to guarantee
fundamental rights, while respecting legitimate security imperatives of
border controls.“
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5. DATA
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DATA
Field Study in March 2014:
- 2 expert interviews with scientific & monitoring organisations
- 7 expert interviews with A&R-related organizations
- 1 expert interview with A&R-related organization (anonymous)
All in all: 10 expert interviews
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6. RESEARCH RESULTS
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Characteris Organitics/ zation
Actor types
Norms/
values
Dominant
issue
Field of
legitimation
Internal/
balanced/ex
ternal logics
Sientific & UNHCR
monitorin (Rome)
g
organisati
ons
Human rights
Single issue
Global,
national,
European,
international
balanced
IOM
(Rome)
Human rights
Single issue
Global,
national,
European,
international
balanced
K-Pax
(Breno)
Political, human
rights
Single issue
Local
(Breno)
External
logics public
funding of
the
community,
(SPRARSystem)
A&Rrelated
NGO’s
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Chara Organization
cteristi
cs/
Actor
types
A&Rrelate
d
NGO’
s
Norms/
values
Dominant
issue
Field of
Internal/
legitimation balanced/e
xternal
logics
Laici
comboniani
(Palermo)
religious
catholic
community
(but also
open to
other
religious
groups)
Single issue
(but
especially
women
or
vulnerable
persons)
local in
Sicilia,
Palermo
private
funding of
the
community,
one pocket
for
everybody
Borderline
Sicilia
(Catania)
Political,
Single issue
human rights
local in
Sicilia
donors of
people,
volunteer
work
Naga-Har
(Milano)
Human
rights
local
(Milano)
Public
funding,
donors of
people,
volunteer
work
Single issue
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Charact Organizatio
eristics n
/
Actor
types
Norms/
values
Dominant issue Field of
Internal/
legitimation balanced/e
xternal
logics
Instituto
A&Rrelated Valdese
NGO’s (Palermo)
Religious
Unaccompanied
minors
Localregional
- donate
funds
- protestant
church
Centro
Astalli
(Rome)
Religious
(Jesuit)
Asylum seekers,
refugees and
owners of
international
protection
localregionalnationalinternational
- municipality of
Rome
- european
found for
refugees, other
private
foundations
-donors society
of jesuits
human donors,
catholic chuch
borderline –
europe
(Palermo)
Political,
human rights
Single issue
localregionalnationalinternational
donate
funds
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COMMON SENSE OF INTERVIEWED ORGANISATIONS
ABOUT THE ITALIAN ASYLUM SYSTEM
in theory: Italy has a „good“ asylum system (SPRAR) to receive refugees
and asylum seekers (status of humanitarian protection unique feature of
Italy)
“We have a lot of people who need help. People who are in SPRAR-projects
have access to better help, than people who are not. The problem is that there
are more people who need help than the SPRAR-System can manage. We need
more projects. We don’t have enough projects for people who need help…” (KPax)
in practice and social reality: problems/challenges of implementation
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STATEMENTS OF ORGANISATIONS CONCERNING THE ITALIAN
POLICY?
•
„Italy has never been a migration country before the last 15-20 years.“ (IOM)
„Migration also only became a political issue since then, related on top of the
political agenda, manipulated by many political parties and of course the
media, so the public opinion doesn't really welcome migration very well.“
(IOM)
 policy is unsteady and not systematic
• “migration is seen as a problem of security.“ (Bordeline Sicilia)
 influence on the agenda of the policy?
“The Italian asylum-system is schizophrenic. Then from 2011-2013 the” state of
emergency- Africa” was exclaimed. Laws could be bypassed. These state of
emergency policy detained an installation of a stable migration policy.”
(Borderline Sicilia)“
 no sign for a political will to establish a well working system
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STATEMENTS OF ORGANISATIONS CONCERNING THE ITALIAN
POLICY?(2)
“Politicians are baiting against the “invasion of migrants”. But at the
same time these migrants are used and exploited and the illegal
employment is supported. In the argricultural sector in Southern
Italy 70% of the employers are irregular workers from other
countries.” (Bordeline Sicilia)
 provides exploitation (black labour)
“The economic in Southern Italy is based on the system of
exploitation. They get lower wages. 10-15 € for 10-12 hours of work..
The migrants often work for a month and when it is payday the
employee threatens to call the police or does so for people who
have no papers.” (Laici Comboniani)
“Another big question is how the labour market profits from the
refugee and asylum seeker situation.” (NAGAR-HAR)
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STATEMENTS CONCERNING THE PROBLEMS OF
IMPLEMENTATION IN THE ITALIAN ASYLUM SYSTEM

The good things (eg. Accomodation) of the system are only accessable for a
minority of asylum sekers and refugees (Centro Astalli)
limit access to the positive effects of the asylum system
“We care for this people as long as the asylum application is in process because it’s hard
to get their documents here under this rasitic law” (Laici Comboniani)

“The procedure of the treatment of arrivers/ asylum seekers is very arbitrary. Even if we
criticise the law which exists, in most cases it isn’t even applied.” (Borderline Sicilia)
arbitrarily choosing of those who get acces to the system
“In Italy it‘s a matter of luck because we have very good things: high standards of
accommodation and very low to nothing. It depends where you arrive, when you arrive,
who you meet, it‘s very hard to say it‘s systematic. There is nothing systematic in the
Italian asylum system.“(Centro Astalli)

it´s crucial how to become a part of the system + no strategy in the system
Organization criticizing Dublin regulation (European level)
“There are a lot of organizations helping the refugees to get to their families in other
countries and even the refugee communities do a lot to prevent themselves from the
Dublin system.”(Nagar-HAR)
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REACTION TO CHALLANGES
OF THE ITALIAN
MIGRATION POLICY
• NGO perspective: Italian government is not providing
a strong and effective policy
• To deal with the complicated situation actors develope
different strategies to compensate policy lacks
 government outsources responsilities to collective
actors
 Distribution of responsibilities (cooperation with
NGO‘s)
 ‚Mare Nostrum‘ (public military project)
 subsidary system
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STRATEGY: OUTSOURCING OF RESPONSIBILTIES
Quality control:
„Problem are these informal centers, we all call them time transition
centers.(...) hotels, washed up country farms and anything else make a
wonderful business with this” (boderline-europe)23
Extremely overcrowded & bad and differing living conditions
- No quality control of the centers and the reception through the governmental
supervisory authorities
➔
Now IOM has got the task from the Interior Ministry to make the quality control
„...there's no monitoring of reception conditions.We do it for the ministry of
interior, but we do it only at border points. And a lot of our work there is to give
critics to the ministry, about the quality of the reception at the reception
centres “(IOM)
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STRATEGY: DISTRIBUTION OF
RESPONSIBILITIES
Projecto Presidium
•
joined project: IOM (International Organisation for Migration), UNHCR, Save The Children,
The Red Cross & the Italian MOI (Ministry of interior)
“There are persons arriving. We do not make any difference. First information is for them
where they are, what is going to happen to them, where they can sleep and eat something
and then some information about the procedures coming. Obviously they are amongst a
group of vulnerable persons, like (unaccompanied) minors, persons with handicaps, single
mothers. They get some special, more targeted information about what is different for
them and what they can expect” (I010 - Transcription UNHCR ROME)
•
„The 'Projecto Presidio' is a very important component, when a person or a group of persons
arrives with a boat, then UNHCR and the other organizations be there.




UNHCR: providing information (leaflets) on the situation in Italy (asylum system, etc.)
The Red Cross: helps and assists with humanitarian needs (clothes, hygienic products).
Save The Children: takes care of the (unaccompanied) minors. (family re-establishment)
IOM: legal counselling & assistance to identification of migrants & voulnerable groups
+monitoring of reception standards (for the MOI)
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MARE NOSTRUM
•
Started at the 18th of October, 2013
•
•
•
•
•
•
Participants:
the Italian Navy,
the Army,
Air Force,
Carabinieri,
Customs Service, a.o.
•
•
Aim: “to control migration flows“
(http://www.marina.difesa.it/EN/operations/Pagine/MareNostrum.aspx)
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...AND MARE NOSTRUM?
Why Mare Nostrum plays such a big role for the
UNHCR-ROME:
➔ „Saving lives is hence forced the most important
task we have at the moment.“
➔ „In our view that's a very good operation for
saving lives. It's a humanitarian operation.“
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'MARE NOSTRUM'
BEFORE MN:
SINCE MN:
- average prize for crossing: Lybia
→Lampedusa = US$1,5003000(10)
- average prize for crossing: Lybia
→Lampedusa = US$800-1,500
- „1,500 irregular migrants,
asylum seekers & refugees
drowned or went missing in
2011“ (9)
- „more than 20,000 people have
been rescued at sea“ (17)
- „Over 600 people died in the
tragic shipwrecks near
Lampedusa in 2013“ (17)
(10)
- 2014: „Italy rescues 6,000
people crossing Mediterranean
in four days.“ (17)
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FATAL INCIDENTS AT SEA:
IT'S NOT OVER!!
„Since last October [...] we don't have any
fatal accidents any more.“
(I005 – Transcription: UNHCR ROME, March 2014)
 „Again, two recent shipwrecks in May 2014
resulted in the deaths of dozens and still
hundreds are missing.“
(Strikt, Tineke (2014) in: Doc. 13164, Reference 3954 of 26 April 2013)
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STRATEGY: SUBSIDIARY SYSTEM
OF NGO‘S
„It's very important. We can‘t work without having networks, without having
other organizations working with us, sharing interest with us […] and whoever
is advocating in favour of refugees.” (UNHCR)
➔ High importance of informal networks
“The main problem is that the Italian government did not made it up to
establish a system where people where enough basic services are offered
and at the end these services are provided by private organisations”
(Borderline Sicilia)
“When I’m speaking about a network, I mean our big circle of friends: lawyers,
psychologists etc.You choose the right partner for the situation. Alone we would
never made it. We more work with individual persons from different
organisations. But we more focus on the persons because they do it privately. It
is a network of friends”. (Laici Comboniani)
→ “At the end this means in Siclia but also in Italy in general, private
organisations, private people have established a subsidiary system of help”
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(Borderline Sicilia)
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HYPOTHESIS: The Italian migration system depends on the work of NGO‘s and
outsources governmental responsibilities.
CONCLUSION
• statements of the organisation: several lacks in the asylum
system
• „written down migration policy“ doesn‘t cover the actual
demand of basic social services
 Thus creates a gap in practical implementation and causes a
subsidary system of help
• NGO‘s try to fill the gap and compensate the laxness of the
state
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RESEARCH QUESTION
WHICH ROLE DO COLLECTIVE ACTORS PLAY WITHIN THE ITALIAN
MIGRATION SYSTEM REGARDING TO TALK AND ACTION?
Governmental institutions depend on networks of collective
actors (NGO‘s) and have the possibility to outsource or
distribut their responsibilities.
In the Italian case: there are a lot of different actors with
different characteristics and strategies, at the run we see a
gap, which the NGOs try to fill
31
8.Sources
32
(1) CIA Factbook: https://www.cia.gov/library/publications/the-world-factbook/fields/2147.html (checked on 2nd of July
2014)
(2)ISTAT: http://demo.istat.it/bilmens2013gen/index_e.html (checked on 13th of June)
(3)Unemployment rate; EUROSTAT: http://appsso.eurostat.ec.europa.eu/nui/show.do?dataset=une_rt_a&lang=en
(4) Statistical Snapshot of UNHCR on Italy: http://www.unhcr.org/cgi-bin/texis/vtx/page?page=49e48e996
(5) http://www.meltingpot.org/articolo5596.html#.Urhmveld7IU
(6) Transcription: I001 – K-Pax
(7) Transcription: I002 - Naga
(8) Transcription: I003 – Centro Astalli
(9) Transcription: I004 - IOM
(10) Transcription: I005 – UNHCR
(13) http://www.assembly.coe.int/nw/Home-EN.asp
(14) Chope, C. (2013) in: Doc. 1257, Reference 3766 of 15 April 2011
(15) Strikt, Tineke (2014) in: Doc. 13164, Reference 3954 of 26 April 2013
(16) http://www.unhcr.org/532c4cbb6.html
Picture slide 27: http://noborder-frankfurt.antira.info/files/2014/03/fnf_animation5.gif (checked on 2nd of July 2014)
(17) http://www.unhcr.org/5347d8fa9.html
(18) Transcrition:I006
(19) Transcription:I007
(20) Transcription:I008
(21) Transcription: I009
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THANK YOU FOR YOUR ATTENTION!
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