Summary report

Swedish Red Cross Network on Return 2010-2011

Ewa Jonsson Project Manager

IFRC/Kosovo and Red Cross of Kosovo meeting an elderly couple, who returned to Kosovo
Photo: Faton Shehu, IFRC/Kosovo

Swedish Red Cross Network on Return is co-financed by the European Return Fund

Summary report

Swedish Red Cross Network on Return 2010-2011

This is a summary of the final report submitted to the European Return Fund/Swedish Migration Board, covering the first year of the project (1 July 2010 to 30 June 2011).1

1. Background
The project Swedish Red Cross Network on Return is based on and carried out in compliance with the IFRC Policy on Migration2 and its supplementary advisory note on Action to Assist Migrants in Return3. Asylum seekers approach the Swedish Red Cross for advice and support during different stages of the asylum process as well as after having received a final rejection. The Swedish Red Cross offers pre-departure support to all rejected asylum seekers and other migrants who are obliged to return to their respective country of origin, including information about the return process, psychosocial and practical support in Sweden, and, where possible, return related country of origin information. Through the present project, persons returning to Afghanistan, Armenia, Lebanon, the Former Yugoslav Republic of Macedonia, the Russian Federation and Syria can receive specialized information about relevant conditions in the countries concerned, compiled in the Red Cross database Return Network. If needed, further specific information may be requested from the Red Cross and Red Crescent in countries of origin (see project objective 2). Returnees to Kosovo, Iraq and Serbia may, in addition, based on individual needs assessments, benefit from reintegration assistance after return (see project objective 1).

2. Project objectives
Overall objective o Asylum seekers who are deported against their will should have the opportunity to return in safe and dignified conditions. Project objectives 1. To facilitate return and improve conditions for social reintegration of asylum seekers from Iraq, Kosovo and Serbia who have not been granted a resident permit in Sweden, by providing enhanced support;

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Adapted and translated by Rickard Olseke. http://ifrc.org/PageFiles/89397/Migration%20Policy_EN.pdf 3 http://ifrc.org/PageFiles/89397/new-docs/Advisory%20Note%20Return_EN.pdf

Swedish Red Cross Network on Return is co-financed by the European Return Fund

2. To facilitate return of asylum seekers from six countries in addition to those covered by project objective 1, by providing basic support; 3. To ensure that the Swedish Red Cross is part of national and European level networks on return, which through coordination contribute to further developing and strengthening action to support returnees; 4. To raise awareness about return and related obstacles and opportunities, within and outside the Swedish Red Cross.

3. Results and experiences

3.1 Project objective 1 Informing persons who are obliged to return about the availability of support is essential. While it is impossible to determine whether all concerned have received information about the project, it is reasonable to assume that at present the possibility of receiving support from the Swedish Red Cross is well known among the target group, given that it builds on an earlier two-year project and benefits from excellent cooperation with the Migration Board as regards information dissemination. Information leaflets have been updated and disseminated primarily through the Swedish Red Cross and the Swedish Migration Board. During the year, project staff participated in eight information meetings at the Migration Board. The engagement of Red Cross staff and volunteers has been strengthened, resulting in more asylum seekers being informed about the possibility of receiving support if their asylum application is rejected. The database Return Network has been used to compile return related information collected and analysed by project staff and National Red Cross and Red Crescent Societies in countries of origin, making it easily available to all staff and volunteers concerned. Advice and support to the target group, provided by local Red Cross staff and volunteers and by projects two return counsellors, have been available throughout the duration of the project, with the aim as far as possible of offering support at local level. Methods and tools for efficient support and advice have been further developed, including a guide to be used when counselling rejected asylum seekers4 and interview templates for each country of origin to facilitate needs assessment and support planning. Training materials for e-learning have been created and are ready to be used during the second project year.

Samtal vid avslag p asylanskan, Svenska Rda Korset (Swedish Red Cross) 2011-10-12.

Swedish Red Cross Network on Return is co-financed by the European Return Fund

In total, 462 persons from the target group received pre-departure support in Sweden during the first project year, all of whom were registered in the Red Cross case management system Reunit: Iraq: 36 persons (24 men, 15 women, 8 children); Serbia: 243 persons (45 men, 49 women, 140 children); Kosovo: 168 persons (33 men, 41 women, 78 children).

As of 30 June 2011, 273 persons registered as beneficiaries of pre-departure support had returned to their respective country of origin: 28 to Iraq, 112 to Serbia and 133 to Kosovo. 542 persons received reintegration assistance in countries of origin: 63 in Iraq (including family members who had not applied for asylum in Sweden), 333 in Serbia (including persons who had applied for asylum but not been registered as beneficiaries of pre-departure support) and 146 in Kosovo (including family members who had not applied for asylum). 145 persons (comprising 39 families) received follow-up visits after return, including personal interviews carried out by project staff and/or National Society staff in countries of origin, covering issues related to security, housing, livelihood, education, health care, social welfare and support received from the project.

Security Some security problems were reported, but not involving serious incidents of targeted violence. Two Iraqi families who had returned to Baghdad expressed a wish to leave the city due to the general security situation. Another family feared returning to their home town of Mosul and decided to resettle in Erbil. Structural discrimination of Roma is widespread in both Serbia and Kosovo. One family who returned to Serbia claimed to have suffered discrimination in the labour market as well as by the local police. One family who returned to Kosovo felt threatened on account of previous political activities; another due to accusations of collaboration with Serbs. Three families stated that their children had been beaten and that this was linked to social exclusion after their return. Five returnees to Kosovo, including single as well as married women, cited familybased violence as a serious security problem.

Swedish Red Cross Network on Return is co-financed by the European Return Fund

Housing Housing is a problem for most returnees and they often have to stay with relatives or friends, a situation which does not promote reintegration. However, the follow-up also revealed other housing solutions: Four families who returned to Kosovo rent private housing, two of whom receive remittances from relatives abroad to pay for their rent; Two families benefit from housing provided by the Kosovo Governments Repatriation Office; One woman who returned to Kosovo was placed in a protected shelter; One family from Serbia and two from Iraq returned to their previous housing; Three families who returned to Iraq rent housing.

Livelihood It is generally difficult to find work in countries of origin. This is due to various factors, but in our experience two are of particular importance: a low education level among returnees and lack of links to the local labour market. In Serbia and Kosovo, it is especially difficult for Roma to get access to the labour market. In Kosovo, returnees health problems are an obstacle to finding employment. In Iraq, returnees need personal connections to find a job or capital to start their own business. While the creation of employment opportunities is not a priority of the Iraqi Government, an increasing number of people are employed in the private sector. One family who returned to Iraq succeeded in setting up a small business, thereby ensuring a regular income. With the support of the Swedish Red Cross, one family in Serbia and three families in Kosovo were provided with basic equipment, including a power saw, a lawn mower and a welding set, to promote their self-reliance. In Serbia, four families relied on temporary employment to sustain their livelihood. Others cited pension benefits as their main income.

Education In general, all returnee children had access to education. In some cases, however, transportation costs were an obstacle to schooling.

Swedish Red Cross Network on Return is co-financed by the European Return Fund

Some children need help to learn the official language of the country of origin if it is not their mother tongue. In Serbia, Roma children were given access to language training provided by a partner of the Red Cross of Serbia. In Kosovo, childrens schooling may be interrupted as they are only admitted at the start of a school term. This affected some of the children who had returned. Another problem is schooling for children with special needs, where the number of places available is not sufficient to meet demand.

Health care All returnees interviewed had access to cost-free public health care. However, in Iraq access is limited to emergency care; this affected two returnees who were unable to afford non-emergency care, one of whom subsequently received assistance from the Iraqi Red Crescent. A serious problem in Kosovo is the limited or non-existing availability of specialist care. One family had to travel to Albania, incurring high costs which were not reimbursed by their home municipality in Kosovo.

Social welfare Most returnees are in need of financial support; nevertheless, many are not eligible for social assistance. Families with children returning to Serbia are entitled to child benefits. Two families who were followed-up had been granted both social assistance and child benefits. Another two families had not yet received child benefits due to a lengthy registration process for children born abroad. Delays are often caused by lack of documentation required by the Serbian authorities.

Support received from the project All returnees had received some form of support in the country of origin after return, including reception at the airport upon arrival, transit accommodation, psychosocial support, food parcels, hygiene articles, disability aids, basic equipment for self-reliance, information and advice, and assistance in contacting local authorities, health care providers or other organisations. They had also received advice and support provided by the Swedish Red Cross during the return process. Two families who returned to Serbia were also supported by the Ecumenical Humanitarian Organization (EHO), which provides services in some municipalities in Vojvodina in northern Serbia. EHO works with Roma and has assisted families in obtaining identity documents and provided language training for children.

Swedish Red Cross Network on Return is co-financed by the European Return Fund Ten families five from Iraq and five from Kosovo had been granted reestablishment support by the Swedish Migration Board. In one case, it was used to start a small business. The grant also helped to repay debts (related to the travel to Sweden) and to cover housing and other living expenses after return.

Conclusions There is a considerable need for reintegration assistance, in particular to meet basic needs, such as housing, livelihood and health care. The follow-up assessment showed that all persons interviewed had received some kind of support from the project. Reintegration support provided by the project included counselling, livelihood support in the form of food parcels, hygiene articles and basic equipment for self-reliance, school materials, psychosocial support, medical assistance, and local transportation. Agreements were concluded with National Societies and/or the IFRC in countries of origin, ensuring availability of counselling and reintegration support in all three countries concerned. As regards Iraq, the project focused on Baghdad and the northern parts of the country, as most Iraqi returnees approaching the Swedish Red Cross originate from these areas. It is possible, however, for prospective returnees also to benefit from the Iraqi Red Crescents network in other parts of the country. To further improve the support to persons returning to Iraq, the Swedish Red Cross established informal cooperation with the International Organization for Migration (IOM). Until February 2011, IOM provided reintegration support to improve livelihood opportunities, based on an agreement with the Swedish authorities. Returnees approaching IOM for assistance are now referred to the Red Cross.

Achievements Rejected asylum seekers approaching the Red Cross for support feel safe and secure, despite finding themselves in a difficult situation, being obliged to return to uncertain and precarious conditions. The understanding and acceptance of action to support returnees have increased markedly within the Swedish Red Cross. All Red Cross and Red Crescent partners involved in the project fully agree on and understand their respective roles and responsibilities in the project. Further progress has been made in developing ways of efficiently utilizing the joint capacity of the Red Cross and Red Crescent Movement for the benefit of

Swedish Red Cross Network on Return is co-financed by the European Return Fund

individuals in vulnerable situations (in this case persons obliged to return from Sweden to Iraq, Serbia and Kosovo). Well-functioning cooperation with clearly defined roles has been established with the Swedish Migration Board and the Swedish Police.

Challenges It is clearly a challenge to work in several different social and cultural contexts: It requires additional time to discuss and agree on operational modalities, and to create mutual understanding between Red Cross and Red Crescent partners. This may be perceived as frustrating and as an obstacle to project implementation. Widespread vulnerability in countries of origin sometimes makes it difficult to gain acceptance of the humanitarian needs of returnees from Western Europe, despite the fact that they are clearly in a vulnerable situation also in the local context. Indeed, in the case of Iraq, the need for reintegration support turned out to be greater than anticipated. There is still a lack of experience and understanding among National Societies in countries of origin about the importance of developing local external networks and partnerships as a way of improving support to vulnerable people.

3.2 Project objective 2 The project identified six countries of origin in addition to those covered by project objective 1, using the following selection criteria: Number of asylum seekers in Sweden per country; Rejection rate per country; Known obstacles to social reintegration in country of origin; Propensity of asylum seekers to contact the Red Cross.

Based on discussions with Red Cross staff and volunteers working with asylum seekers, fourteen countries were initially identified. Taking into account also the prospective capacity and willingness of the National Society in the respective country of origin to contribute to the project, the following countries were selected: Afghanistan, Armenia, Lebanon, the Former Yugoslav Republic of Macedonia, the Russian Federation and Syria. Information leaflets in four addition languages Dari, Armenian, Macedonian and Russian were printed and disseminated. Available in the project database Return Network, all leaflets can also be downloaded from www.redcross.se and www.migrationsverket.se. Interview templates were adapted to the new target group, and return related country of origin information collected, analysed and compiled in Return Network, making it possible to start offering advice and support in the end of November 2010.

Swedish Red Cross Network on Return is co-financed by the European Return Fund

In total, 40 persons from the target group received pre-departure support in Sweden during the first project year: Afghanistan: 6 persons (6 men); Armenia: 4 persons (1 man, 1 woman, 2 children); Lebanon: 0 persons; Former Yugoslav Republic of Macedonia: 15 persons (3 men, 3 women, 9 children); Russian Federation: 3 persons (1 man, 1 woman, 1 child); Syria: 12 persons (2 men, 2 women, 8 children).

Achievements The identification and selection of countries of origin benefitted from the extensive knowledge and experience already gained by the Swedish Red Cross through previous return related projects. Considering that it often takes time for information about available services to reach the intended target group, it is an achievement that as many as forty persons have already received advice and support from the project.

Challenges It is considerably more difficult to collect, verify and validate return related information without having a dedicated partner in the respective country of origin. Hence, efforts are underway to examine the potential role of the Red Cross and Red Crescent in the countries concerned, and to assess the feasibility of future partnerships.

NB: In addition to the target groups covered by project objectives 1 and 2, the project was approached by prospective returnees to nine other countries of origin (51 persons).

3.3. Project objective 3 The project has actively participated in dialogues with the Swedish Migration Board and the Swedish Police. It attended a national seminar to exchange experiences, organised by the Migration Board, and established contacts with the Migration Board led transnational project European Return Platform for Unaccompanied Minors (ERPUM). The project manager is part of the external reference group of the Migration Board project Kortare Vntan 2 (Shorter Waiting 2).

Swedish Red Cross Network on Return is co-financed by the European Return Fund

At European level, the project pursued an active dialogue with several stakeholders within and beyond the Red Cross and Red Crescent Movement, which resulted in increased coordination and further development of activities. These included: International Organization for Migration (IOM): Exchange of experience and agreement on mutual referral of returnees to Iraq and Afghanistan; Estonian Red Cross: Study visit to Sweden to support the capacity of the National Society to develop return related activities; Czech Red Cross: Agreement on cooperation during the second project year to provide support to returnees to the Russian Federation; Red Cross and Red Crescent Roma Networking Meeting, hosted by the Red Cross of Montenegro: Contacts established with the National Societies of the Former Yugoslav Republic of Macedonia, Montenegro and Italy; International Committee of the Red Cross (ICRC): Increased coordination of return related activities; Afghan Red Crescent: Establishment of contacts for information sharing and possible support to returnees to Afghanistan; Platform for European Red Cross Cooperation on Refugees, Asylum Seekers and Migrants (PERCO): Participation in working group on return to exchange experiences and information about National Society activities.

Achievements Through the project, the Swedish Red Cross has established contacts and developed partnerships with key stakeholders in the field of return. Red Cross action to support returnees has gained visibility and is now relatively wellknown in Sweden as well as at European level.

Challenges Establishing well-functioning partnerships and effective coordination is very time-consuming.

3.4 Project objective 4 To help raise awareness about return and further increase ownership within the Swedish Red Cross, the project created an implementation group consisting of local staff, with the role of participating in the development of working methods and resources for supporting rejected asylum seekers. Also serving as a general sounding board to the project manager and as a vehicle for dissemination of information to other staff and volunteers, the group met four times during the first project year.

Swedish Red Cross Network on Return is co-financed by the European Return Fund

Moreover, action to support returnees has been integrated into Swedish Red Cross guidelines on work with asylum seekers, and all persons benefitting from the present project are registered in the regular case management system Reunit, to which all staff involved have access. Outside the Red Cross, information about the project has so far been disseminated on eleven occasions, primarily targeting staff at the Swedish Migration Board.

Achievements Active participation in the project of local staff working with asylum seekers has improved the prospects for successful long-term implementation. Most people benefitting from external dissemination activities have considered the information useful and important, generally as well as to their own work.

Challenges Coordinating and reconciling different wishes and interests sometimes require extensive time and efforts.

4. Postscript
The project Swedish Red Cross Network on Return is scheduled to come to an end on 30 June 2012. Return counselling and reintegration support will be continued during the second year of the project, with a number of returnees to Iraq, Kosovo and Serbia receiving followup visits. Efforts to mainstream return related activities within the Swedish Red Cross will be intensified. In the longer term, it is likely that the Swedish Red Cross will continue to develop activities for the benefit of rejected asylum seekers and other migrants who are obliged to return, partly project-based. We would therefore welcome strengthened structures for cooperation between National Societies and other relevant stakeholders, with a view to jointly contributing to sustainable return and reintegration in safety and dignity. In the words of the IFRC Policy on Migration, National Societies in countries of destination and return should cooperate, both in preparation of returns, and in receiving the returnees5. This commitment needs to be progressively translated into concrete action.

Ewa Jonsson Project Manager

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http://ifrc.org/PageFiles/89397/Migration%20Policy_EN.pdf

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