A new Asylum Policy for Europe?!
The Ludwig Boltzmann Institute of Human Rights drafts in the context of a research study recommendations for a future EU asylum policy which is based on human rights.
Final report
Conceptual phase
The first phase of the project included the development of the format, research questions and identification of the most recent developments of European asylum policies from a human rights perspective. Three internal workshops/meetings to exchange knowledge and views between different experts took place during this phase:
(1) 25 February 2016: Workshop with experts oft he Ludwig Boltzmann Institute of Human Rights
Participants: Katharina Häusler, Hannes Tretter, Julia Planitzer, Anna Müller-Funk, Stephanie Krisper, Giuliana Monina, Fiona Steinert, Katrin Wladasch, Dorothea Keudel-Kaiser. Two main aspects emerged from this discussion which were taken up in the study:
Ø The current politicial public discourse is mainly problem-based, only shows limits of the EU and its member states and rarely takes human rights obligations towards refugees into account. Human rights increasingly become the status of an ideal instead of being understood as a common standard on the EU- as well as the national level.
In reaction to this tendency, the study takes a „positive“ approach, starting from the „obligation to protect“. Thus, it changes perspective to the point of view of the protection seeker.
Ø The second conclusion was the fact the in current discussions only individual aspects of the so called „migration crisis“ are analysed, fragmentation which doesn’t allow for a holistic approach looking into causalities and drawing an overall picture which looks into obligations of the EU from root causes to migration routes, access to the EU to integration.
Within the limited time frame a comprehensive analysis of all these aspects was not feasible. However, the study shows the overall picture in its introduction and then focuses on three main topics which are at the core of current discussions and central for a human rights based approach: legal entry channels, an alternative to the Dublin system and the establishment of a common European system through joint processing of asylum applications and a Europe-wide decision body.
(2) 06. April 2016:Discussion with Christoph Pinter, Head of UNHCR Austria
On 6 April 2016 a discussion of these central points and the draft recommendations took place with the head of UNHCR Austrian, Christoph Pinter. The meeting reflected then current developments such as the EU-Turkey-Deal, UNHCR’s role in the so called “hotspots” considering the fact that they had developed into detention facilities and the impact of further restrictions of Austrian asylum laws. Alternatives where discussed, specifically focusing on legal access, „responsibility sharing mechanisms“ among the EU member states and a strenghtened role of EASO in supporting them.
(3) 12 April 2016: Feedback session with Manfred Nowak, director of the Ludwig Boltzmann Institute of Human Rights
Central topic of this discussion was the question of a common supranational European asylum authority and a Europe-wide asylum status allowing for free choice of residence for refugees, compensation between member stated being organised via an EU fund.
Based on literature research and the extensive discussions mentioned above the first draft of the study was presented to a focus group of invited experts.
Focus Group Discussion, 26 April 2016, 13:30-17:30
Exchange with external experts for the purpose of additional input and feedback took place in the format of a focus group discussion, bringing together experts from theory and practise, facilitated by the BIM researcher Katrin Wladasch. The format was chosen to allow for a focused, non-polarised and facts-based and results-oriented exchange (as opposed to a most likely more emotional public discussion). The results were taken up in the study and this way disseminated to the public. Participants were: Wolfgang Bogensberger (European Commission - Representation in Austria), Ulrike Brandl (Department of International Law, University of Salzburg), Torsten Moritz (Executive Secretary, Churches' Commission for Migrants in Europe CCME, Brüssel), Kris Pollet (Senior Legal and Policy Officer, European Council on Refugees and Exiles ECRE, Brüssel), Violeta Moreno-Lax (EU Asylum Law Coordinator, Refugee Law Initiative, University of London), Bernhard Schneider (Head of Migration and Legal Affairs, Austrian Red Cross, Vienna), Adriano Silvestri (Head of Section Asylum, Migration, Border, European Agency for Fundamental Rights, Vienna), Philipp Sonderegger (human rights consultant, Vienna), Bettina Scholdan (human rights consultant, Wien, co-author) and Shana Kaninda (Senior Policy Officer, UNHCR Office for Europe, Brussels). Further participating study authors: Giuliana Monina and Dorothea Keudel-Kaiser. Katharina Glawischnig of the Austrian NGO Asylkoordination unfortunately had to cancel last minute.
The discussion identified the following focus points with particular human rights relevance:
differences in the implementation of the EU asylum acquis and models how these could be harmonised, such as joint processing, a – controversially discussed – EU asylum authority and a uniform asylum status.
Participants emphasized the importance of involving civil society in all areas of asylum policy, amongst others by models of private sponsorship, already established in other countries (e.g. Canada, resettlement-programme). Strengthening of family reunification mechanisms was mentioned as being of specific importance in future developments.
As follow-up to the focus group discussion results were incorporated in the study draft, the final version was copy-edited and proof-read and prepared for printing. In parallel, a folder was drafted summarizing the main points of analysis and recommendations in German and English.
Acknowledgments
We would specifically like to thank the participants of the focus group discussion who joined us also from London and Brussels to share their expertise with us in times of especially tight schedules due to the dramatic developments in their area of expertise.
Structure of the study
The research phase (literature research, workshops) resulted in the following structure of the study:
I.
· Description of the EU’s obligations towards protection seekers with regard to international and EU law as a basis for the following parts dealing with the EU asylum acquis
II.
· Legal entry channels to the EU to prevent protection seekers risking their lives on dangerous routes of flight
o Resettlement programmes
o Right to family reunification
· Human rights based alternatives to the failed Dublin system
· Ways to reduce the divergence of national asylum systems
o “Joint” and “supported processing of asylum applications
o A joint European asylum authority providing for a Europe wide asylum status
III.
· Reception conditions inside the EU
Current developments such as the EU-Turkey deal, the situation in the so called „hotspots“ and the tendency to close borders in different EU member states are taken into account as integral part of the above chapters.
Challenges
One of the major challenges were the constant new political developments regarding the topic with at times weekly new proposals and guidelines issued by the European Commission and daily news on human rights violations. The study tries to take those developments on board and at the same time keep to the basic questions as not to be outdated immediately.
The original ambitious plan to complete the study within 4 months to quickly react to the ongoing discussion turned out not to be feasible. Due to the dynamic of the political debate and the complexity of the topic the research as well as the final revisions took more time and resources than expected. In addition, a change of staff at the institute led to additional efforts in the initial phase, so the study finally came off printing at the beginning of July instead of May.
Which sociopolitical purpose has the project fulfilled?
The study shows in a comprehensive way which human rights obligations towards protection seekers the EU as well as its member states have to comply to. It also analyses compatibility of the currently discussed approaches towards a solution in the different areas (legal access, European asylum system etc.) in relation to international and EU law. The recommendations developed as part of the study are intended to serve as reference for a substantive and profound political discussion – to be used by political representatives as well as civil society.
As such the study addresses several socio-political levels:
· Policy makers: Recommendations are meant as guiding principles for politicians and policy consultants on the national as well as European level to counter the increasing ignorance towards legal obligations resulting from human rights and refugee law and should support a return to human rights standards in policy making.
· Civil society: NGOs should be able to use the study as a reference for argumentation in the political debate.
The study is being distributed to the scientific community engaged with the research topics of asylum and migration.
· General public: Results of the study are made available to the public via the BIM’s different communication channels (BIM Info Newsletter, BIM CIRCLE Newsletter, Social Media, Website) as well as via the newsletter of Zentrums Polis – Politik Lernen in der Schule[1], reaching teachers and thus indirectly pupils.
· Ultimately, pointing out human rights violations and discussing human rights based approaches to solutions is intended to result in an improvement of the situation of those seeking protection.
Addressing multipliers supports the aim of raising awareness for human rights violations in the area of asylum policy and at activation to disagree with policies implying such violations.
In a broader sense, the study is understood as a contribution to the ongoing discussion of the project „Europe“ as a community of values. Raising awareness for a human rights perspective as basis of this project seems essential.
[1] Dissemination will take place in autumn 2016 at the beginning of the new school year
What were the reactions of others to this project?
Considering its topicality and relevance work on the study was perceived with high interest:
· As decribed above, we were very happy about the readiness of a group of high-level experts from think tanks, NGOs, academia and EU institutions to participate in our focus group in times of specific engagement of this group of experts.
· Continuous media and institutional requests for information regarding Austrian and European asylum policy show the urgent need for fundamental human rights based information on the topic.
Study results are presented at conferences such as the Alumni-Salon of the Heinrich-Böll-Foundation on „Strategies of a sustainable refugee policy“ on 29 October in Berlin.
· Last, but not least the support from donors (individuals as well as organisations) who are active in the legal and asylum-related field confirmed the timeliness and relevance of the study.
For what was the donated money spent?
Total | Budget | |
Staff costs | ||
Reseach, drafting | € 19.614,69 | € 19.100,00 |
Project coordination, coordination of expert team | € 3.028,83 | € 2.700,00 |
Dissemination | € 3.873,01 | € 3.700,00 |
Round Table – Preparation and organisation | € 3.779,84 | € 3.800,00 |
Staff costs total | € 30.296,37 | € 29.300,00 |
Other costs Round Table |
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Other costs Round Table | € 2.724,94 | € 2.700,00 |
Total Round Table | € 2.724,94 |
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Other costs study |
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Printing, Layout etc | € 2.796,20 | € 3.800,00 |
Total study | € 2.796,20 |
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Total | € 35.817,51 | € 35.800,00 |
Deviations of costs in relation to the budget were minor, since costs for publishing of the study were slightly lower than assumed the higher effort for human resources could be compensated.
A detailed list of expenditure can be found in the annex.
How will you prove the benevolence of the project?
Project news
What is the project about?
The Ludwig Boltzmann Institute of Human Rights drafts in the context of a research study recommendations for a future EU asylum policy which is based on human rights.
European countries are confronted with a new reality – rising numbers of persons in need of international protection. This increase reflects the development at global level. This high numbers of refugees will constitute the ‘new reality’ for a longer period of time and have wide-ranging societal impacts. Irrespective of the number of protection seekers, EU Member States are obliged to act in conformity with obligations deriving from international human rights and refugee law.
The existing ‘Common European Asylum System’ cannot deal adequately with the ‘new reality’. As a result, persons in need of international protection are suffering. Politicians but also experts demand a solution at EU level. For this reason this projects aims at analysing existing proposals for solutions from a legal (in particular human rights and refugee rights) as well as political science perspective and at developing new recommendations. The project deals with a topic which is one of the most important topics with regard to the future of Europe. Civil society can use the output of the project as a basis for own activities and will be involved in the context of the roundtable.
For personal resources, translation, printing of the study as well as organisation of a roundtable € 39.323,00 are required.
For more detailed information on the crowdfunding campaign see the website of the institute (bim.lbg.ac.at) or the facebook account of the institute <link www.facebook.com/LBI.Menschenrechte>https://www.facebook.com/LBI.Menschenrechte</link>
What happens with the money if financing was successful
A new Asylum Policy for Europe?! How human rights of refugees can be secured in the future
Background
European countries are confronted with a new reality – rising numbers of persons in need of international protection. The two most important countries of origin in the Member States of the European Union (EU) were in the second quarter of 2015 Syria and Afghanistan. This increase reflects the development at global level. According to the UN High Commissioner for Refugees UNHCR, in 2014 almost 60 million persons were displaced – the highest figure since the end of the Second World War. This high numbers of refugees will constitute the ‘new reality’ for a longer period of time and have wide-ranging societal impacts.
European countries, which are among the richest and most stable countries in the world, are compared to other regions still modestly affected. They are far away from experiencing the ‘refugee pressure’ from which poorer and less stable countries are affected. Despite this ‘modest affectedness’, European countries face much higher numbers of persons in need of international protection compared to the previous years. This leads to a certain bewilderment of the population but also politicians at national and EU level: After a peak in 1992 (672,000 applications in the EU-15) it was in 2014 that there was for the first time again a similar high number of asylum applications in EU Member States: 626,000 applications. In the second quarter of 2015, the number of persons seeking international protection for the first time in the EU has risen by 85 % compared to the same quarter of the previous year (213,200).
Irrespective of the number of protection seekers, EU Member States are obliged to stick to obligations deriving from international human rights and refugee law. They stem in particular from the Geneva Refugee Convention (GRC) but also from general human rights treaties such as the European Convention of Human Rights (ECHR), the UN International Covenant on Civil and Political Rights (ICCPR), UN International Covenant on Economic, Social and Cultural Rights (ICESCR), or the UN Convention on the Rights of the Child, which were all ratified by all EU Member States. Apart from that, there are obligations in EU law itself. However, to a certain extent lack of knowledge or lack of understanding with regard to these essential legal obligations becomes visible among politicians. These obligations must serve as guidance for policy making. Of particular importance are the principle of non-refoulement (this is the prohibition to reject a person at the frontier, to return or expel a person if he or she would be otherwise exposed to a real risk with regard to their life or liberty) as well as the right to asylum. Both form also part of the EU Fundamental Rights Charter. The right to asylum starts with the obligation to admit refugees to the territory of a secure country and ends with the long-term stabilisation of the living situation of the refugee (so-called ‘durable solutions’).
Objectives of the Project
The existing ’Common European Asylum System’ does not work and cannot cope with the ‘new reality’. As a result, protection seekers are suffering. Politicians as well as experts demand a solution at EU level. Therefore this project aims at analysing existing proposals for solution and developing new recommendations for guidance.
Following three elements will be investigated in the context of the project; the fourth element (reception conditions) is of great importance but cannot be assessed in detail in the context of this project:
1. Access to Protection in the EU
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3. Intra-EU-Solidarity and possible Distribution
| Reception Conditions (Outlook)
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Additional information on these three elements to be investigated can be found in the uploaded document (extended version of project description).
The project assesses with regard to the three elements existing rules, measures and proposals from an international law and EU law perspective (in particular from a human rights and refugee rights perspective), but also a political science perspective. In particular following questions in all three areas are to be answered:
- What is the status quo at EU level and what is planned?
- Which expert proposals exist already?
- To what extent are status quo and proposals in conformity with international and EU legal standards? Which advantages and disadvantages exist?
- Which political recommendations for actions can be deduced from the legal analysis?
- Which new proposals can we make?
Objectives, Target Groups, Milestones, Output and Implementation of the Project
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Time Schedule
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1 | Desk Research and Analysis |
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1.1 | Literature Research |
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1.2 | Analysis |
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2 | Integration of Roundtable input; Drafting of Recommendations |
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2.1 | Bringing together of roundtable input and analysis (final report) |
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2.2 | Development of Recommendations |
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2.3 | Writing of a Policy Brief |
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3 | Publication, Dissemination |
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3.1 | Publication of the study in German and English |
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3.2 | Publication of Policy Brief in German and English |
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3.3 | Roundtable |
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Information on the Project Initiators
The Ludwig Boltzmann Institute of Human Rights (BIM) was established in 1992 as independent research centre with the aim of contributing to the scientific human rights discourse at the national, European and global level. Human rights constitute the only universally recognized value system of our contemporary world and an essential element of democracy. We wish to contribute to the strengthening of human rights and to improve the living conditions of persons who are persecuted, discriminated against or otherwise marginalised. We see ourselves as part of the scientific community, taking the role of an interlocutor between the state, business, media and civil society. Our research is based on a holistic approach covering civil, political, economic, social, cultural and collective human rights. As human rights are relevant for all areas of life, the research approach in this field needs to be multidimensional and interdisciplinary. Our research methods are dedicated to the principles of empowerment, equality of all human beings and the participation of all parties concerned. Our work relates theory with practice. The results of our research establish the basis for our work in the fields of counselling, implementation, monitoring, education and university teaching. We are working on a broad range of human rights topics arising from current social questions and wish to take an active role in further developing the contemporary international human rights discourse. In the work of the institute, the thematic areas of human rights relevant questions range from questions relating to women’s and children’s rights, human trafficking, development policies, antidiscrimination to the fight against torture to asylum and migration.
Project Team
The core team exists of Margit Ammer, Moritz Birk, Monika Mayrhofer, Fiona Steinert and Katrin Wladasch – please see the short biographies in the uploaded extended version of the project description. Apart from that, at the institute other expertise is available, which can be involved in the project, e.g. expertise with focus on torture prevention and non-refoulement (Manfred Nowak), children’s rights and rights of unaccompanied minor refugees (Helmut Sax), torture prevention and detention conditions (Stephanie Krisper) or human rights education (Patricia Hladschik).
Publicity & CF-Campaign
The Ludwig Boltzmann Institute of Human Rights (BIM) has a mailing list with approx. 2,500 addresses following the activities of the institute regularly. The facebook-account of the institute has 1,700 Likes, the traffic of the website of the BIM comprises 4,500 visits in September 2015. Via these different channels the project will be announced, promoted and it will be called for financial support.
The BIM has a reputation as an academic institution which develops profound analyses on human rights related questions and which makes these analyses available to the public (civil society as well as public institutions) serving political implementation. This function of the BIM, in particular in the area of asylum, became evident e.g. in the context of the refugee protests in 2013 where the institute published statements on the demands of the refugees. The positive feedback and the appreciation of the work of the BIM serve as a basis for the donation campaign to support the recent project ‘A new asylum policy for Europe?! How to ensure human rights of refugees in the future'.
The BIM currently develops a forum for supporters, the 'BIM Circle. Wirkungskreis Menschenrechte'. The second edition of the new BIM Circle Newsletter will be dedicated to the topic asylum and the statements of the BIM in this context. Friends and supporters of the institute can contribute specifically to the work of the institute on this topic. Supporters who have already donated for the project will be asked to win further donors.
- <link http: bim.lbg.ac.at>bim.lbg.ac.at
- <link http: www.humanrights.at bim-circle>www.humanrights.at/bim-circle/
- <link https: www.facebook.com lbi.menschenrechte>www.facebook.com/LBI.Menschenrechte
Sustainability
The output of this project, the final report, forms the basis for further discussions in Austria. Apart from that, the question on reception conditions – which cannot be answered in the context of this project – could be object of research in a follow-up project.
Results of the project can be used in discussion processes and fora as well as events.
Projektstandort: Freyung 6 (Schottenhof), 1. Hof, Stiege II, 1010 Vienna, Austria
Studie: A new asylum policy for Europe?! Opting for a rights' based approach
Die Studie "A new asylum policy for Europe?! Opting for a rights' based approach and what this would mean" ist fertig. Die Studie gibt einen Überblick über die internationale Verpflichtung Fliehenden Schutz zu bieten, analysiert das EU Asylrechtssystem und seine Schwächen aus einer Menschenrechtsperspektive, präsentiert aktuelle Veränderungsvorschläge und versucht Empfehlungen für konkrete Schritte hin zu einer neuen Asylpolitik in und für Europa zu machen. Die Studie war von dem Ziel geleitet Vorschläge zu entwickeln, wie Politiken aussehen könnten und sollten, wenn sie von einem rechtebasierten Zugang geleitet sind - im Gegensatz zu einer Konzentration auf den Kampf gegen irreguläre Migration and Asylmissbrauch.
- 14:51
Kurzbericht Focus Group Discussion, 26. April 2016, Wien
Unter der Moderation von Katrin Wladasch, Leiterin des BIM-Teams Antidiskriminierung, Diversität und Asyl, diskutierten die eingeladenen ExpertInnen lebhaft über mögliche neue, menschenrechtskonforme Ansätze in der Europäischen Asylpolitik (im Anhang finden Sie/findet Ihr ein paar Bild-Eindrücke). Die Diskussion lieferte uns reichliche Anregungen für unsere Studie und half uns dabei, Kernpunkte zu identifizieren, die aufgrund der menschenrechtlichen Dringlichkeit besonders hervorgehoben werden sollten.
Als eines der Hauptprobleme wurden die großen Differenzen in der Umsetzung des europäischen Asyl-Acquis genannt und Möglichkeiten durchgespielt, wie gleiche Standards in den EU Staaten durchgesetzt werden könnten. Diskutiert wurden insbesondere verschiedene Möglichkeiten der gemeinsamen Bearbeitung von Asylanträgen (joint processing) innerhalb der EU, bis hin zur Schaffung einer Gemeinsamen Europäischen Asylbehörde, die einen europaweiten, uniformen Asylstatus verleihen kann. Über letztere diskutierten die TN sehr kontrovers und machten auf viele Fallstricke aufmerksam, zum Beispiel auf das Fehlen einer externen Kontrollinstanz.
Die Diskutanten wiesen immer wieder auf die Dringlichkeit hin, die Zivilgesellschaft in alle Bereiche der Asylpolitik mit einzubeziehen, etwa in Form von private sponsorship, wie es in anderen Ländern bereits üblich ist (Beispiel Kanada, resettlement-Programm). Hervorgehoben wurde zudem die besondere Rolle der Familienzusammenführung, deren Bedeutung in Zukunft noch zunehmen wird. Im Gegensatz zum momentanen Trend in den EU-Mitgliedstaaten, so auch in Österreich, die Möglichkeiten der Familienzusammenführung einzuschränken, sollten diese dringend ausgebaut werden.
Weitere Details können Sie/könnt Ihr bald unserer Studie entnehmen!
- 16:38
Focus Group Discussion „A new Asylum Policy for Europe?!“
Am 26. April 2016 findet in Wien im Rahmen unseres Studienprojekts „A new Asylum Policy for Europe?!“ eine Focus Group Discussion statt: Asyl- und MigrationsexpertInnen von EU-Institutionen (Europäische Kommission, Repräsentation Österreich), EU-Agenturen (FRA), Internationalen Organisationen (UNHCR), NGOs und Think Tanks (u.a. ECRE, CCME) sowie Wissenschaft (u.a. Refugee Law Inititaive, University of London) diskutieren über eine Neuausrichtung der Europäischen Asylpolitik. Ziel ist es, angesichts der momentanen Verfassung des Europäischen Asylsystems, bei dem die Rechte von schutzbedürftigen Menschen in vielfältiger Weise bedroht sind, Vorschläge für neue, menschenrechtsbasierte Ansätze und Reformen zu entwickeln.
- 16:51
Zwischenbericht
Liebe Spenderinnen und Spender, liebe Interessierte,
die Arbeiten an der Studie zu einer „neuen europäischen Asylpolitik“ sind in vollem Gange. Als Reaktion auf die momentan dominierende problem-orientierte, nationalstaatliche geprägte Sicht auf die Europäische Asylpolitik gehen wir den gegenteiligen Weg: Wir starten von einer „positiven“ Beschreibung der menschenrechtlichen Verpflichtungen der EU gegenüber Schutzsuchenden und nehmen die Perspektive der Schutzsuchenden ein. Den Schwerpunkt legen wir auf den Zugang der Schutzsuchenden zur EU und auf die Frage, wo Schutzsuchende in Europa aufgenommen werden (Diskussion des Dublin-Systems). Dabei gehen wir auf aktuelle Entwicklungen, wie insbesondere auf das menschenrechtlich bedenkliche EU-Türkei-Abkommen, ein.
Am 26. April 2016 veranstalten wir eine Focus Group Discussion, bei der wir die zentralen Punkte unserer Studie mit Asyl- und MigrationsexpertInnen von EU-Institutionen, EU-Agenturen, Zivilgesellschaft, NGOs sowie Think Tanks und Wissenschaft diskutieren.
Genaueres können Sie/könnt Ihr dem Zwischenbericht zu unserem Projekt entnehmen (siehe Anhang).
Mit besten Grüßen,
das Asylstudien-Team
- 09:54
Verlängerung der Studienlaufzeit / Auftakt mit internem Workshop
Liebe Spenderinnen und Spender, liebe Interessierte,
zu Ihrer Information: Der Start unseres Studienprojektes „Eine neue Asylpolitik für Europa!?“ hat sich etwas verschoben, die Projektlaufzeit wurde daher bis Ende Mai 2016 verlängert.
Jetzt aber ist das Projekt im vollen Gange – gelungener Auftakt war am letzten Donnerstag (25.2.2016) ein interner Workshop zu unserem Studienprojekt mit ExpertInnen des Ludwig-Boltzmann-Instituts für Menschenrechte. Der Workshop brachte einen fruchtbaren Austausch über die aktuell dringlichsten Problemstellungen in der europäischen Asyl- und Flüchtlingspolitik aus menschenrechtlicher Perspektive, wie etwa die starke Fokussierung auf Sicherheitsaspekte, die den Aspekt des Flüchtlingsschutzes oftmals in den Hintergrund geraten lässt. Es folgte eine spannende Diskussion alternativer Ansätze in der Asylpolitik, mit besonderem Fokus auf der Schaffung legaler Zugangswege nach Europa.
Insgegsamt machte die Diskussion die Dringlichkeit deutlich, klar herauszustellen, welche rechtlichen Schutz-Verpflichtungen die EU gegenüber Flüchtlingen hat.
Wir werden Sie über den weiteren Verlauf des Studienprojekts auf dem Laufenden halten.
Herzliche Grüße,
im Namen des Teams
Dorothea Keudel-Kaiser (Projektkoordinatorin)
- 13:02