Unaccompanied minors’ situation in Norway Veronika Paulsen and Stina Svendsen NTNU Samfunnsforskning AS

Unaccompanied minor asylum seekers

• • Unaccompanied minor asylum seekers are children and young people under 18 years of age who arrive in Norway to seek asylum unaccompanied by parents or other persons who have parental responsibility for them.

Most unaccompanied minors in Norway are: – Boys/young men – 15-18 years old – From Afghanistan, Somalia or Eritrea

Asylum seekers and unaccompanied minors seeking asylum in Norway 2007-2010

2008 2009 2010 2007

Total number of persons 6500 14 400 17 200 10 100 Of whom unaccompanied minors 400 Source: UDI 1 400 2 500 890

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Measures targeting unaccompanied minor asylum seekers

The decline in 2010 of arrivals from Afghanistan, Somalia and Eritrea were almost 50 per cent compared to 2009. Two changes may have affected the number of applicants to Norway: o Unaccompanied minors are no longer exempt from being returned to other countries that participate in the Dublin cooperation (with the exception of Greece). o Young people over the age of 16 can be granted a limited permit if the only grounds for protection are that the authorities believe that the applicant does not have satisfactory care in his/her home country. Such applicants must leave Norway when they reach the age of 18.

The Norwegian reception system

• • Unaccompanied minors aged 15-18: o The Directorate of Immigration (UDI) has care responsibility o Stay in separate reception centers or separate units adapted to their age and needs. o Strict requirements for the reception centers’ work with unaccompanied minors. Unaccompanied minors under 15 years of age o Stay in separate care centers run by the Child Welfare Service.

Settlement

• • • • • Unaccompanied minors who are granted residence in Norway are to be settled in a municipality.

The Norwegian Directorate of Integration and Diversity (IMDi) is responsible for settling unaccompanied minors over 15 years of age The Norwegian Directorate of Children, Youth and Family Affairs (Bufetat) settles those under 15 years of age.

The municipalities have an important role in promoting integration at the local level.

Settling refugees is a voluntary municipal task. When municipalities settle refugees, they receive grants and accept certain obligations in relation to the refugees in accordance with the Introduction Act.

Child perspective

• • • • Asylum applications from unaccompanied minors are assessed based on a child perspective. The threshold for what is deemed to constitute persecution is lower for children than for adults.

The UDI gives priority to applications from unaccompanied minor asylum seekers as it is in the best interest of the child that their cases are decided as soon as possible. Most unaccompanied minor applicants have their cases processed within six months.

Goals vs realities

• • • • • The official goal is for settlement in a municipality to take place within three months of the UDI deciding that the child can stay in Norway.

The reality is that most unaccompanied minors wait a lot longer. In average they wait longer than other refugees.

A study made by the Office of the Auditor General of Norway (Riksrevisjonen) in 2010 showed that only 27 per cent were settled within three months after receiving their permanent residence permit.

Many unaccompanied minors spend a long time at the reception centers.

Studies have shown that this prolonged waiting period might be stressful and harmful .

Challenges regarding the settlement process

• • • • UM as a heterogeneous group: different backgrounds, sex, age and ethnicity.

At the same time they represent a vulnerable group with a need for stability, routines and continuity regarding social networks, adult contacts, education and housing conditions.

Mapping individual needs and wants The right of co-determination as an important principle

Mapping and co-determination

• • • • • The reception centers are responsible for mapping each unaccompanied minor This mapping might be difficult, because needs and wants of a child or young person often changes after being settled Co-determination can be difficult when it comes to this group because they have limited knowledge regarding life in Norway outside the reception center, and therefore have little to base their decisions on. The young people we interviewed felt they had little say in the decisions concerning settlement.

Challenges related to mapping and co-determination calls for flexible municipal systems, but It is a challenge to maintain a stable and flexible settlement apparatus when the number of people needing settlement widely varies from one year to another.

Housing

• • • • • Most municipalities have a shortage of public housing.

Municipalities that have agreed to settle unaccompanied minors try to offer a wide range of housing alternatives, in order to meet different individual needs.

UM under the age of 15: foster homes or child welfare institution For minors aged 15-18 there is usually a wider range of alternatives, varying from shared housing with close supervision and around the clock care provided, to flats where the youth live independently.

Success story: House owners function as “supportive hosts” for UM. The youth can practice independent living, but at the same time get extra adult support.

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What do the minors see as the main challenges?

Many missed adult contacts and more sufficient follow-up Loneliness and struggles in everyday life Independency vs the need for help/support Reconstructing social networks and joining after school activities seen as important tasks after settlement Difficult meeting/getting to know Norwegian youth Tight budgets as a main concern

Return-promoting work in asylum centers for unaccompanied minors

• Tested in two reception centers for unaccompanied minors • In collaboration with Hero • Help Increase the Peace Program (HIPP)

HIPP

• • Startet in 1990 Based on the Alternative to Violence Project • • • • Basic elements: Communication skills Affirmation Self-esteem Empowerment

Five steps

1. Recruitment 2. Talk with the youths that shall participate 3. HIPP Workshops 4. Talk with the youths that had participated 5. Interviews with the participants Nine days of program during three weekends

What did we find?

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“It was exciting to be a participant at HIPP. We have learned a lot. We have to think a bit about the future. We have learned that we shall not use violence, that we shall respect each other, understand each other and try to talk to each other”

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“The people in the reception center are different and we don`t always understand each other, but we have learned to show mutual respect despite the differences in language and culture”

• • • • • Social skills Facing challenges Communication, both verbal and non-verbal Good dialogue Better contact and development of relations

But is HIPP return-promoting?

• • Direct effect? Indirect effect? • • • • • Other research (for example Valenta 2010) shows that return-promoting programs can have a positive indirect effect on returning home by counteract clientification of residents. Strengthened each individual and the relations in the group Contributes to well-being Strengthening the general competence to cope with the situation Trust and relations

Thank you for listening!

( Photo: Signe Christine Urdal © )