information network for return to northern iraq, serbia and kosovo

8/8/2019 Information Network for Return to Northern Iraq, Serbia and Kosovo

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Information Network forReturn to Northern Iraq,Serbia and Kosovo

Results and experiences from a two-year project


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Contents

1. Introduction 3

2. Background 4

3. Information Network for Return to 5Northern Iraq, Serbia and Kosovo

3.1 Factual background 53.2 Project organisation 53.3 Project objectives 6

4. Results and experiences 7

4.1 What is needed? 7

4.2 Statistics 8

4.3 Examples of return cases 9

4.3.1 Northern Iraq 94.3.2 Serbia 10

4.3.3 Kosovo 11

4.4 Follow-up 13

4.5 Activities in Sweden 14

4.6 Activities in countries of origin 16

5. International outlook 18

6. Final discussion 20


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1. Introduction

During a two-year period, the Swedish Red Cross implemented the project

Information Network for Return to Northern Iraq, Serbia and Kosovo. In addition to

the full project performance report submitted to the International Law and Refugee

Department of the Swedish Red Cross and to the Swedish Ministry of Justice, wehave chosen to compile a more accessible report, which deals with the results and

experiences of the project, but also includes a more general discussion on action to

assist returning migrants.

This English edition of the report has been translated and adapted by Rickard Olseke.

Stockholm, June 2010

Ewa Jonsson Hugo W Rickberg Lejla Hadzihasanovi

Project Manager Return Counsellor Return Counsellor

Swedish Red Cross Northern Iraq Kosovo and Serbia


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2. Background

The Swedish Red Cross has since the early 1980s carried out activities to protect and

assist asylum seekers, including advice and support in individual asylum cases.

Asylum seekers approach the Red Cross during different stages of the asylum process,

and after receiving a final rejection. Working with individual asylum cases includesinforming about the asylum process, providing country of origin information and

explaining decisions of the authorities. A specific objective of these Red Cross

activities is to ensure that rejected asylum seekers have the opportunity to return in

safe and dignified conditions and are able to live in dignity in the country oforigin.

In the mid-1990s, when it became possible to return to the Balkans, the Swedish Red

Cross initiated activities to support the voluntary repatriation of refugees. This

intervention eventually also drew increased attention to the needs of rejected asylum

seekers who are obliged to return to their countries of origin.

During the period of August 2003 to August 2005, the Swedish Red Crossimplemented two pilot projects with the aim of developing methods for supporting

rejected asylum seekers. Through the projectInformation Network for Asylum Seekers

from Bosnia and Herzegovina, close cooperation was established with the Red Cross

Society of Bosnia and Herzegovina, aiming specifically at the quick and efficient

collection of correct information on the situation in places of origin, in order to

prepare asylum seekers before their return. The project Information Network for

Asylum Seekers from Bosnia and Herzegovina and Serbia and Montenegro developed

further activities related to Bosnia and Herzegovina and initiated cooperation with the

Red Cross of Serbia and Montenegro. Both projects were co-financed by the

European Refugee Fund.

Through these pilot projects, the Swedish Red Cross identified ways of providingadequate support to rejected asylum seekers who are obliged to return. Based on the

model developed, the Swedish Red Cross subsequently sought to develop its support

to rejected asylum seekers from northern Iraq, Serbia and Kosovo.


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3. Information Network for Return to

Northern Iraq, Serbia and Kosovo

3.1 Factual background

A large number of persons who are obliged to return, a number which willmost likely increase further;

Many originating from northern Iraq, Serbia and Kosovo;

An increasing number of rejected asylum seekers who choose to remain inSweden in hiding, without regular status;

A probable risk of a difficult humanitarian situation after return;

Limited resources available for support in Sweden and in countries of origin.

While the projects main target group is rejected asylum seekers, it does not exclude

other vulnerable migrants who are obliged to return and in need of support during the

return and reintegration process.

3.2 Project organisation

Project manager

Swedish Red Cross

Ewa Jonsson

Iraqi Red Crescent Society

Red Cross of Serbia

International Red Cross and

Red Crescent Federation

(IFRC) in Kosovo

Return Counsellors at

Swedish Red Cross:

Lejla Hadzihasanovic

Hugo W. Rickberg

Employees and volunteers

at Swedish Red Cross,

who provide advice and

support to asylum seekers.

Asylum seekers from

Northern Iraq, Serbia

and KosovoDatabase

Return Network


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3.3 Project objectives

Overall objective

Asylum seekers who are deported against their will should have the

opportunity to return in safe and dignified conditions.

Project objectives

To facilitate return and improve conditions for social reintegration of rejectedasylum seekers from northern Iraq, Serbia and Kosovo;

To present a proposal for possible future support to rejected asylum seekersfrom central and southern Iraq.


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4. Results and experiences

4.1 What is needed?

The illustration below is an attempt to show the needs of the individual who is going

to return. These needs were partly identified already when the project started, but thepicture has become clearer and more distinct during the project.

I will return! What

do I need?Follow-up

What happens after

arrival in the country

of origin? Support in the

country of origin

Housing, livelihood,

health care,

psychosocial support,etc.

Increases the

credibility of

advocacy work to

ensure a fair and

proper asylum

procedure and a

dignified and

humane return

process.

A stable basisA fair and proper examination of asylum applications in

Sweden. Rejected asylum seekers receive information about

the return process, adequate and updated country of origin

information, and support in their own decision-making process

(whether to return or to choose another alternative).


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4.2 Statistics

The map below shows the number ofregistered return cases per region. In addition to

these cases, the project received 516 other general and specific return-related requests.

The Swedish Red Cross also provided support in 32 cases involving return to

countries not covered by the project (this number concerns the second year only).

Number of registered cases Number of persons

Northern Iraq 77 153

Serbia 42 165

Kosovo 84 331

Other countries 32 N/A

Total 235 644

The Red Cross in Sweden

N. Iraq: 5

Serbia: 7

Kosovo: 12

Other: 4

N. Iraq: 4

Serbia: 9

Kosovo: 21

Other: 2

N. Iraq: 8

Serbia: 4Kosovo: 9

Other: 6

N. Iraq: 7Serbia: 10

Kosovo: 23

Other: 4

N. Iraq: 9

Serbia: 7

Kosovo: 9

Other: 1

N. Iraq: 39

Serbia: 3

Kosovo: 2

Other: 15

N. Iraq: 0

Serbia: 2

Kosovo: 6

Other: 0

N. Iraq: 5

Serbia: 0

Kosovo: 1

Other: 0

N. Iraq: 0

Serbia: 0

Kosovo: 1

Other: 0


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4.3 Examples of return cases

4.3.1 Northern Iraq

This case concerns a family of a man and a woman in their 30s with four children

aged 3, 4, 11 and 12. The family is of Kurdish ethnicity and residents of the Erbil

Province. When they left Iraq both parents had work. The man worked as acarpenter/craftsman/car repairer and his wife as a public-employed teacher. Their

main reasons for leaving the country were honour-related, as their marriage, although

formally approved, was not viewed favourably by all relatives.

During their flight, which the family paid for by selling their house, they travelled

through Turkey and Europe, and eventually ended up in Ronneby, Sweden. They

stayed at a Migration Board reception facility during the asylum process, which lasted

two years. During this time, the youngest daughter was born, and the two older

children started pre-school and made a lot of friends.

In spring 2009, the family received a final rejection from the Migration Court of

Appeal. They were informed about the project by a reception officer at the Swedish

Migration Board and decided to contact the Red Cross. At a meeting with one of the

projects return counsellors, they received information about the support provided by

the Swedish Red Cross and the Iraqi Red Crescent (IRCS).

The family, moreover, asked the Swedish Red Cross for advice in their asylum case.

However, no new circumstances that would substantiate a new application could be

identified. After a discussion about the pros and cons of staying in Sweden without

regular status, going to another country in Europe, or changing tracks to labour

immigration, the family decided to return to Iraq. They authorized the Red Cross to

contact the Migration Board in order to find out whether a time period for the

planning of reintegration activities would be granted. The parents CVs andemployment preferences were documented and sent to the Iraqi Red Crescent in Erbil,

together with a request to explore the possibility of finding cheap accommodation

close to Erbil.

The Iraqi Red Crescent replied that it had initiated the process of contacting the

Kurdistan Regional Government and the Ministry of Education to investigate whether

it would be possible for the woman to regain her previous job. The response had been

positive. The IRCS also provided information about affordable housing in Shaladin,

about 30 minutes from Erbil.

Meanwhile, the Swedish Red Cross contacted the Migration Board to plan the journey

from Ronneby via Copenhagen to Erbil, and to ensure that the family received adecision entitling them to a re-establishment support grant of 75 000 SEK.

In August 2009, the family returned to Erbil and was assisted by the IRCS in

contacting the International Organization of Migration (IOM) in order to obtain the

grant. The woman also received continued support in contacting the Ministry of

Education to try to get her job back. Yet, at the time of the follow-up in November

2009, she had still not regained it. The family was in a generally difficult situation as

neither of the parents had been able to find permanent employment. Thanks to the re-


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establishment support, however, they were able to rent an apartment in Chamchamal

(75 USD/month) and had also managed to arrange schooling for the two oldest

children. They felt welcome in the local community and also secure, since none of

their relatives knew that they had returned.

During the follow-up in April 2010, the familys situation had improved somewhat,

although they now shared a house with another family (sharing a kitchen with otherswas considered to be a problem). The man had a slightly more stable income, but was

still not working full time; his wife, however, had not got her job back. The four

daughters were doing well, largely thanks to the schooling they had received in

Sweden, and had reverted to only speaking Sorani. The woman received support from

the Iraqi Red Crescent in finding another job, and even if the visits by the IRCS had

become fewer down from twice to once a month she and the family felt safe to

have someone who cared and who followed up on developments. They hoped that

both parents would soon have a fixed income, but realized that it might take time. The

family had no plans to migrate to a third country.

4.3.2 Serbia

This case concerns a single Roma woman with two children who had been in Sweden,

where her parents live, for two years. She fled from her husband in Serbia who had

abused her for a long time. During her stay in Sweden, she had regular contact with

and received treatment at the Red Cross rehabilitation centre for victims of war and

torture.

Eventually, the woman and her children received a final rejection of their application

for asylum. After having, with the help of the Red Cross, unsuccessfully claimed that

there were impediments to the enforcement of the removal order, she decided to

accept the rejection. The Swedish Red Cross then informed her about what would

happen next, i.e. about the return process. Preparations for return took about one

month. During that time, both the woman herself and her parents living in Sweden

relied on the Red Cross for talking about practical measures as well as discussing their

emotional experiences. The woman was in great need of psychosocial support, which

is common among persons who are obliged to return.

In discussions with the Red Cross about the return journey, it became very clear that

she experienced strong anxiety about what would happen after return. She and her

children had no place to live in Serbia, and they had no identity documents, which is a

prerequisite for receiving any kind of support from the Serbian authorities.

A plan was drawn up, and the Red Cross assisted in contacting relevant stakeholders,both in Sweden and in Serbia. The contacts with the officers responsible at the

Swedish Migration Board worked well, and they agreed to extend the preparation

period. The return journey was not booked until the Swedish Red Cross had

investigated the availability of protected shelters in Serbia. Through contacts with the

local authorities in the womans former place of residence, information was received

that access to a protected shelter could be granted only by the social services; an

application could not be submitted until after return.


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When contacting organisations in Serbia that support women who are victims of

family-based violence, it became clear that they did not have the capacity to arrange

housing. However, they cooperate with the social services, which in accordance with

national legislation has the right to grant access to a protected shelter.

Contacts were also established with two organisations specifically dealing with Roma

and their situation: the Roma Educational Centre and the Ecumenical HumanitarianOrganization (EHO).

After their return to Serbia, both these organisations supported the woman and her

children. They assisted in the process of obtaining identity documents and other

documents necessary for registration in the country. A representative of the Roma

Educational Centre visited the woman, who again lived together with her husband and

his parents, on two occasions. During these visits, her husband or his parents were

present, and it appeared that the woman could not talk openly about possible

problems. She declined further visits, and it became clear that she dared not talk about

her situation.

No further visits have been undertaken, as there is concern about negativerepercussions if the organisations persist in trying to contact her. However, the

woman calls them by telephone from time to time, and she is aware that their door is

open, should she be in need of protection.

4.3.3 Kosovo

This case concerns an elderly couple from Kosovo that had been in Sweden for five

years. The man was 85 and the woman 80 years old. They lived in a so called mixed

marriage the man is a Muslim, while his wife is Orthodox Christian (Serb from

Croatia). Both were sick and in need of assistance. In Sweden, they received home

care and were also supported by their daughter who lives in the country.

Their application for asylum was rejected, but it was difficult for them to accept that

they had to return. It was only when the Migration Board handed over their case to the

police that they realized there was nothing else they could do. They were informed

about the project by the police officer responsible and decided to contact the Red

Cross. The Swedish Red Cross provided psychosocial counselling on several

occasions, involving both the couple and their daughter; they had a huge need to talk

about their anxiety and the problems they expected after return.

During these sessions, it became clear that there was a risk that the couple would be in

a particularly vulnerable situation after return. They had no place to live in Kosovo,nor any children or relatives that could take care of them. The woman had only old

identity documents issued in Croatia before the war, which could not be renewed in

Kosovo. Her husband had heart problems, high blood pressure, and impaired vision

and hearing (he could barely hear anything, despite a hearing aid), while she suffered

from heart problems, high blood pressure, asthma and diabetes. This meant that both

of them were dependent of regular medical check-ups and medication.


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An elderly couple that has returned to Kosovo from Sweden. Photo: Faton Shehu/IFRC Kosovo

A comprehensive plan was drawn up, and the Swedish Red Cross assisted in

contacting the Red Cross in Kosovo and relevant stakeholders in Sweden.

The couple also asked for support in their contacts with the police and for the Red

Cross to participate in meetings with the police. The police officer responsible provedto be sympathetic towards the couples situation and agreed to extend the preparation

period. He was also willing to arrange for the couples daughter to accompany them

on the return journey.This did not work out, however, as the daughter had already

booked tickets, which could not be cancelled, for herself and her children.

The Swedish Red Cross also contacted the couples doctor in order to get a

prescription for a larger supply of medicines that could be brought to Kosovo. It was

very important for them to know that, at least for a foreseeable time, they would have

access to proper medicines.

When arriving in Kosovo, they experienced it as a great comfort to be received by the

Red Cross at the airport.

The Red Cross in Kosovo made significant efforts to reduce the couples

vulnerability. They received initial support in the form of food parcels (containing

staple food for one month). Housing was arranged; initially transit accommodation

provided by the organisation Projekt 03, and then a small rental apartment, paid by

the couples children living abroad. The Red Cross also investigated whether it would

be possible for them to live in a home for the elderly, but the costs were too high.


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Through regular visits by volunteers from the local Red Cross branch, they received

psychosocial support and practical assistance in contacting the authorities concerning

social assistance, pensions and health care.

During follow-up visits that were undertaken twice, it could be concluded that the

couple did not experience any security problems. The man had received identitydocuments and pension, and had access to health care and necessary medicines. The

womans situation, however, was more problematic since she had not previously been

registered as a resident in Kosovo. This made it more difficult for her to get access to

pension benefits, social assistance and cost-free health care in Kosovo. Nevertheless,

the couple felt happy and had no plans to leave the country.

4.4 Follow-up

Out of the total of 235 cases registered by the project (see section 4.2.), 118

families/cases (328 persons) have returned to their countries of origin. Thirty-nine

families (150 persons) returned to Kosovo, twenty-five families (100 persons) to

Serbia and fifty-four families (78 persons) to northern Iraq. A majority of these cases

were classified by the Swedish Migration Board as so called voluntary return.

In-depth follow-up assessments were made of a limited number of families who had

returned to the three countries covered by the project. Most of them were contacted

twice, some three times.

These assessments included the following issues: security, livelihood, housing,

education, health care, social welfare and support received from the Red Cross, as

well as any other issue that the persons concerned wished to bring to our attention.

The follow-up has been viewed as a very important tool for assessing whether the

support provided has been adequate and also as a way for the Red Cross and Red

Crescent in countries of origin to identify any remaining needs. The results also shed

light on the quality and fairness of the Swedish asylum process.

During the project, 32 families were followed up, that is 102 persons including

children: Nine families (29 persons) from Kosovo, six families (31 persons) from

Serbia and seventeen families (42 persons) from northern Iraq.

In terms of security, no serious incidents were reported. It should be noted, however,

that several of the persons followed up in northern Iraq originated from other parts of

the country, e.g. Mosul and Kirkuk, to where they considered themselves unable toreturn due to security concerns. Those returning to northern Iraq cited local traffic as

the main safety threat.

In Serbia, a family reported that they had been exposed to threats by a criminal group

when they returned, as it was believed that they were bringing money with them. The

majority of the returnees supported by the Red Cross were of Roma ethnicity, and

they experienced general discrimination at the same level as when they left the


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country. Some were originally from Kosovo, to where they dared not return due to

security concerns.

Upon her return to Kosovo, a young woman was abused by her uncle. Other returnees

considered the general security situation to be unsatisfactory, but did not report to

personally having been threatened.

Overall, the main concerns expressed by those who had returned were lack of housingand livelihood opportunities. Many were also in need of health care, and although all

persons followed up had access to health care, it was limited due to economic

constraints, in particular for those in need of specialised care.

While only a few returnees to northern Iraq were in immediate need of health care, all

but one of those returning to Kosovo needed extensive medical care, including

specialised care. In Serbia, several returnees were in need of basic medical care.

4.5 Activities in Sweden

To start working on issues related to return has been a major challenge. Many aspects

were new, both to the project team and to Red Cross staff and volunteers working

with asylum seekers and refugees.

However, initial trainings (step I) during the first year of the project resulted in an

increased awareness of the needs and constraints involved, and generated great

interest in learning more about counselling methods relevant to work with rejected

asylum seekers. These signals were of course very encouraging for the project team.

Visiting regional branches, holding trainings, and meeting volunteers and regional

refugee advisers, provided good opportunities for discussions and exchange of

experience, and for answering questions about the project. All of this was very

important in order for the project team to be able to give the right kind of supportwithin the organisation. It was also import to learn more about how each regional

branch is working with asylum seekers.

Additional training sessions (step II) during the second project year exposed an

increased commitment among the staff and volunteers participating. This could be due

to return-related activities having become a more familiar topic and a regular part of

assistance to asylum seekers. These trainings were also more practical and included

concrete examples, which usually led to questions, discussions and exchange of

experience. This further inspired the project team.

In early 2010, tangible results of the trainings could be observed when an increasing

number of regional refugee advisers and volunteers began to handle return cases andregistering them in the Red Cross case management system Reunit. They also

contacted the project team more frequently to ask for case support and to discuss other

return issues.

There is still some way to go until support to returnees will become a truly integral

part of Red Cross activities to protect and assist asylum seekers, but the most difficult

steps are now behind us.


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Relations with the officers responsible at the Swedish Migration Board have been

very good. They were often the first to inform rejected asylum seekers about the

project. In some cases, where additional time was needed to arrange assistance in

countries of origin, they showed understanding and were willing to adjust the timing

of the return journey. This was crucial for those returning, especially considering that

it concerned individuals who needed much support to succeed in their reintegration.

The same goes for the police. It was not uncommon for police officers to be the ones

informing rejected asylum seekers about the project. Nevertheless, in most cases

handed over from the Migration Board to the police, it was the person concerned who

requested the Red Cross to contact the police officer responsible for her/his case. The

projects experiences of working with these police cases are of great importance for

future action to assist returnees. In particular, it proved critical to be in close contact

with the police in cases involving particularly vulnerable returnees, such as sick and

elderly persons. The project team could monitor the polices preparations and help

safeguard that return journeys were organised in way that assured both a humane and

dignified return and equally important a dignified reception in countries of origin.

The project team did not experience that it was a problem for any of the officers at theMigration Board or the police to accept that the Red Cross only acts based on the

wishes of the individual or family concerned. Regrettably, however, there were

instances when the Red Cross was contacted by the police and where the police

officer responsible was unwilling to allow direct contact between the Red Cross and

the returnees. In these cases, the project was unable to provide support.

It is important to mention that the project team also had many contacts with private

persons, lawyers, priests, psychiatric staff and organisations engaged in individual

return cases. This did not involve only informing about the project, but also

discussing return more generally. Overall, the possibility of contacting the Red Cross

to receive support and answers to questions concerning return was considered very

positive. Many also appreciated that they could share their thoughts and their despair,

especially private persons helping rejected asylum seekers to stay in Sweden,

sometimes in hiding, and who had started to realize that the situation of the persons

they were trying to help had become untenable.

Moreover, it is clear that many consider that the Swedish Red Cross, as part of a

global network, should do more to support returnees and expand its services to

rejected asylum seekers from other countries than those covered by the project.

Being in contact with the projects target group has been the most important part of

the return counsellors daily work. It has also been the most difficult part. Most of

these contacts were by telephone, some by personal visits. Telephone counselling wasvery common during the first year of the project, when most cases were handled

directly by the return counsellors, due to Red Cross staff and volunteers working with

asylum seekers not yet having received the necessary training. Subsequently, more

and more return cases started to be initiated locally and handled by volunteers and

staff all over Sweden.

It is essential that rejected asylum seekers have the opportunity to meet someone from

the Red Cross to talk about their situation. Obviously, there are many persons whose


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asylum applications have been rejected and who primarily want to get help to stay in

Sweden. However, once the Red Cross has analysed an individual asylum case and it

can be concluded that all possibilities to challenge the rejection have been exhausted,

the person(s) concerned become more receptive and open to talk about return.

Moreover, it appears that rejected asylum seekers feel more secure if they are

informed by an independent organisation about their options and about the support

available during the return process.

There is also a great need among the target group for more comprehensive

information about the return process. Despite the fact that rejected asylum seekers

receive information from the Migration Board officers handling their return cases,

knowledge gaps and misunderstandings are common. In particular, this concerns

information about possible consequences for the individual if she/he acts based on

poor or non-existent information. From the point of view of the Red Cross, it is not

about motivating a person to return, but above all to inform about the consequences of

the decisions that she/he might take, e.g. to remain in Sweden without regular status,

migrate to another country, comply with the obligation to return, or be (forcibly)

removed by the police.

Finally, it should be underlined that none of the returnees who were in contact with

the project found it strange that the Swedish Red Cross provides support during the

return process. For many, it was only natural to turn to the Red Cross to ask for

assistance when preparing to return home to their countries of origin.

4.6 Activities in countries of origin

It is increasingly clear that there is a need for reintegration strategies in countries of

origin, if return is to be sustainable. It is also evident that such a strategy must be

implemented in cooperation between different stakeholders, both in host countries andin countries of origin. Obviously, the public authorities in the country of origin bear

the primary responsibility for its returning citizens. However, in the light of past

difficulties and a present post-conflict situation in many countries of origin, and

taking into account the mutual interest of ensuring sustainable return, it should be

reasonable to consider the returnees well-being a shared responsibility.

During the past two years, the project team had the privilege of working together with

other components of the Red Cross and Red Crescent Movement in three countries

origin, although as regards Serbia cooperation was limited. In Serbia, the project

primarily worked together with the Ecumenical Humanitarian Organization, and given

that the majority the returnees supported by project were of Roma ethnicity, this

proved effective as the organisation is specialised on Roma and their situation.

The project team also investigated the possibilities of expanding return-related

services to include persons returning to southern and central Iraq. While not presented

in the present report, the results of this work will be taken into account in the further

development of support to returning migrants.

It is important to point out that providing support to persons returning from western

Europe was a new activity for the Red Cross and Red Crescent in the concerned


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countries of origin, and it should be acknowledged that it was initially viewed with

scepticism. Gradually, however, it was recognized that having been an asylum seeker

is not a guarantee against vulnerability after return. The time is past if it ever was

the case when returnees brought with them significant resources. Yet, there are of

course those returning who cope very well on their own after return and,

consequently, do not belong to the target group of the Red Cross and Red Crescent.

It is also apparent that, despite belonging to the same global network, the components

of the Movement work in different ways in different countries. This sometimes led to

misunderstandings, but in general relations were characterized by good will and a

focus on problem-solving.

Essential tasks for the Red Cross and Red Crescent have been to identify existing

needs and the capacity of the components of the Movement to respond to those needs,

as well as to identify other relevant stakeholders and create networks to maximize the

effectiveness of the support provided in the reintegration process.

As mentioned earlier, the authorities of a country bear the primary responsibility for

its citizens and for meeting their needs. In cases where the public authorities have notfulfilled their responsibilities, it has been considered necessary to undertake advocacy

work to bring their attention to the vulnerability many returnees are exposed to.


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5. International outlook

Migration is a global phenomenon. It is by no means a recent occurrence, and the

concept may be viewed as a generic term for movements between areas, regions and

countries. Naturally, migration involves many different aspects. On aspect of

migration is return, which is a term that indicates a prior movement to somewhere. Inthe context of the project, it concerns persons who have applied for asylum and who,

after having had their applications rejected, have to return to their countries of origin.

What can be said to be at least relatively new, however, is the increasingly close

cooperation between States on how to handle return migration.

In the European Union, the Return Directive provides a common framework for the

return and removal process1. Moreover, in the Stockholm Programme, the following

intention can be noted: In order to create a comprehensive approach on return and

readmission, it is necessary to step up cooperation with the countries of origin and of

transit within the framework of the Global Approach to Migration and in line with the

Pact on Migration and Asylum, while recognising that all States are required toreadmit their own nationals who are staying illegally on the territory of another

State. There is also a clear focus on the need for the EU and its Member States to

encourage so called voluntary return, including through the development of incentive

systems, training, reintegration and subsidies2.

The issue of return is also a current topic within the International Red Cross and Red

Crescent Movement. Migrants are a large and important target group when the

Movement, in accordance with its mission to prevent and alleviate human suffering

wherever it may be found is working to develop methods and support that reduces

the vulnerability of persons in vulnerable situations.

In the fall of 2009, the International Federation of Red Cross and Red CrescentSocieties adopted a comprehensive Policy on Migration, which should be used as a

tool when working with and for vulnerable persons who are at different stages of the

migration process. One of the principles of the policy highlights the return stage of

migration. It is important, however, to note that the Red Cross and Red Crescent is

not focusing on the concept of return as such, nor its forms. The starting point is

always the individual and her/his needs in a specific situation.

Policy Principle 8: Assist Migrants in Return

Return to the place of origin is not the necessary end or solution of

migration. Migrants may prefer to stay where they are, for an extended period

or permanently. While providing counselling and informing migrants about

their options, National Societies cannot and shall not decide what solution is

the best, and must at all times maintain their impartiality, neutrality and

1 DIRECTIVE 2008/115/EC OF THE EUROPEAN PARLIAMENT AND OF THE COUNCIL of 16

December 2008 on common standards and procedures in Member States for returning illegally staying

third-country nationals (2008)2The Stockholm Programme An open and secure Europe serving and protecting the citizens, Council

of the European Union, 17024/09 (2009)


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independence. When migrants do return they face particular challenges; to

assist and protect them, cooperation and agreement between National

Societies in countries of destination and return is essential.3

During 18 months, ending in the summer of 2009, a number of National Red Cross

Societies implemented a community action project, the European Red Cross Return

Initiative (ERCRI). The project aimed at surveying on-going return-related activitieswithin and beyond the Red Cross in the EU and at strengthening cooperation between

existing stakeholders (primarily within the Movement). Importantly, it recommended

continued cooperation, including through joint operational pilot projects, and

proposed a so called best practice model for work with returning migrants.4

Dialogue and cooperation between different stakeholders, both nationally and

internationally, must be viewed as a vital part of efforts to develop strategies that,

from a humanitarian perspective, give people a fair chance to live in dignity, before

and after return.

3Policy on Migration, Principle 8, International Federation of Red Cross and Red Crescent Societies

(2009)4European Red Cross Return Initiative A study on how to support sustainable return in safety and

dignity, Swedish Red Cross (2009)


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6. Final discussion

The Swedish Red Cross has since a long time had a well-articulated objective of its

return-related activities: Asylum seekers who are deported against their will should

have the opportunity to return in safe and dignified conditions.

How do we go about it to achieve this objective?

There is much to consider before activities are initiated. Should the Swedish Red

Cross provide support during the return process? Would we risk being perceived as

acting on behalf of the public authorities? How would such activities be perceived by

asylum seekers and other migrants? Is it possible to assist a migrant returning to

her/his country of origin, while at the same time publicly stating that we consider it

unsafe to return to that particular country?

How should activities be organised? What kind of support is needed? What types of

action can be undertaken by the Red Cross and Red Crescent?

Based on previous experiences of working with returning migrants as well as the

Swedish Red Cross daily contact with asylum seekers, it was concluded that there

was a need for a more structured approach to achieve the agreed objective.

The Swedish Red Cross therefore decided to develop and implement the project

Information Network for Return to Northern Iraq, Serbia and Kosovo.

Accordingly, it is the role of the Swedish Red Cross to assist and protect returning

migrants by providing support and advice, should they request our help.

Our point of departure is the individual and her/his needs. This also means that the

Swedish Red Cross may well be of the opinion that return should not be enforced to acertain country, while at the same time responding to the humanitarian needs of a

person who is obliged to return and who requests our assistance in the return process.

At all times, it is crucial to be clear about the role of the Red Cross when working

with and for returnees vis--vis asylum seekers and other migrants, public

authorities, as well as other stakeholders.

We cannot say that all rejected asylum seekers consider it self-evident that the Red

Cross should provide return-related support and advice. However, none of the

returnees who were in contact with the project expressed any negative views about it

on the contrary, many voiced their approval. This is how one person put it: If it has

to happen, Im glad the Red Cross is there, it feels more secure.

Monitoring and follow-up after return is of utmost importance, partly as a way of

assessing the quality and fairness of the Swedish asylum process, and partly because it

is seen as very positive by those who have returned, as it shows that someone cares

about what happens to them.


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The present project aimed at providing support and advice to rejected asylum seekers

and at assisting them in the reintegration process, as well as at developing methods

and approaches for future Swedish Red Cross action to assist returnees.

While it can be concluded that there is a real and pressing need for support during the

return process, we are nevertheless surprised by the great interest shown in the

project. It is difficult to determine the reasons behind this, but a factor that comes intoplay could well be the increasingly clear signal from the Swedish authorities that very

few persons from the countries concerned can expect to be granted a residence permit.

Furthermore, it is possible that the actual availability of support is another factor, in

particular the possibility to contact the Red Cross and Red Crescent in countries of

origin, which is likely to create a sense of security. In many ways, the Red Cross and

Red Crescent Movement can serve as a bridge between countries, thanks to its local

presence in countries of origin and the special status it enjoys in many countries.

Developing return-related activities, with a view to help ensuring that rejected asylum

seekers have the opportunity to return in safe and dignified conditions, can perhaps

best be described as a journey sometimes characterized by rapidly travelled stretches,

at other times by frequent stops as well as the occasional uphill slope.

It takes time to create new platforms and tools that can be used to reduce the

vulnerability of a group of people who often find themselves in an extremely

vulnerable situation. The journey is not yet over, but we have come a long way and

are looking forward with confidence to the next steps.

With these concluding words we would like to thank all those who have contributed

to achieving the objective of our joint efforts: Asylum seekers who are deported

against their will should have the opportunity to return in safe and dignified

conditions.

For more information about the project Information Network for Return to Northern

Iraq, Serbia and Kosovo, please contact the Swedish Red Cross, International Law

and Refugee Department.


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This is the Red Cross The Red Cross is an organisation above politics and religion

represented in 186 countries. The Red Cross mission is to prevent and alleviate human suffering

wherever it exists.

This is what you can do Become a Red Cross volunteer. Spare some of your time.

Become a Red Cross member by sending 200 SEKto the giro no. 900-8004.Please dont forget to fill in your name and address.

Make a monthly contribution, www.redcross.se Make a donation by using the giro account no. 900-8004. Enrol your company in Red Cross work. Your last will can save lives.

Make the Swedish Red Cross a beneficiary.

Please contact our head office for more information.We will be pleased to help you.

Swedish Red Cross, head officeP.O. Box 17563 | SE-118 91 Stockholm

Visiting adress: Hornsgatan 54Phone: +46 (0) 8-452 46 00 | Fax+46 (0) 8-452 46 01

E-mail: info@redcross se | Visit our website: www redcross se

information network for return to northern iraq, serbia and kosovo

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