Table of Contents - NACCOMBelfast, Northern Ireland Recommended citation: Browne, S., and Hanna, R....

Living in Limbo: The Life of Refused Asylum Seekers

Acknowledgements .................................................................................................................................... 3Foreword .................................................................................................................................................... 4Foreword .................................................................................................................................................... 5Foreword .....................................................................................................................................................6Executive Summary …………………………………………………………….........................……………….. 8

Chapter 1: Introduction .............................................................................................................................12

Chapter 2: What is Destitution? ...............................................................................................................13The Reasons for Destitution ................................................................................................................ 14The Effects of Destitution ..................................................................................................................... 16

Chapter 3: Current Refused Asylum Seeker Support ..............................................................................18The Support Provided While Awaiting an Asylum Decision ..................................................................18What Happens When an Asylum Claim is Refused? ............................................................................18Why Can’t Refused Asylum Seekers Return to Their Home Country? ................................................ 19Section 4 Support ................................................................................................................................ 20Overriding Problems With the Current System .....................................................................................21Reform – The Immigration Act 2016 .....................................................................................................22

Chapter 4: NICRAS’ Survey Methodology …………………………………..........………………………….. 24

Chapter 5: Survey Findings.............................................................................................................…….. 25The Length of Time in the Asylum Process .......................................................................................... 25The Destitution Amongst Refused Asylum Seekers ............................................................................. 26Seeking Assistance From Social Services and Charities .……………………....................................... 29How Refused Asylum Seekers are being Effected Physically and Mentally ........................................ 30

Chapter 6: The United Kingdom’s Human Rights Obligations ................................................................ 33 Economic, Social and Cultural Rights ………………............................................................................ 34

Civil and Political Rights ……………………………………………………................................................36

Chapter 7: What Can Be Done? ............................................................................................................... 38The Northern Ireland Executive ........................................................................................................... 38The United Kingdom Government ........................................................................................................41How Has NICRAS Been Helping Refused Asylum Seekers? .............................................................. 42 NICRAS’ Recommendations ................................................................................................................ 43

Chapter 8: Conclusion ............................................................................................................................. 45 Annex A: The Survey Questionnaire ……………………………..........………......…………………........ 46 Annex B: The Full Survey Findings …………………………..……………...............…………….....….... 50 Bibliography ……………………………………………………………………………………........................ 53

Table of Contents

NICRAS would like to gratefully acknowledge

Rachel Hanna Stephen Browne

who researched and wrote this report,

Mohammed Aqel who designed this Report

and all of the people who participated in the survey,

without whom this report would not have been possible.

Published March 2017Belfast, Northern IrelandRecommended citation:Browne, S., and Hanna, R. (2017) Living in Limbo: The Life of Refused Asylum Seekers. Belfast: Northern Ireland Community of Refugees and Asylum Seekers (NICRAS).

Acknowledgments

Living in Limbo: The Life of Refused Asylum SeekersReport of the Northern Ireland Community of Refugees and Asylum Seekers (NICRAS) - March 2017

This report represents an important step towards greater understanding, both of the plight of those facing destitution, and the urgent need for reform. It also provides a much-needed platform for those who have directly endured this inhumane government policy to be heard.Since 2015, we have seen a rise in public support across the UK for those seeking sanctuary, which is warmly welcomed. Yet we have also seen the Westminster government continue to take significant steps to make the lives of those applying for asylum in the UK arduous, complicated and stressful. Some of the most difficult changes are yet to come, through the implementation of the 2016 Immigration Act (the regulations of which are due to be announced around the time of this report’s publication). In light of these expected changes, many NACCOM Members are preparing for a continued rise in the numbers facing destitution.Destitution, as this report demonstrates, causes immediate and lasting damage to people’s lives, and accommodation is amongst the most critical of needs. It is well known that rough sleeping has a major impact on people’s health and wellbeing whilst inevitably hampering efforts to progress asylum claims or pursue other options. Staying with other people can also carry risks and difficulties for all involved, yet as this report highlights, there are a significant lack of other options for those facing destitution in Northern Ireland at the moment. We commend the efforts that NICRAS are making to support those who face such impossible choices. Anyone working in the sector will testify how housing and supporting people with no recourse to public funds requires a great deal of creativity and compassion. It is to the credit of all involved at NICRAS that so many people have been supported, often over long periods, in such practical ways.Yet it is clear that more needs to be done politically as well as practically to bring about lasting change that will enable people to not just survive but thrive in the communities within which they settle. We support the recommendations of this report and will work with NICRAS and others across the UK to push for their implementation wherever possible.

This is a timely and welcome report from NICRAS on the plight of refused asylum seekers in Northern Ireland. The authors are to be commended for this substantial contribution to the debate, and for providing clear recommendations on ways forward.

The UK Government is promoting policies of destitution by design that challenge the very idea that social and economic rights apply to everyone. It is one part of a broader attack on the concept and practice of human rights. This report demonstrates the urgent need for a new conversation in Northern Ireland about the human rights of everyone here. Are we really content to go along with an increasingly repressive approach led from Westminster?

This work contains many excellent recommendations and I hope that this impressive report will get the response it deserves.

Dave Smith Colin HarveyCoordinator, NACCOM (The No Accommodation Network) Professor of Human Rights Law

Queen’s University Belfast

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This report highlights the everyday difficulties that refused asylum seekers face in Northern Ireland. One of my main hopes for this report is that it spreads awareness of what day-to-day life is really like for refused asylum seekers. This is a group of people who are especially prone to stereotyping and misrepresentation and, in such coverage, one thing is always notably absent: their own voices. This report therefore sought to give refused asylum seekers an opportunity to tell their stories and to voice their opinions on the way they are treated. As the only organisation in Northern Ireland that belongs to and is led by refugees and asylum seekers, we have a particular appreciation of how the lives of our members are dictated by the actions of the United Kingdom Government and the inaction of the Northern Ireland Executive. As this report details the level of discrimination, injustice and inequality that refused asylum seekers encounter in Northern Ireland, it is my sincere wish that greater steps are taken to uphold the human rights of each of these individuals. I would like to thank Rachel Hanna and Stephen Browne, who both volunteered their time to research and write this report. My thanks also go to NICRAS’ Board of Trustees for the support they gave during the completion of this report and to our staff and volunteers whose assistance with this, and indeed all of NICRAS’ work, is always hugely appreciated. I would also like to thank Colin Harvey, Professor of Law at Queen’s University Belfast, Les Allamby, the Chief Commissioner of the Northern Ireland Human Rights Commission and Dr Paul Hainsworth, formerly of Ulster University’s School of Criminology, Politics and Social Policy, for the assistance they gave during the final stages of this report. As in previous reports, I wish to highlight the kindness and generosity of people in Northern Ireland who offer a lifeline to the members of NICRAS who battle fear and destitution. Most important, however, are those who agreed to participate in this survey. To be willing to give up their time and to share deeply personal information is a true credit to them. I can only offer my sincerest gratitude, for without the valuable insights that they gave, this report would not have been possible.One of the main aims of NICRAS has always been for the humanity of each refugee and asylum seeker to be recognised and appreciated by ‘those in charge’ and by wider society alike. This is especially true of refused asylum seekers – a group that is so heavily defined by the status that has been given to them. I recognise the numbers in this report are small but I call on each person who reads this report to recognise the human being behind every statistic and testimony within this report. For if this report can result in refused asylum seekers being treated with greater compassion, then it will have been especially worthwhile.

Justin KouameChairperson, Northern Ireland Community of Refugees and Asylum Seekers

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Executive Summary

08 097

ExecutiveSummary

IntroductionThis report examines the level of destitution among refused asylum seekers in NorthernIreland. Through NICRAS’ advice and support work, its staff and volunteers are acutelyawareof thepressurethatmanyrefusedasylumseekers face. Inordertobetteraddressthese issues,NICRAS felt that itwas important to gain an understanding of the concernsthat refused asylum seekers commonly share. What emerged was a high rate ofhomelessnessamongstrefusedasylumseekersandtheexperienceoflivingconditionsthathaveanadverseaffectonhealth.

NICRAS’SurveyInthefinalmonthsof2015NICRASconductedasurveyamong29refusedasylumseekersliving in Northern Ireland. A questionnaire was designed (see Annex A) with the aim ofobtainingbothnumericaldataandthewrittenpersonaltestimoniesofthosesurveyed.

Findings:HeightenedDestitutionThatNegativelyAffectsHealthWhat became clear is the difficulties that refused asylum seekers are likely to face insecuringaccommodation,financialsupportandbasicessentialsincludingfoodandclothing.

Ofthe29refusedasylumseekerssurveyed:

• 24% have endured a period of up to 6 months homeless, while 21% have beenhomelessforover24months.

• 39%weredestituteat thetimeofbeingsurveyed,astheywereeithersleepingonthestreetsorhavingtolivewithfriends.

• Only 33% of the respondents who were eligible for support from social services,actuallyapproachedsocialservicesforassistance.

• 79%statedthattheirhealthhasbeenaffectedbythecircumstancestheyhavebeenputin.

• 63%oftherespondentshadspentover24monthsintheasylumprocess–signallingtheheavybacklogandinefficiencieswithintheUnitedKingdom’sasylumsystem.

TheLawOnce individuals have had their asylum application refused they cease being eligible toreceiveasylumsupportandso,within21daysofthedecision,theirweeklypaymentsstopandtheyhavetobeevictedfromNationalAsylumSupportService(NASS)accommodation.1

1UnitedKingdom,AsylumSupportRegulations2000,SI2000/704(asamended)r2,2A.

8

However, as long as theymeet the criteria, they can still receive Section 4 or Section 95support.Unfortunately,therearefourmajorproblemswiththeseprovisions:

1. Section 95 support is only available to refused asylum seekerswho havedependantsundertheageof18.

2. Section95supportcanberemovedifthefamilyisnotbelievedtobetakingstepstoleavetheUK.2

3. Section 4 support amounts to only £35.39 a week and is administeredthroughacashless‘Azure’cardsystem.ThisisbeinggraduallyreplacedbyAspencardsthroughoutthecourseof2017.

4. Azurecardscanonlybespentincertainshopsandonlyoncertainítems.

TheUnitedKingdom’sHumanRightsObligations

As the inadequacieswithinSection95andSection4 support result in suchahigh rateofdestitutionamongrefusedasylumseekers intheUnitedKingdom,particularattentionhasto be given to the international and regional human rights obligations that the UnitedKingdomgovernmentisexpectedtoabideby.Asrefusedasylumseekersareevictedfromtheir accommodation and offered limited statutory support, resulting in high levels ofhomelessnessandbadhealth,suchtreatmentpresentsaclearbreachofhumanrightslaw.Thisincludestherighttoanadequatestandardofliving,freedomfromtorture,inhumanordegradingtreatmentandtherighttofamily life. Thenewarrangementswhenintroducedwillbeeventougherfornewapplicantsthanthearrangementstheyarereplacing.

TheImmigrationAct2016The ImmigrationAct 2016 received Royal Assent on the 12thMay 2016. TheAct repealsSection4support,toreplaceitwithanewSection95Asupport.Whilethespecificmake-upofthisnewformofsupportisyettobeconfirmed,thegovernmenthasmadeitclearthatitwillonlybeavailabletothosewhoaredestituteandcannotleavetheUnitedKingdomforaclear and obvious reason. The other major change is that refused asylum seekers withdependantswillnolongerbeabletoreceiveSection95supportandwillonlyhavethenewSection 95A support available to them instead. However, these changes have not beenenactedyet andwill only come into forceafter aCommencementOrderhasbeenmade.Therefore,Section4supportisstilloperativeandrefusedasylumseekerswithchildrenarestilleligibleforSection95support.

2UnitedKingdom,AsylumandImmigration(TreatmentofClaimantsetc.)Act(2004),Sec.9(1)(b),http://www.legislation.gov.uk/ukpga/2004/19/pdfs/ukpga_20040019_en.pdf.


NICRAS’ Recommendations

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NICRAS’RecommendationsWith the findings thathaveemerged fromNICRAS’ survey, it is clear that refusedasylumseekersmustbetreatedwithgreaterdignityandrespect.

NICRASisthereforerecommendingthat:

FortheNorthernIrelandHousingExecutive;

• Refused asylum seekers shouldhave equal access to emergency accommodationwith the Housing Executive and to hostels run by publicly funded charities inNorthernIreland.

• Staff shouldbe fully trained tounderstandand respond to theneedsof refusedasylumseekers.

FortheHealthandSocialCareBoard;

• Staff shouldbe fully trained tounderstandand respond to theneedsof refusedasylumseekerswithdependantsundertheageof18.

• Material concerning the rightsof refusedasylumseekerswithdependantsundertheageof18shouldberoutinelydistributedamongstaff.

• Refusedasylumseekersshouldbeassignedcaseworkersuponreceivingnegativedecisions, who can put together multidisciplinary care plans that take effectimmediatelyaftertheyareevictedfromNASSaccommodation.

FortheHomeOffice;

• When receiving a negative decision, refused asylum seekers should also receiveclearandconciseinformation,intheapplicant’sprimarylanguagewherepossible,explainingtheirrighttoaccommodationandthepracticalitiesofobtainingit.

• ThedecisionmakinginrespecttoSection95andSection4applicationsshouldberegularlyreviewedwiththeaimofreducingtheamountofnegativedecisionsthatareoverturnedonappeal.

FortheUnitedKingdomgovernment;

• ThenewSection95A support containedwithin the ImmigrationAct 2016 shouldnotcutthestatutorysupportthatrefusedasylumseekerscurrentlyreceive.

• Section 95 support should not end 21 days after a negative decision isadministered,butshouldcontinueonan‘interimbasis’untiltheHomeOfficehasdelivered its decision in respect to an individual’s Section 4/Section 95Aapplication.

10

FortheNorthernIrelandExecutive;

• Apanel shouldbeestablished that canprovideamechanism for refusedasylumseekers to give feedback to the relevant government departments and publicbodies.

• TheExecutiveshouldlobbytheUnitedKingdomgovernmentandmakeitclearthatitwillnolongeracceptrefusedasylumseekersbeingforcedintodestitution.


CHAPTER ONE

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CHAPTERONE

Introduction

Apersonbecomesa refusedasylumseekerwhen theirapplication toclaimasylum in theUnitedKingdomisturneddownbytheHomeOffice.Rejectinganindividual’sasylumclaimsimply means that they cannot remain in the United Kingdom as a refugee. In suchcircumstances an individual only has two real options available to them, either they canappealthedecisionortheycanvoluntarilyreturntotheirhomecountry.Iftheychoosetodoneitheroftheseoptions,theHomeOfficewilltakestepstohavethemremovedfromtheUnitedKingdom.Refused asylum seekers face immenseuncertainty, as their continuing ability to reside intheUnitedKingdomisthrownintodoubt.Thepressuretheyareunderisfurtherincreasedby the challenges they face in securing basic needs such as food and accommodation.NICRAS’ membership is made up of approximately 600 refugees and asylum seekers,representingahighproportionofNorthernIreland’srefugeeandasylumseekercommunity.NICRAS’ staff and volunteers are therefore acutely aware of the difficulties that manyrefusedasylumseekersstrugglewith.In order to identify and develop a greater understanding of the issues that are sharedamongthisgroupofpeople,NICRASsurveyed29refusedasylumseekerslivinginNorthernIreland.Thequestionnairecoveredissuessuchasthelengthoftimethattherespondentshave spent in theasylumprocess,whether theyhavebeenhomelessduring their time inNorthernIrelandandwhethertheirlivingsituationswereaffectingtheirhealth.Asthisreportwillillustrate,thesurveymadekeyfindingsonthehighrateofdestitutionandhighpercentageofthosesurveyedwhowerelivinginconditionsthathavehadanadverseimpactontheirhealth.Itisalsoclearthatwhilethevastmajorityoftherespondentswerewillingtoapproachacharityforassistance,bycompletecontrast,onlyasmallminorityhadsoughtthehelpthattheywereentitledtoreceivefromsocialservices.The Immigration Act 2016 contains provisions that, when fully enacted, will put furtherlimitationsonthesupportthat isavailabletorefusedasylumseekers. However, the first-handaccountswithinthisreportareaclearindicationthatmanyrefusedasylumseekersarestrugglingtogetbyasitis.Thereportdemonstratesthatthegovernment’scurrentpolicytowards refusedasylumseekersbreaches internationalhuman rights law. Therefore, thegovernmenthas to change its approach towards this groupofpeople,withprioritybeinggiventotheirhumanrightsratherthantheirstatusasrefusedasylumseekers.

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CHAPTERTWO

WhatisDestitution?

For refugees, asylum seekers and refused asylum seekers living in the United Kingdom,destitutionisanalltoocommonconcern.AreportbytheBritishRedCrossfoundthattherateofdestitutionamongasylumseekers in theUnitedKingdomreached record levels in2015, as more than 9,000 asylum seekers were estimated to be living in situations thatamountedtodestitutionduringthatyear.3 However,thisfigure lookssettohaverisen in2016, as the British Red Cross reported a 16% increase in the amount of refugees andasylum seekerswho used the charity’s destitution services between January and June ofthatyear.4

According to Section95(3)of the ImmigrationandAsylumAct 1999, an individualwill beconsidereddestituteifheorshe;

1. Doesnothaveadequateaccommodationoranymeansofobtaining it (whetherornothisorherotheressentiallivingneedsaremet);or

2. Hasadequateaccommodationorthemeansofobtainingit,butisunabletomeethisorherotheressentiallivingneeds.5

Destitution is givena further, andperhapsmore simple,definition in theAsylumSupportRegulations2000,asitprovidesthatanindividualwillbeconsidereddestituteifheorshedoesnothaveadequateaccommodationortheabilitytomeetessentiallivingneedsfor14days.6

Refugeesandasylumseekersarevulnerable todestitutionatany timeduring theasylumprocess. A reportby theHouseofCommonsHomeAffairsCommitteemade it clear thatdestitution can occur before, during and after the asylum process has been completed,statingthat;

“Peopleinallstagesoftheasylumsystemexperiencedestitution:3BritishRedCross,PoorHealth,NoWealth,NoHome:ACaseStudyofDestitution(2016)http://www.redcross.org.uk//~/media/BritishRedCross/Documents/About%20us/South%20Yorkshire%20destitution%20report.pdf.4BritishRedCross,DestitutionontheRiseamongRefugeesandAsylumSeekers(2016)http://www.redcross.org.uk/en/About-us/Media-centre/Press-releases/2016/July/Destitution-on-the-rise-among-refugees-and-asylum-seekers.5UnitedKingdom,ImmigrationandAsylumAct(1999),Section95(3)http://www.legislation.gov.uk/ukpga/1999/33/section/95.6UnitedKingdom,AsylumSupportRegulations(2000),p.6http://www.legislation.gov.uk/uksi/2000/704/pdfs/uksi_20000704_en.pdf.

CHAPTER TWO


14 1513

• Thoseawaitingadecisioniftheyareunabletoaccesssupport;• Thosewhoseappealrightsarecurrentlyexhaustedbutfailtoreturntotheircountry

oforigin,wholoseallsupportandareevictedfromaccommodation21daysafterafinalrefusal;and

• Thosewhohavebeengrantedleavetoremainandthereforehave28daystoleaveaccommodation,butareunabletoaccessmainstreamsupportbecauseNationalInsurancenumbers,benefitsandhousingapplicationsarenotprocessedwithinthistimeframe.”7

TheReasonsforDestitutionThesupportthattheUnitedKingdomgovernmentprovidestorefugeesandasylumseekersplaces them into what is often described as “enforced destitution.”8 Current legislationconcerning refugees and asylum seekers restricts their access tomoney, accommodationandemployment,meaningthatthisgroupofpeoplehavetofacedifficultiesobtainingbasicessentialsalmostexclusivelybecauseofthegovernment’simmigrationandasylumpolicies.

ThoseawaitinganasylumdecisionIf asylumseekersareat riskofdestitutionduring theasylumprocess theyareentitled toreceive financial support from theUnitedKingdomgovernment. Considering that asylumseekerscannot legallyobtainemployment in theUnitedKingdomand theasylumprocesswill commonly takebetweenone to twoyears tocomplete,destitution ishighly likely forthosewho encounter delays or erroneous decisions regarding their financial support.9 Areport produced by the Scottish Poverty Information Unit found that 13% of the 115destitute individuals surveyed were asylum seekers waiting for a final decision regardingtheir refugee status.10 Of those 13%, five individuals became destitute because ofadministrativedelaysinprovidingthepaymentstheyweredue.11Anotherfivehadtoliveindestitution because the United Kingdom Border Agency had delayed deciding upon theirinitialasylumclaims.12ThosewhohavebeengrantedrefugeestatusA report produced by NICRAS in January 2016 entitled ‘The Effects of Destitution onRefugeesinNorthernIreland’focusedonthedestitutionexperiencedbythosewhoobtain

7HouseofCommonsHomeAffairsCommittee,Asylum,SeventhReportofSession2013-14HC71(2013)http://www.publications.parliament.uk/pa/cm201314/cmselect/cmhaff/71/71.pdf,p.37.8E.g.,RefugeeCouncilBriefing,TheExperiencesofRefugeeWomenintheUnitedKingdom(2012)https://www.refugeecouncil.org.uk/assets/0001/5837/Briefing_-_experiences_of_refugee_women_in_the_UK.pdf,p.3.9GhersonImmigration,HomeOfficeBacklogLeavesAsylumSeekersinLimbo(2014)http://www.gherson.com/blog/home-office-backlog-leaves-asylum-seekers-in-limbo/.10ScottishPovertyInformationUnit,Trapped:DestitutionandAsyluminScotland(2012)http://www.rst.org.uk/wp-content/uploads/2012/11/Trapped-destitution-and-asylum-final.pdf,p.23.11Ibid,p.24.12Ibid.

14

refugee status.13 After conducting extensive interviews with ten refugees in NorthernIreland,thereportwasabletoidentifyproblemswiththecurrentlegislationandpracticesof government bodies such as the Home Office, that directly cause destitution amongrefugees.

Such problems include the fact that asylum seekers are evicted from National AsylumSupport Service (NASS) accommodation just 28 days after they have obtained refugeestatus.Theyareevictedeveniftheyhavenotsecuredalternativeaccommodationandso,duringthis28day‘graceperiod’,refugeesareexpectedtoeithersecuretheirownprivatehousing,obtainsocialhousingortemporaryaccommodation.Problemswithdestitutionarefurtherincreasedbythedifficultiesrefugeesexperiencewhentheytrytoobtainbenefits,asthey frequently encounter delays in processing their applications and the receipt of theirfirst payments. The participants in NICRAS’ report spoke of having to wait weeks andsometimesmonths,fortheirbenefitsapplicationstobefullyprocessed.Thisisproblematicconsideringthatrefugeeslosetheirentitlementtothefinancialsupporttheywerereceivingasasylumseekersassoonastheir28day‘graceperiod’comestoanend.

RefusedasylumseekerswhofailtoreturntotheircountryanddonotqualifyforSection4supportAs theHomeAffairsCommittee identified, refusedasylumseekers faceanespeciallyhighrisk of becoming destitute when their right to appeal has been exhausted and they aresimplyexpectedtoleavetheUnitedKingdom.Forsomerefusedasylumseekersreturningto their home country is not a viable option either because of security reasons or thejourneyisnotpracticallypossible.Asthenextchapterofthisreportwillillustrate,insuchscenariosrefusedasylumseekerscanapplyforwhat iscommonlyreferredtoasSection4support,whichconsistsofaccommodationandAzureorAspencardswithwhichtheycanspend a weekly amount on food and other essentials. However to qualify for Section 4support, refused asylum seekers have to providedocumentary evidence that proves theysatisfythecriteriacontainedwithintheImmigrationandAsylumRegulations2005. This isobviously difficult for those who do not have the required documents or cannot accessadviceinrespecttocompletingthenecessaryapplicationsforms.14Refusedasylumseekerswho fail toprove that theyareeligible for Section4 supportwillnot receiveany formoffinancial support from the United Kingdom government and therefore live in destitutionwhiletheyremaininthecountry.SomerefusedasylumseekerschoosenottoapplyforSection4support“becausetheyarefrightened of what will happen to them if they return home”.15 Those in this positionchoosetoliveindestitutionintheUnitedKingdomratherthanapplyforSection4supportand begin the process of returning to a country in which they feel their lives will be indanger.13NorthernIrelandCommunityofRefugeesandAsylumSeekers,TheEffectsofDestitutiononRefugeesinNorthernIreland(2016)http://naccom.org.uk/wp-content/uploads/2011/08/The-Effect-of-Destitution-on-Refugees-in-NI-NICRAS.pdf.14BritishRedCross,NotGoneButForgotten(2010)https://stillhumanstillhere.files.wordpress.com/2009/01/oxfam_coping_with_destitution.pdf,p.9.15Ibid.

Report of the Northern Ireland Community of Refugees and Asylum Seekers (NICRAS) - March 2017Living in Limbo: The Life of Refused Asylum Seekers

16 1715

TheEffectsofDestitution

PhysicalHealthAsdestituterefugees,asylumseekersandrefusedasylumseekersareforcedtolivebelowthepoverty line, theirphysicalwellbeing isputatsevererisk. Evenwhenasylumseekersareprovidedwiththefullstatutorysupportthattheyareentitledtoo,itisstillnotsufficientto meet their daily needs. For example, the weekly amount that single asylum seekersreceivefromtheUnitedKingdomgovernmentamountstoonly£5.28aday.Thismakesitextremelyhardforthemtomaintainasteadydiet,asfreshandhealthyfoodissimplytooexpensive. Indeed, a report produced by the Positive Action for Refugees and AsylumSeekers(PAFRAS)concludedthat“Destitutionisinstitutionalisedbytheasylumsystemandthemalnourishmentthatpeoplesufferislocatedwithinthispolicymovement”.16Thefactthatmanyrefugeesandasylumseekerswillalsoexperienceperiodsofhomelessness,orbeplaced into accommodation with inadequate cooking facilities or hot water, means thatpreparingtheirownmealsisoftennotanoption.17InareportbytheBritishRedCross,59%oftheparticipantswhohadbeendestituteforovera year stated that their healthhadgotworseduring this period,withproblems includinghighbloodpressure, recurringmigraines that led todisrupted sleepand liverproblems.18Whilerefugeesandasylumseekershaveaccesstofreehealthcare intheUnitedKingdom,theproblemsthatareassociatedwithdestitution,suchasmalnutritionandstress,canhaveamorepronouncedeffectuponanalreadyvulnerablegroupofpeople.

MentalHealthLivingindestitutionoftenhasaseriousimpactonthementalhealthofanindividualandhisorherfamily.In‘TheEffectsofDestitutiononRefugeesinNorthernIreland’NICRAS’foundthatstress,anxietyanddepressionwasoftenreportedbytheinterviewees,asthey“clearlystatedtheemotional impactoftheirsituations”.19 Forexample,oneoftheparticipantsinNICRAS’ report stated that his wife experienced mental health problems during the sixmonths thathis family lived indestitution.20 Thehardship that the family enduredput astrain on his relationship with his wife and they considered getting a divorce.21 Theirrelationshipimprovedaftertheybegantoreceivefinancialsupportand“someofthestressoftheircircumstanceswasreduced”whentheirtimeindestitutioncametoanend.

16PositiveActionforRefugeesandAsylumSeekers,ThePoliticalEconomyofMalnutrition(2009)http://www.pafras.org.uk/wp-content/uploads/2010/09/10_The_political_economy_of_malnutrition.pdf,p.2.17Ibid,p.3.18Supra,note3,p.29.19Supra,note13,p.7.20Ibid,p.24.21Ibid.

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DomesticAbuseandExploitationHaving little financial stability and housing security, makes refugees and asylum seekersacutely vulnerable tobeing trapped intoabusive relationships and falling victim to sexualexploitationandhumantrafficking.Destitutioncandrivebothmenandwomenintosocialisolation and leave them reliant on partners who take advantage of their precariouscircumstances. After hearing evidence concerning domestic violence among destitutefemalerefugeesandasylumseekers,theJointCommitteeonHumanRightsconcludedthat“[w]e find itworrying that currentHomeOfficepolicies leavepeopledestituteduring theasylumandimmigrationprocessandthatthisinitselfleadstowomenbeingatagreaterriskofbeingavictimofviolence”.22IntegrationLivingindestitutionalsolimitstheabilityofrefugeesandasylumseekersto integrateintosociety. In accordance with United Kingdom law, asylum seekers are prohibited fromseeking employment and therefore cannot earn any money from their own enterprises.However, refugees still have difficulties finding employment as they struggle to secureaccommodation, education and sufficient financial support. Having a lack ofmoney alsolimitsanindividual’sabilitytosocialiseorpursueanyhobbiesorinterests.Thisinturncanaffectanindividual’smentalhealthformanyyears.Therefore,livingindestitution,beitforafewmonthsoryears,canhavenegativeconsequencesforthe longtermfutureofmanyrefugeesandasylumseekers.IncreasedRiskofAbscondingRefused asylum seekerswhohave their financial support taken away from themare at aheightened risk of going ‘underground’, as they no longer receive any form of statutorysupportandmaychoosetolivewithfriendsandfamilywithoutappearingonanyrecords.ThiswashighlightedbytheCoramChildren’sLegalCentreasitstatedthat“[m]anyparentswill do anything – even expose themselves (and their children) to significant risks in theshortterm–inordertoincreasethepossibilityoftheirchildrenbeingabletostay(andbe‘protected’) in the long-term”.23 However, this puts them in a dangerous situation,particularlyiftheyarevulnerableorhaveyoungchildren,astheauthoritiesdonothaveanywayofensuringthattheyarelivinginsafeconditions.

22JointCommitteeonHumanRights,ViolenceAgainstWomenandGirls,SixthReportofSession2014-15HL106HC594(2015),http://www.publications.parliament.uk/pa/jt201415/jtselect/jtrights/106/106.pdf,p.55.23CoramChildren’sLegalCentre,HomeOfficeconsultation‘Reformingsupportforfailedasylumseekersandotherillegalimmigrants’response(2015)http://www.childrenslegalcentre.com/userfiles/Home%20Office%20consultation%20on%20support%20for%20failed%20asylum%20seekers_FinalSep2015.pdf,p.4.

Living in Limbo: The Life of Refused Asylum SeekersReport of the Northern Ireland Community of Refugees and Asylum Seekers (NICRAS) - April 2017

CHAPTER THREE

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17

CHAPTERTHREE

CurrentRefusedAsylumSeekerSupport

“Thisisacountryoflawhowcanpeoplebetreatedlikethat?”

TheSupportProvidedWhileAwaitinganAsylumDecisionWhendestituteasylumseekers submitanasylumapplication in theUnitedKingdomtheycanthenapplyforwhatiscommonlyreferredtoasSection95.

WhatHappensWhenanAsylumClaimisRefused?Ifanindividual’sasylumapplicationisturneddownbytheHomeOffice,theonlytwoviableoptions available to them are to either appeal or accept the decision. If they choose toappeal the decision, they will still be entitled to receive Section 95 support, as they willcontinuetobeasylumseekers.However,iftheydecidenottoappealthedecisionortheyhave exhausted the appeal process, their Section 95 support will end 21 days after thenegativedecisionisdeliveredandtheywillbeexpectedtoleavetheUnitedKingdomeithervoluntarilyorbyforce.

This means that only a short time after receiving a negative decision, refused asylumseekerswill be evicted fromNASS accommodation and cease receiving financial support.The Home Office runs various Assisted Voluntary Return programmes that help refusedasylumseekersapply for traveldocumentsand flights to theirhomecountry. Thosewhoare eligible can also receive £2,000 from the Home Office to help them obtain

Section95Support

UnderSection95supportadestituteasylumseekerwillreceive;

1. £36.95incashperweek.2. NationalAsylumSupportService(NASS)accommodation.3. Anextra£3perweekiftheapplicantispregnant,hasababyunder1yearoldor

achildagedbetween1and3.4. Aone-offpaymentof£300forpregnantmotherswhoareexpectingtogive

birthwithin8weeks,orforthosewhohaveababyunder6weeksold.

18

accommodation, finda joborstartabusiness in theirhomecountry. However itwillnotalwaysbefeasibleforrefusedasylumseekerstoreturntotheirhomecountry.

WhyCan’tRefusedAsylumSeekersReturntoTheirHomeCountry?

“Wefledfromourcountries,ifIstayedIwoulddie”

Even though asylum seekers may have their asylum applications turned down, thecircumstances that made them leave their home country may still persist. A report byRefugeeActionfoundthat48%oftherefusedasylumseekerstheyintervieweddidnotwantto return to their home country because “they believed they would be killed or‘disappear’”.24 Thefearthatrefusedasylumseekersstill face isexemplifiedbyoneoftheintervieweeswhostatedthat“Theywillkillme.Myunclewillkillmeforbringingshameonourfamilyandmylover’sfamilywillkillmeforbringingshameontheirfamily”.25ThishighlightsoneofthemajorproblemswiththeHomeOffice’sAssistedVoluntaryReturnprogrammes in that they fail to take into account the hostile environments that refusedasylumseekersareexpected to return to. For thosewho facepersecution in theirhomecountry due to their sexuality, for example, being returned back with little guarantee oftheir safety is simply not an option. The same is also true for those who flee countriesaffectedbylonglastingwarandpoliticalupheaval.ThisisillustratedinanOxfamresearchreportpublished in2011, as it states that “[t]wooutof threeof thosewhoaredestituteoriginatefromsomeofthemosttroubledcountriesintheworld,countriescharacterisedbyconflict, political instability orwidespread human rights abuses, including theDemocraticRepublic of Congo, Eritrea, Iran, Iraq, Somalia, Sudan,Uganda and Zimbabwe”.26 Indeed,this is reflected in the field of respondents for this present report as they originate fromcountries includingSomalia,Syria,Zimbabwe,SudanandNigeria. OneoftherespondentsfromtheDemocraticRepublicofCongo(DRC)statedthat“[w]efledfromourcountries,ifIstayedIwoulddie.”Refusedasylumseekersmayalsonothaveanyfamily,friendsorhometogobacktointheirhome country; issues that the Assisted Voluntary Return programmes do not address.Indeed a refused asylum seeker from the DRC told Refugee Action that “I can’t return.WherewouldIlive?Thegovernmenthastakenallmyfamily’shouses.Thereisnooneleftinmycountry”.27Theremayalsobepracticalproblemsthatrenderrefusedasylumseekersunabletotravelsuchasdifficultiesobtainingtherequireddocumentation.ForexampletheAsylum Support Appeals Project found that citizens from Eritrea, Ethiopia, Iran, Algeria,

24RefugeeAction,TheDestitutionTrap(2006)https://stillhumanstillhere.files.wordpress.com/2009/01/ra_the_destitution_trap2.pdf,p.95.25Ibid.26CentreforMigrationPolicyResearch,CopingwithDestitutionSurvivalandLivelihoodStrategiesofRefusedAsylumSeekersLivingintheUK(2011)https://stillhumanstillhere.files.wordpress.com/2009/01/oxfam_coping_with_destitution.pdf,p.17.27Supra,note24,p.96.

Living in Limbo: The Life of Refused Asylum Seekers


2019

China, Palestine and Somalia often encountered problems obtaining passports orEmergency Travel Documents from their respective embassies or High Commission.28Refusedasylumseekersmayalsobeunabletotravelbacktotheirhomecountryduetoaphysicalormentalconditionthateithertheyoramemberoftheirfamilyissuffering.

Section4Support

When refused asylum seekers are unable to return to their home country and thereforehavetoremain intheUnitedKingdomforan indefiniteperiod, theycanapply forwhat iscommonlyreferredtoasSection4support.

TobeeligibleforSection4supportarefusedasylumseekermusteitherbe;

1. Taking all reasonable steps to leave theUnited Kingdomor place themselves in aposition in which they are able to leave the United Kingdom. This could includecomplyingwithattemptstoobtainatraveldocumenttofacilitatedeparture.

2. UnabletoleavetheUnitedKingdombyreasonofaphysicalimpedimenttotravelorforsomeothermedicalreason.

3. UnabletoleavebecauseintheopinionoftheSecretaryofStatethereiscurrentlynoviablerouteofreturnavailable.

4. Havetheirasylumapplicationintheprocessofajudicialreview,or5. Beinsuchapositionthatthegovernmentwouldbeinbreachofhumanrightslawif

itdidnotprovidetheindividualwithaccommodation.29

However,ifarefusedasylumseekerhasdependants,theninaccordancewithsection94(5)of the Immigration and Asylum Act 1999, the family can continue to receive Section 95support. Theycanreceivethissupportforas longasthechildisunder18. However,this

28AsylumSupportAppealsProject,UnreasonablyDestitute?(2008)http://www.asaproject.org/uploads/unreasonably_destitute.pdf,p.8-9.29UnitedKingdom,TheImmigrationandAsylum(ProvisionofAccommodationtoFailedAsylumSeekers)Regulations(2005),Regulation3(2),http://www.legislation.gov.uk/uksi/2005/930/regulation/3/made.

Section4Support

UnderSection4supportadestituterefusedasylumseekerwillreceive;

1. £35.39perweekviaapaymentcard.2. NationalAsylumSupportService(NASS)accommodation.3. Anextra£3perweekiftheapplicantispregnant,hasababyunder1year

oldorachildagedbetween1and3.4. Aoneoffpaymentof£250forpregnantmotherswhoareexpectingtogive

birthwithin8weeks,orforthosewhohaveababyunder6weeksold.

20

supportcanbe removed fromthe family if it isbelieved that theyarenot takingsteps toleavetheUnitedKingdom.30

OverridingProblemswiththeCurrentSystemOneofthemajordisadvantageswiththecurrentset-upisthatrefusedasylumseekershavetoapply forSection4support - insteadof itbeingautomaticallyprovided to them. WithSection 95 support ending only 21 days after negative decisions are delivered, refusedasylumseekershavetonavigatetheirwaythroughtheapplicationprocess inaveryshortperiodoftime.

Many,however,areunawareoftheirrighttoSection4support.31Thosewhodoapplycanbe facedwith delays in receiving a response from theHomeOffice,with a report by theAsylumSupportAppealsProjectfindingthat56%ofitsrespondentshadtowaitmorethantwoweekstoreceiveadecision,while23of thosesurveyedhadtowaitbetweenninetotwenty-one weeks.32 The Home Office will reject applications for reasons including thelength of time an individual has gone without support before applying, demonstrating adisregard for the fact that a change of circumstances can quickly force a refused asylumseekerintodestitution.33TheAsylumSupportAppealsProjectfoundthat82%ofthosewhoappealed their negative support decisions had their verdicts overturned, indicating theflawednatureoftheHomeOffice’sinitialdecisionmaking.34

However,eventhosewhosecureSection4supporthavefaceddifficultiesinspendingwhattheyareentitledto.AspencardswereintroducedinNorthernIrelandonthe20thFebruary2017,replacingthemuchmalignedAzurecardswhichmanyrefusedasylumseekersfoundto be frustrating and degrading to use. Instead of receiving their weekly payments inphysicalmoney,therecipientsofSection4supporthadtheirpaymentsstoredentirelyonAzurecardsthattheycouldonlyspendoncertainitemsandincertainshops.ThiscashlesssystemlefttherecipientsentirelydependentontheirAzurecardnotgettinglost,stolenorfailingtowork.However,inareportbytheBritishRedCross,85%oftheorganisationsthatthey surveyed stated that their client’s cards had not worked to some extent in the 6monthsleadinguptothesurvey.35Aswellasthis,58%oftherespondentsstatedthattheirclientswereembarrassedtoa largeextentbyhavingtousethecard.36 Asimilarlycritical

30Supra,note2.31Supra,note26,p.26.32AsylumSupportAppealsProject,NoCredibility:UKBADecisionMakingandSection4Support(2011)http://www.asaproject.org/uploads/no-credibility.pdf,p.9.33Ibid,p.8.34Ibid,p.3.35BritishRedCross,TheAzurePaymentCard,theHumanitarianCostofaCashlessSystem(2014)http://www.redcross.org.uk/~/media/BritishRedCross/Documents/About%20us/Research%20reports%20by%20advocacy%20dept/The%20Azure%20payment%20card%20report.pdf,p.9.36Ibid,p.36. 21


22 2321

reportbytheAsylumSupportPartnershipconcludedthatthecardsystemisan“expensive,inappropriateandinhumaneformofsupport”.37ThenewAspencardisundoubtedlyanimprovementonAzurecards.TheweeklypaymentsarestillstoredonAspencards,butusingchipandpintechnology,refusedasylumseekerscantakephysicalmoneyoutatATMs.Therearenorestrictionsonhowmuchmoneytheycantakeoutatatime,althoughuserswillobviouslynotbeabletotakeoutmoremoneythantheirtotalweeklypaymentsamountto.Therearealsonorestrictionsonwhatitemstheycanpurchaseandwhatshopstheycanspendtheirmoneyin.Initially,Aspencardswillonly be provided to those who are receiving Section 4 support for the first time andgraduallyreplacetheAzurecardsthatwillcontinuetobevalidforexistingSection4users.Whiletheydorepresentapositivedevelopment,refusedasylumseekerswillstillbeheavilyreliantontheirAspencardnotgettinglost,stolenorfailingtowork.

Reform–TheImmigrationAct2016

The Immigration Act 2016 received Royal Assent on the 12th May 2016. Amending theImmigrationandAsylumAct1999,thepurposeofthislegislationistoensurethatstatutorysupport isonlyprovidedtorefusedasylumseekers“whoaredestituteandfaceagenuineobstacletoleavingtheUK”.38

Inaccordancewith theAct,Section4 supporthasbeen repealedand replacedbySection95Asupport.Whilethespecificelementsofthisnewsupportareyettobeannounced,thegovernmenthasmade it clear that itwill onlybe available to “thosewho face a genuineobstacletoleavingtheUK”.39UnlikewithcurrentSection4support,refusedasylumseekerswillnothave the right toappeal if theHomeOfficedecides to reject theirapplication forsupport. This is because the applicant’s reason for being unable to leave the UnitedKingdom should be “straightforward matters of fact”.40 To explain this point, thegovernmentprovidestheexampleofarefusedasylumseekerprovidingmedicalevidencetosupporthisapplication.ThismeansthatSection95Asupportwillprobablyrequireevidencethatismoreeasilyquantifiableifanapplicantistobesuccessfulinobtainingit.

Theothermajorchange is thatrefusedasylumseekerswithdependantswillno longerbeabletoreceiveSection95supportbutwillinsteadonlybeeligibleforthenewSection95Asupport. However, the Act will not apply retrospectively, meaning that refused asylumseekerswhoarecurrentlyreceivingSection95andSection4supportcancontinuetodoso.

37AsylumSupportPartnership,YourInflexibleFriend:TheCostofLivingWithoutCash(2010)https://stillhumanstillhere.files.wordpress.com/2009/01/your-inflexible-friend-the-cost-of-living-without-cash.pdfp.7.38GOV.UK,ImmigrationAct2016:Factsheet(2016)https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/537248/Immigration_Act_-_Part_5_-_Support_for_Certain_Categories_of_migrants.pdf.39Ibid.40Ibid.

22

ItisimportanttonotethatthispartoftheActhasnotbeenenactedyetandwillonlydosoafter a Commencement Order has been passed. Therefore Section 4 support is still theoperative statutory support for refused asylum seekers who do not have dependants.Nonetheless, the intention is to make life even more difficult for future asylum seekerswhoseclaimshavenotbeenupheld.


CHAPTER FIVE

24 25

CHAPTER FOUR

23

CHAPTERFOUR

NICRAS’SurveyMethodology

Inthefinalmonthsof2015NICRASconductedasurveyamong29refusedasylumseekersinorderto investigatehowtheyweremanagingundertheUnitedKingdom’scurrentasylumlegislation.TherespondentscomefromthosewhowereusingNICRAS’adviceandfoodbagservices,andwerewilling tocomplete the surveyquestionnaire.41 NICRASalsoputoutarequestforparticipantsonitsFacebookpage,whichcanbeaccessedbymembersandnon-membersalike.

The questionnaires were designed in consultation with NICRAS’ staff and volunteers andincludequantitativeandqualitativequestionstoallowtherespondentswrittentestimoniesto be recorded, in addition to numerical data. The respondents were guaranteed theirconfidentialityandthattheircompletedquestionnaireswouldbekeptsafely.

Ofthe29respondents;

• 19weremales,3werefemaleand7didnotspecifytheirgender.• 13wereagedbetween25to34,11werebetween35to49,4werebetween50to

64and1didnotspecifytheirage.• The respondents were from a variety of countries, the most common being

Zimbabwe(8),Sudan(5)andSomalia(4).

41SeeAnnexA.

23

CHAPTERFOUR

NICRAS’SurveyMethodology

Inthefinalmonthsof2015NICRASconductedasurveyamong29refusedasylumseekersinorderto investigatehowtheyweremanagingundertheUnitedKingdom’scurrentasylumlegislation.TherespondentscomefromthosewhowereusingNICRAS’adviceandfoodbagservices,andwerewilling tocomplete the surveyquestionnaire.41 NICRASalsoputoutarequestforparticipantsonitsFacebookpage,whichcanbeaccessedbymembersandnon-membersalike.

The questionnaires were designed in consultation with NICRAS’ staff and volunteers andincludequantitativeandqualitativequestionstoallowtherespondentswrittentestimoniesto be recorded, in addition to numerical data. The respondents were guaranteed theirconfidentialityandthattheircompletedquestionnaireswouldbekeptsafely.

Ofthe29respondents;

• 19weremales,3werefemaleand7didnotspecifytheirgender.• 13wereagedbetween25to34,11werebetween35to49,4werebetween50to

64and1didnotspecifytheirage.• The respondents were from a variety of countries, the most common being

Zimbabwe(8),Sudan(5)andSomalia(4).

41SeeAnnexA.

24

CHAPTERFIVE

SurveyFindings

TheLengthofTimeintheAsylumProcess

“Uncertainofoutcome.Can’tplan.Inahostel–nothingincommonwithothers.Cangohungry.”

InOctober2015astudyconductedbyDetailDatafoundthatinNorthernIrelanda‘recordhigh’ of nearly 500 asylum seekers were waiting for decisions from the Home Office inrespect to their asylum status.42 The report makes it clear that this backlog is gravelyconcerning considering the inadequate care that the applicants receive while awaiting adecision.43

AsFigure1belowdemonstrates,NICRAS’surveyhasalsofoundthattheasylumprocessinNorthernIrelandisextremelylengthyandfilledwithunduedelays.63%oftherespondentsreportedspendingover24monthswaitingforadecisionregardingtheirasylumstatusfromthe Home Office. A further 21% reported waiting between 12 to 24 months for such adecision, meaning that 84% of those surveyed had had to wait at a least a year beforediscovering if their asylum application had been accepted or refused. Three of therespondents stated that it had taken three and half years before they received a finaldecision fromtheHomeOffice,while twoother respondents reportedwaiting fouryears.The UK government claims that an asylum “application will usually be decided within 6months” but this present survey has found that only 6% of the respondents received adecisionwithinthatlengthoftime.44

“Iamahumanbeingbutcan’twork,gotocollegeorhaveahome.Needadecisionmade.”

42LindsayFergus,Newfiguresreveal500peopleseekingasyluminNorthernIreland(2015,TheDetail)http://www.thedetail.tv/articles/500-seeking-aslyum-in-northern-ireland.43Ibid.44GOV.UK,https://www.gov.uk/claim-asylum/decision.


26 2725

There has been a consistent rise in the number of asylum applications being made inNorthern Ireland every year and it can be safely assumed that this will continue in theforthcoming years.45 Therefore, it is clear on the basis of this survey’s findings that thebacklogof asylumcaseswhich theHomeOffice is already struggling tomanage,will onlycontinue to get worse. This is why it is imperative that action is taken to improve theefficiencyoftheapplicationprocess.

DestitutionamongstRefusedAsylumSeekers

“Eldermanwithouthouse,tiring,getacold,especiallybecauseitisfreezing,lonelyandlost....Idon’thaveblankets

[or]hotfood”Onlyreceiving£36.95aweekwhilstbeingunabletoworkandacquirepublicsectorhousingmeansthatit ishighlylikelythatasylumseekerswillendurehardshipduringthecourseofmaking an asylum application. However, these difficult circumstances only increase forthosewhohavetheirapplicationsrefused.Thequantitativefindingsofthispresentsurvey,together with the personal testimonies, reveal a high level of homelessness and

45MichaelPotter,RefugeesandAsylumSeekersinNorthernIreland(2014,NorthernIrelandAssemblyResearchandInformationServiceResearchPaper),http://www.niassembly.gov.uk/globalassets/documents/raise/publications/2014/ofmdfm/6314.pdf,p.9.

6%9%

21%64%

LengthofTimeintheAsylumProcess

0-6months

6-12months

12-24months

24+months

Figure1:Lengthoftimeintheasylumprocess-fromthestarttothefinaldecision

26

vulnerability.24%ofthosesurveyedstatedthattheyhadenduredahomelessperiodofupto6months,whilst21%havebeenhomelessforover24months.

When the respondents were asked about their current situation regarding housing, thelikelihood of refused asylum seekers encountering adverse living conditions became veryapparent. 39%ofthosesurveyedcouldbedescribedasdestituteastheywererelyingonfriendstoprovidethemwithshelterorweresleepingonthestreets.

Therespondentswhowerelivingwithfriendsfrequentlydescribedlivingconditionswhichwereproblematic,exemplifiedbyoneindividualwhostatedthat“[t]hesituationaffectsmebecauselivingwithsomeonewithfamily,it’snoteasytheyneedtheirspaceanditstressesmesomuch,[I]amnotcomfortable”.Anotherrespondentreportedthathewasstayinginanovercrowdedhouseandthateventhelocalmosqueinwhichhesometimessleptdidnothaveenoughspaceforhim.

“Feellike[a]burden,stoppingfriend’slife”

This level of destitution corresponds with the findings that other reports have made inEnglandandWales.Forexample,asurveyconductedbytheBritishRedCrossin2016foundthat89%oftherespondentsweredestitutebytheendoftheasylumprocess.4673%ofthatgroup were refused asylum seekers who had been denied Section 4 support, had not

46Supra,note3,p.17.

23%

15%

6%21%

35%

PeriodofTimetheRespondentswereHomeless

0-6months

6-12months

12-24months

24+months

Nodata

Figure2:Periodoftimetherespondentswerehomeless


28 2927

applied for this support, or were waiting for Section 4 support to commence.47 Theheightenedlevelofdestitutionthatthesurveyreports isattributabletothefactthattheyalso considered an individual to be destitute if he or she was not receiving any form ofstatutorysupport.48

47Ibid,p.18.48Ibid,p.19.

6%

18%

6%

33%

37%

LivingSituaeonsattheTimeofBeingSurveyed

Hostel

NASS

Desvtute(street)Desvtute(livingwithfriends)Nodata

Figure3:Therespondent’slivingsituationsatthetimeofbeingsurveyed

28

SeekingAssistancefromSocialServicesandCharities

Figures4and5presentacontrastingpicture.Oftheninerespondentswhowereeligibleforassistance from social services in respect to their accommodation needs, only 3 actuallyapproached social services for this assistance. However, out of all 29 of the survey’srespondents, 79% of them had sought assistance from local charities in relation to theirhousingneeds.

Thisisproblematicconsideringthatsocialservices,whichinNorthernIrelandareprovidedby the Health and Social Care (HSC) Board, offer a viable solution for destitute refusedasylumseekerswithdependantsundertheageof18. InaccordancewithArticle3oftheUnitedNationsConventionontheRightsoftheChild,socialservicesareobligedtoensurethat the well-being of any child within the United Kingdom’s jurisdiction is protected,regardlessofthenationalityorasylumstatusofthechild’sparents.49 Italsorequiresthatthebest interestsofthechildshallbeaprimaryconsiderationofpublicandprivatesocialwelfareorganisations.Aspartofthis,socialservicesarerequiredtoensurethateachchildisresidingwithinadequateaccommodation.

Of the three respondents that did seek help from social services, none of them receivedsufficientassistance. Whenaskedtoexplainwhy,onerespondenttoldusthat“aslongasyoudon’thave[the] legalrighttostayinthecountrytheycan’tassist inanyway”. Giventhe respondent’s circumstances, this individual does have the legal right to stay in thecountry and is fully entitled to receive assistance from social services. Similarly, anotherrespondentwhoapproached theNorthern IrelandHousingExecutive forhelpwas turnedaway because he did not have a National Insurance number. Obviously being a refusedasylum seeker he did not have a National Insurance number, but the fact that he was

49UnitedNationsGeneralAssembly(UNGA),ConventionontheRightsoftheChild(1990),Art.3,https://353ld710iigr2n4po7k4kgvv-wpengine.netdna-ssl.com/wp-content/uploads/2010/05/UNCRC_PRESS200910web.pdf.

79%

6%15%

ApproachedaCharity

Yes

No

Nodata

Figure4:TherespondentswhoapproachedsocialservicesforassistanceFigure5:Therespondentswhoapproachedacharityforassistance(Ofthosewhowereeligibleforsuchassistance)

33%

67%

ApproachedSocialServices

YesNo


30 3129

destituteandresponsibleforayoungfamily,meantthatheshouldhavereceivedassistancefromsocial services. Theonlyother respondentwhoapproachedsocial serviceswasalsoturnedawaybystaffasthey“saidtheycan’tdonothing”.

While charities will do their upmost to assist refused asylum seekers with theiraccommodationneeds,highdemandandfundinglimitations,meansthattheyareinevitablyrestricted in theservices that theycanprovide. AsNICRASbecame increasinglyawareofthehighrateofdestitutionamongitsmembersitbegantoworkwithlocalpoliticiansandother local charities to try to secure alternative accommodation. This led to the SimonCommunitybeginningtoprovideaccommodationtorefusedasylumseekersintheirhostelsinBallymena,BelfastandLisburntowardstheendof2012.However,theSimonCommunityhasbeenunabletoacceptanymorerefusedasylumseekerssince2015.Themainreasonfor this was the fact that refused asylum seekers take so long to have their appealsprocessed,meaning that theywere staying in thesehostels for lengthy indefiniteperiodswhichinevitablycamewithafinancialburdenasitcoststhemapproximately£110perweektoputsomebodyup.Indeed 13 of the respondents, 45% of the total surveyed, stated that the charities theyapproached had been unable to assist them with their housing needs. However, theoverwhelming demand that is placed on charities could be lightened if social servicesprovidedthesupportthatmanyrefusedasylumseekersareentitledtoreceive.ThisiswhyitshouldbeapriorityfortheNorthernIrelandExecutivetoensurethatbothsocialservicesstaffandrefusedasylumseekersalike,areproperlyinformedofthisgroup’srighttoreceivehousingsupportfromsocialservices.How Refused Asylum Seekers are being affected Physically andMentally

“[I]havePTSD[PostTraumaticStressDisorder],threatofhomelessnessmakesitworse.”

79%of the respondents stated that their health has been affectedby the living situationthat they were in at the time of the survey, with a wide range of physical and mentalconditionsbeingreported.Ofthe29refusedasylumseekerssurveyed:

• 10statedthattheyweresufferingfromstress• 6reportedexperiencingdepression• 2toldusthattheirforgetfulnesswasgettingworse.

These figuresarenot including the respondentswho reportedbeingaffectedmentallybytheir living circumstances but did not state that they were suffering from a specific

30

condition,exemplifiedby the individualwhowrote thathehas “nopeaceofmind,neverknowifyou’llbesleepingon[the]streets.”

“[It’s]likelivingwith[an]axebehindyourhead,stresstoomuch”

There was also a variety of physical conditions reported, including respiratory problems,malnutrition, and liver disease, whilst two of the respondents stated that they had highbloodpressure.

Whatmanyoftherespondentsmadeclearisthattheseconditionswerebeingworsenedbythe circumstances they found themselves in. For example, one individualwrote that theuncertaintysurroundinghisasylumapplicationandhavingtoliveinahostelwherehehadnothingincommonwiththeotherinhabitantswasverystressfulandcausinghim“anxiety”.Anotherrespondent,whowasdestituteatthetimeofbeingsurveyed,wrotethatthelackofsleepthathewasenduringcausedhimtobeweakduringtheday.

TheRefugeeCouncilandtheBritishRedCrosshavealsoproducedreportsthatdemonstratehow the asylumprocess, togetherwith the destitution that refugees and asylum seekersoften suffer,has seriousconsequences for theirhealth.50 TheRefugeeCouncil concludedthat“[o]nceintheUK,thestresscausedbythepoverty,livinginahostileenvironmentandattempting to adapt to a new society can themselves cause or contribute to significantmentalhealthproblems”.51 InasurveyproducedbytheBritishRedCrossin2015,59%of

50RefugeeCouncil,FirstDoNoHarm:DenyingHealthcaretoPeopleWhoseAsylumClaimsHaveFailed(2006)http://www.refugeecouncil.org.uk/assets/0001/7074/Health_access_report_jun06.pdf,andSupra,note3.51RefugeeCouncil,FirstDoNoHarm:DenyingHealthcaretoPeopleWhoseAsylumClaimsHaveFailed(2006)http://www.refugeecouncil.org.uk/assets/0001/7074/Health_access_report_jun06.pdf,p.10.

76%

9%

15%

WhetherLivingCondieonsAffectedHealth

Yes

No

Nodata

Figure6:Therespondentswhosaidtheirlivingconditionsaffectedtheirhealth


32 33

CHAPTER SIX

31

the respondentswho had been destitute for over a year, reported that their health hadworsenedduringthisperiod.52

Forrefusedasylumseekers,thedamagethatdestitutioniscausingtotheirhealthcouldbealleviatediftheywereallowedtoaccesssufficientaccommodationandweremadeawareoftheirrighttofreehealthcare. It issignificantthattheBritishRedCross’surveyfoundthatthe longer an asylum seeker iswithout government support and therefore destitute, themorelikelytheirhealthwilldeteriorate.53Thisshowsthatgovernmentsupport,throughtheaccommodation and financial support that it can provide, is vital for maintaining thewellbeingofanasylumseeker.Thisneedforbettersupportfromthegovernmentisechoedin the responses toNICRAS’ survey, exemplifiedby thehighnumberof respondentswhostressed how important obtaining sufficient accommodationwas. As one such individualstated“[t]hegovernmentshouldmake[an]efforttoprovidedecentshelter forpeoplenomatter their status, its mentally draining when you don’t have a clue where to live,displaced,or[in]pooraccommodationwhichoftenleadstopoorhealth”.

52Supra,note3,p.28.53Ibid.

32

CHAPTERSIX

TheUnitedKingdom’sHumanRightsObligations

“Throughslowlystrippingawaytherightsofasylumseekersandmigrants,Europeiscreatingascarynew'normal’.”

FrançoisCrépeau,CurrentUNSpecialRapporteurontheHumanRightsofMigrants54

AsNICRAS’surveyhasfoundahighrateofdestitutionamongrefusedasylumseekerslivinginNorthernIrelanditisimportanttoassesstheUnitedKingdom’shumanrightsobligationstowardsthisgroupofpeople.

TheUnitedKingdomhasratifiedallthemajorinternationalhumanrightstreatiesthatareinforcetoday.TheInternationalBillofRights,whichismadeupoftheUniversalDeclarationofHumanRights(UDHR)55,theInternationalCovenantonCivilandPoliticalRights(ICCPR)56andtheInternationalCovenantonEconomic,SocialandCulturalRights(ICESCR),57areseenas the foundationof internationalhumanrights law. Theprinciplesofnon-discriminationandtheprohibitionofdegradingtreatmentarefurtherenshrinedbytreaties includingtheInternationalCovenantontheEliminationofRacialDiscrimination(CERD)58,theConventionagainstTortureandOtherCruel, InhumanorDegradingTreatmentorPunishment (CAT)59andtheConventionontheRightsofPersonswithDisabilities(CRPD).60

ManyoftheserightsarealsocontainedwithintheEuropeanConventionofHumanRights(ECHR).61AswellastheUnitedKingdombeingapartytotheECHR,the‘Conventionrights’weregivenfurthereffectintheUnitedKingdom’sdomesticlawthroughtheHumanRights

54BarbaraTasch,UNofficial:A‘scarynew‘normal”isemerginginEurope(2016,BusinessInsiderUK)http://uk.businessinsider.com/franois-crepeau-statement-on-migrant-crisis-in-europe-2016-2.55UNGA,UniversalDeclarationofHumanRights(1948)http://www.ohchr.org/EN/UDHR/Documents/UDHR_Translations/eng.pdf56UNGA,InternationalCovenantonCivilandPoliticalRights(1966)http://www.ohchr.org/EN/ProfessionalInterest/Pages/CCPR.aspx.57UNGA,InternationalCovenantonEconomic,SocialandCulturalRights(1966)http://www.ohchr.org/EN/ProfessionalInterest/Pages/CESCR.aspx.58UNGA,InternationalCovenantontheEliminationofRacialDiscrimination(1965)http://www.ohchr.org/EN/ProfessionalInterest/Pages/CERD.aspx.59UNGA,InternationalConventionagainstTortureandOtherCruel,InhumanorDegradingTreatmentorPunishment(1984)http://www.ohchr.org/EN/ProfessionalInterest/Pages/CAT.aspx.60UNGA,ConventionontheRightsofPersonswithDisabilities(2007)http://www.un.org/disabilities/documents/convention/convoptprot-e.pdf.61CouncilofEurope,EuropeanConventiononHumanRights(1950)http://www.echr.coe.int/Documents/Convention_ENG.pdf.


34 3533

Act1998.62 ThismeansthattherightscontainedwithintheECHRcanbeenforcedbytheUnitedKingdom’sdomesticcourts.

ItshouldbenotedthatthefollowingisnotanexhaustivelistbutinsteadhighlightssomeofthemajorhumanrightsprinciplesthattheUnitedKingdomhassigneduptoandagreedtoabideby.

Economic,SocialandCulturalRightsIn accordance with many of the major international human rights treaties, States areobliged to provide an adequate standard of living for every citizen and non-citizen alikewithintheirjurisdiction.Article25(1)oftheUDHR,forexample,statesthat“[e]veryonehastherighttoastandardoflivingadequateforthehealthandwell-beingofhimselfandofhisfamily,includingfood,clothing,housingandmedicalcareandnecessarysocialservices…”.63SimilarlytheCERDprovidesthateverypersonregardlessofrace,nationalityorethnicoriginhastherighttohousing,publichealthandsocialsecurity.64

Food– IntheUnitedNationsCommitteeonEconomic,SocialandCulturalRights(CESCR)General Comment 12, the Committee makes it clear that every person within a State’sjurisdiction must have “access to the minimum essential food which is sufficient,nutritionallyadequateandsafe,toensuretheirfreedomfromhunger”.65

In NICRAS’ survey, five of the respondents made comments about not getting adequatefoodwithone, forexample,statingthathewassufferingfrom“malnutrition”dueto“noteatingright”.InGeneralComment12,theCESCRstatesthatwhere“anindividualorgroupisunable, forreasonsbeyondtheircontrol, toenjoytherighttoadequatefood…[s]tateshavetheobligationtofulfil(provide)thatrightdirectly”.66

Thisisapositiveobligation,meaningthatitisuptotheStatetotakethenecessaryactiontoensurethattherighttofoodissatisfied.Ashighlightedinthesecondchapterofthisreport,thelimitationsofsection4support,aswellasthedifficultiesassociatedwiththeAzurecardsystem,resultinahighrateofrefusedasylumseekersunabletosecureenoughtoeat.Theonus is therefore on the United Kingdom government to take steps to amend thesedifficulties. Failure to do so means that the government will continue to breach thisobligationasrefusedasylumseekerscontinuetogowithoutadequatefood.

62UnitedKingdom,HumanRightsAct(1998)http://www.legislation.gov.uk/ukpga/1998/42/contents.63Supra,note55.64Supra,note58,Arts.5(e)(iii)and(iv).65UnitedNationsCommitteeonEconomic,SocialandCulturalRights(CESCR),GeneralCommentNo.12:TheRighttoAdequateFood(Art.11oftheCovenant),(1999),http://www.refworld.org/docid/4538838c11.html,para.14.66Ibid,para.15.

34

AdequateHousing–Therighttohousingisspecificallymentionedinmanyofthemajorinternational human rights treaties, with examples being Article 11 of the ICESCR67 andArticle5oftheCERD.68InaccordancewithArticle28oftheCRPDanypersonwitha“long-termphysical,mental, intellectualorsensory”disabilityhastherighttoadequatehousingregardlessoftheircitizenshipstatus.69Further,theCommitteeontheEliminationofRacialDiscriminationhasdeclaredthatStatepartiesmust“guaranteetheequalenjoymentoftherighttoadequatehousingforcitizensandnon-citizens”.70Therefore the government’s policy of evicting refused asylum seekers from NASSaccommodationwithin21daysofreceivinganegativedecisionisparticularlyproblematic.The United Nations General Comment No. 7 provides that if an evictionwill result in anindividualbeingmadehomeless“theStatepartymusttakeallappropriatemeasures,tothemaximum of its available resources, to ensure that adequate alternative housing … isavailable”.71If refusedasylumseekersarebeingevictedwithout theguaranteeofappropriatehousingelsewhere,thenthegovernment’scurrentpolicyisinbreachofinternationalhumanrightslaw.Giventhat39%oftherespondentsinNICRAS’surveyweredestituteatthetimethatthe surveywasconducted, itwould indeedappear that refusedasylumseekersarebeingevictedwithoutensuringthattheyhavingadequatealternativehousing.

SocialSecurity–IntheCESCRGeneralComment19,therighttosocialsecurityisclarifiedasbeingtherightto“benefits,whetherincashorkind”sothat“everyonemayrealisehisorherrightstofamilyprotectionandassistance,anadequatestandardoflivingandadequateaccess tohealthcare.”72 Thebenefits should alloweachperson to “afford the goods andservicestheyrequiretorealisetheirCovenantrights”.73NICRAS’ Survey has found that refused asylum seekers are routinely struggling to secureadequatehousingandheavilyrelyoncharitiesforfoodandclothing.Asalreadyhighlighted,manyrefusedasylumseekerscanbeleftunabletoreceiveanyformofstatutorysupportforweeksatatimeduetodelayswithpaperworkwhentheyapplyforSection4support.Evenwhen theydo receive the full support theyareentitled to, it is so small that it “doesnotallowrefusedasylumseekerstomeettheirbasicneedsandliveindignity”.74Thereforethe

67Supra,note57,Art.11.68Supra,note58,Art.5(e)(iii).69Supra,note60,Arts.1and28(1).70UnitedNationsCommitteeontheEliminationofRacialDiscrimination,GeneralRecommendationsNo.30onDiscriminationagainstNon-citizens(2004)http://www.refworld.org/docid/45139e084.html.71UnitedNations,UnitedNationsGeneralCommentNo.7onForcedEvictions(1997),http://www.sarpn.org/documents/d0002751/5-Forced_evictions_COHRE_Dec2006.pdf,para.16.72CESCR,GeneralCommentNo.19:Therighttosocialsecurity(Art.9oftheCovenant)(2008)http://www.refworld.org/docid/47b17b5b39c.html,para.22.73Ibid.74Supra,note35,p.8.


36 3735

current statutory support that refusedasylumseekers receive from thegovernmentdoesnotsatisfytherighttosocialsecurity.

CivilandPoliticalRights

Freedomfrom InhumanorDegradingTreatmentorPunishment– In a reportproducedbytheHouseofLordsandHouseofCommonsJointCommitteeonHumanRights,the Committee concluded that “[w]e consider the section 4 voucher scheme to beinhumaneandinefficient”.75Assuch,theCommitteestatesthatthevoucherschemecouldbreachArticle3oftheECHR,theArticlethatprohibitsinhumanordegradingpunishment.76

ThevoucherschemeprecededtheSection4Azurecardsystem,theset-upthattheAsylumSupport Partnership described as an “expensive, inappropriate and inhumane form ofsupport”.77TheEuropeanCourtofHumanRightshasheldthattreatmentcanbeconsidereddegradingwhenitcausesthevictimtoexperience“feelingsoffear,anguishandinferioritycapableofdebasingthem”.78Consideringthat89%oftheorganisationsthattheBritishRedCrosssurveyedreportedtheirclientsexperiencingfeelingsofanxietywhenusingtheAzurecard,itisclearthatthecardsystemdoesindeedcausemanyrefusedasylumseekerstofeelanguishandinferioritythatcanimpactupontheirwellbeing.

Aswellasthis,NICRAS’surveyfoundoccasionswheretheHomeOfficedeniedassistancetorefused asylum seekerswhowere entitled to receive it. One respondent stated that theHomeOfficerejectedhisapplicationforsupportdespitebeinghomelessandsubmittingaletter from his GP that outlined his medical problems. In the case of R. (Adam andLimbuela)v.SecretaryofStatefortheHomeDepartment,theHouseofLordsconsideredtheasylumsupportarrangementsat that timeandheld thata failureby theState toprovidesocialsupporttorefusedasylumseekerswhofacearealriskofbecomingdestitute,wouldamount to inhumanordegradingtreatmentunderArticle3of theECHR.79 FollowingthisprecedentitcanbestronglyarguedthattheHomeOfficeisalsoinbreachofArticle3oftheECHRwhen it rejects applications for support from refused asylum seekerswhowill facebeingdestituteasaresult.

RighttoPrivateandFamilyLife–Subjecttocertainexceptions,Statesareobligedtoensure that every person’s private and family life, as well as his or her home and

75JointCommitteeonHumanRights,TheTreatmentofAsylumSeekers(2007),https://www.publications.parliament.uk/pa/jt200607/jtselect/jtrights/81/81i.pdf,p.38.76IbidandSupra,note61,Art.377Supra,note35.78IrelandvUnitedKingdom(1978)2EHRR25,(167).79R.(AdamandLimbuela)v.SecretaryofStatefortheHomeDepartment[2005]UKHL66.

36

correspondence are respected.80 This principle protects “the right of people in familyrelationshipstobeineachother’scompanywithoutinterferencefromtheState”.81However the Immigration Act 2016 puts the right to family life at risk. This is becauserefused asylum seekerswithdependantswill no longerbeeligible for Section95 supportand will instead have to apply for the new Section 95A support. If the problems withSection4support,namelythedelaysinreceivingaresponsefromtheHomeOfficeandtheflawednatureofitsdecisionmaking,persistwiththenewSection95Asupport,thenrefusedasylum seekers with families could potentially go weeks without receiving any sufficientstatutory support and become destitute as a result. If this were to happen then thegovernmentwillbeinbreachofArticle8oftheECHR.

80Supra,note61,Art8.81FamilyRightsGroup,SupportforAsylumSeekingChildrenandTheirFamilies,(Undated)http://www.frg.org.uk/images/Advice_Sheets/5-family-support-services-for-asylum-seekers.pdf,p.25.

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correspondence are respected.80 This principle protects “the right of people in familyrelationshipstobeineachother’scompanywithoutinterferencefromtheState”.81However the Immigration Act 2016 puts the right to family life at risk. This is becauserefused asylum seekerswithdependantswill no longerbeeligible for Section95 supportand will instead have to apply for the new Section 95A support. If the problems withSection4support,namelythedelaysinreceivingaresponsefromtheHomeOfficeandtheflawednatureofitsdecisionmaking,persistwiththenewSection95Asupport,thenrefusedasylum seekers with families could potentially go weeks without receiving any sufficientstatutory support and become destitute as a result. If this were to happen then thegovernmentwillbeinbreachofArticle8oftheECHR.

80Supra,note61,Art8.81FamilyRightsGroup,SupportforAsylumSeekingChildrenandTheirFamilies,(Undated)http://www.frg.org.uk/images/Advice_Sheets/5-family-support-services-for-asylum-seekers.pdf,p.25.


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CHAPTERSEVEN

WhatCanBeDone?

“Justwantthegovernmenttolook[out]forasylumseekers

[who]arestayingforlongerwithoutanysupportandaccommodationand[at]thesametimenotallowedtowork”The currentmistreatment of refused asylum seekers in theUnited Kingdom represents aviolationofinternationalhumanrightslaw.Itistimeforanewanddistinctiveconversationaboutthehumaneanddignifiedtreatmentofeveryone inthissocietyandtherearestepsthatcanbetakenwithinNorthern IrelandandtheUnitedKingdomasawhole toaddressthissituation.TheNorthernIrelandExecutiveAsthetablesbelowdemonstrate, immigrationandasylumareexceptedmatters,meaningthattheUnitedKingdomgovernmenthasfulllegislativepowerovertheseareas.However,the issue of destitution among refused asylum seekers concerns matters in which theNorthernIrelandExecutivecantakemeasuresonitsownaccord.

ThismeansthatalthoughtheUnitedKingdomgovernmenthascontrolovertheimmigrationpolicyforthewholecountry,theExecutive isresponsiblefortheprovisionofhousingandsocialserviceswithinNorthernIreland.

ThishasproventobeproblematicinNorthernIreland,aspublicbodiessuchastheNorthernIrelandHousingExecutive(NIHE)haveadoptedpoliciesthatresultinrefusedasylumseekersbeingdeniedemergencyaccommodation. Under theNorthern IrelandSupportingPeopleGuidance 2012, “migrant workers who have no recourse to public funds” are classed as

ExceptedMattersUnitedKingdomGovernment

Immigration

Asylum

TransferredMattersNorthernIrelandExecutive

HousingHealth

SocialServicesEqualOpportunities

SocialSecurity

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“ineligible service users” and are therefore barred from receiving housing support from theNIHE or any publicly funded charity that may want to assist them.82 Therefore, refusedasylumseekersarenotentitledtoemergencyaccommodationdespitethefactthattheyareevictedfromNASSaccommodationonly21daysaftertheirasylumapplicationisrejected.IftheirapplicationforSection4supportissuccessful,refusedasylumseekersbecomeeligibleagain forNASSaccommodation,buthavetowait forahousetobeallocatedto them–await that can sometimes be six months long.83 This policy therefore inevitably leads torefused asylum seekers being destitute for a lengthy period of time. It is thereforeimportant that this policy is rescinded and that refused asylum seekers are given equalaccess to emergency accommodation. Under the NIHE’s current guidelines, emergencyaccommodation isavailable to thosewhoare“inpriorityneed”ofhousingandareeithercitizensof theUnitedKingdom, foreignnationalswhohavearighttoreside intheUnitedKingdom free of immigration control or those who have been granted refugee status.84Those “in priority need” of housing include homeless individualswho are pregnant, havedependants,orarevulnerableduetoreasonssuchasoldageoraphysicaldisability.85Thefactthatrefusedasylumseekersare ineligibleforemergencyaccommodationeveniftheyare living incircumstancesthatwouldqualifythemasbeing“inpriorityneed”ofhousing,highlights thediscrimination that is inherent in theNIHE’s currentpolicy. Rescinding thispolicyisnotonlycrucialforimprovingthelivelihoodofrefusedasylumseekersinNorthernIreland,butwouldalsoensurethattheExecutivecomplieswithitshumanrightsobligations–primarilytherighttoadequatehousingillustratedinthepreviouschapterofthisreport.

As the Executive, through the Department of Health is also primarily responsible for theadministrationofsocialserviceswithinNorthernIreland,theonusisuponittoensurethatrefused asylum seekers with dependants receive adequate treatment from theseorganisations. OnceagaintheobligationfortheExecutivetodoso isnot justethical,butalso legal, as human rights law requires governments to ensure the welfare of any childwithinitsjurisdiction.TheChildren(NorthernIreland)Order1995alsooutlinesthedutytheExecutivehastoensurethesafetyofeverychildwithinNorthernIreland,regardlessoftheirnationalityorasylumstatus.86Indeed,Article18statesthat“[i]tshallbethegeneraldutyofeveryauthority...tosafeguardandpromotethewelfareofchildrenwithinitsareawhoarein need ... by providing a range and level of social care appropriate to those children'sneeds.”87 However,NICRAS’surveyhasshownthatdespitebeingeligible, refusedasylumseekerswithdependants areextremelyunlikely toapproach social services for assistancewiththeiraccommodationneeds. Thosewhodidapproachsocialservicesreportedbeingturnedawaybystaff,whowereunderthe impressionthattheycouldnotofferassistanceduetotheirstatusasrefusedasylumseekers.

82NorthernIrelandHousingExecutive,NorthernIrelandSupportingPeopleGuidance(2012)http://www.nihe.gov.uk/supporting_people_guidelines_2012.pdf,p.16.83Foley,F.,andMagennis,C.,HomeSweetHome?AnOverviewoftheHousingConditionsofAsylumSeekersinNorthernIreland(2016,NorthernIrelandCommunityofRefugeesandAsylumSeekers),p.22.84NorthernIrelandHousingExecutive,HomelessnessExplained(2010)http://www.nihe.gov.uk/homelessness_explained.pdf.85Ibid.86UnitedKingdom,TheChildren(NorthernIreland)Order1995http://www.legislation.gov.uk/nisi/1995/755/contents.87Ibid,Art.18(1). 38

“ineligible service users” and are therefore barred from receiving housing support from theNIHE or any publicly funded charity that may want to assist them.82 Therefore, refusedasylumseekersarenotentitledtoemergencyaccommodationdespitethefactthattheyareevictedfromNASSaccommodationonly21daysaftertheirasylumapplicationisrejected.IftheirapplicationforSection4supportissuccessful,refusedasylumseekersbecomeeligibleagain forNASSaccommodation,buthavetowait forahousetobeallocatedto them–await that can sometimes be six months long.83 This policy therefore inevitably leads torefused asylum seekers being destitute for a lengthy period of time. It is thereforeimportant that this policy is rescinded and that refused asylum seekers are given equalaccess to emergency accommodation. Under the NIHE’s current guidelines, emergencyaccommodation isavailable to thosewhoare“inpriorityneed”ofhousingandareeithercitizensof theUnitedKingdom, foreignnationalswhohavearighttoreside intheUnitedKingdom free of immigration control or those who have been granted refugee status.84Those “in priority need” of housing include homeless individualswho are pregnant, havedependants,orarevulnerableduetoreasonssuchasoldageoraphysicaldisability.85Thefactthatrefusedasylumseekersare ineligibleforemergencyaccommodationeveniftheyare living incircumstancesthatwouldqualifythemasbeing“inpriorityneed”ofhousing,highlights thediscrimination that is inherent in theNIHE’s currentpolicy. Rescinding thispolicyisnotonlycrucialforimprovingthelivelihoodofrefusedasylumseekersinNorthernIreland,butwouldalsoensurethattheExecutivecomplieswithitshumanrightsobligations–primarilytherighttoadequatehousingillustratedinthepreviouschapterofthisreport.

As the Executive, through the Department of Health is also primarily responsible for theadministrationofsocialserviceswithinNorthernIreland,theonusisuponittoensurethatrefused asylum seekers with dependants receive adequate treatment from theseorganisations. OnceagaintheobligationfortheExecutivetodoso isnot justethical,butalso legal, as human rights law requires governments to ensure the welfare of any childwithinitsjurisdiction.TheChildren(NorthernIreland)Order1995alsooutlinesthedutytheExecutivehastoensurethesafetyofeverychildwithinNorthernIreland,regardlessoftheirnationalityorasylumstatus.86Indeed,Article18statesthat“[i]tshallbethegeneraldutyofeveryauthority...tosafeguardandpromotethewelfareofchildrenwithinitsareawhoarein need ... by providing a range and level of social care appropriate to those children'sneeds.”87 However,NICRAS’surveyhasshownthatdespitebeingeligible, refusedasylumseekerswithdependants areextremelyunlikely toapproach social services for assistancewiththeiraccommodationneeds. Thosewhodidapproachsocialservicesreportedbeingturnedawaybystaff,whowereunderthe impressionthattheycouldnotofferassistanceduetotheirstatusasrefusedasylumseekers.

82NorthernIrelandHousingExecutive,NorthernIrelandSupportingPeopleGuidance(2012)http://www.nihe.gov.uk/supporting_people_guidelines_2012.pdf,p.16.83Foley,F.,andMagennis,C.,HomeSweetHome?AnOverviewoftheHousingConditionsofAsylumSeekersinNorthernIreland(2016,NorthernIrelandCommunityofRefugeesandAsylumSeekers),p.22.84NorthernIrelandHousingExecutive,HomelessnessExplained(2010)http://www.nihe.gov.uk/homelessness_explained.pdf.85Ibid.86UnitedKingdom,TheChildren(NorthernIreland)Order1995http://www.legislation.gov.uk/nisi/1995/755/contents.87Ibid,Art.18(1).

CHAPTER SEVEN


40 41

39

Thiscanberemediedbyensuring that therightsof refugees,asylumseekersandrefusedasylum seekers form a part of the training and professional assessments that NIHE andsocialservicesstaffundertake.In-betweentraining,staffshouldberegularlyprovidedwithuptodateguidelinesthatoutlinehowtheyshouldrespondtotheneedsofrefugees,asylumseekersandrefusedasylumseekers,asthiswoulddomuchtoalleviateconfusion.

However, the fact that refusedasylumseekers areunlikely to seekassistance fromsocialservicesinthefirstplaceshowsthatamoreproactiveapproachmustbetakentowardsthisgroupofpeople.WhenreceivinganegativedecisionfromtheHomeOffice,refusedasylumseekersshouldhaveacaseworkerfromsocialservicesassignedtothem.Thispersoncanassesstheirclients’needsandputtogetheramultidisciplinarycareplanthatcoversissuessuch as housing, social care and financial support. As long as they have their client’sconsent, the case worker should liaise with any social worker or medical professional,includingGP’sorhealthvisitorsthathavecome intocontactwiththeirclient. Thiswouldallowthecaseworkertotakeintoaccounttheirclient’shistoryandanytreatmenttheyarecurrently receivingwhen devising their care plan. The care plan should be put togetherduringthe21day‘graceperiod’,sothat itcantakeeffect immediatelyaftertheirclient isevictedfromNASSaccommodation.

Thereisalsoaclearneedforrefusedasylumseekerstohaveamechanisminwhichtheycanregularlyvoicetheirconcernsrelatingtothetreatmenttheyarereceivingandtheiroverallliving conditions. This could take the formofapanelmadeupof representatives fromanumberof local charities thatworkwith refusedasylumseekers, inwhich the issues thathave arisen among this group can be brought before representatives from the relevantExecutivebodies.

Finally,theNorthernIrelandExecutiveshoulduseitsvoiceasadevolvedassemblytolobbythe United Kingdom government in respect to this issue. ‘The Memorandum ofUnderstanding and Supplementary Agreements’, agreed in 2012 between the UnitedKingdom government and the three devolved governments, states that “[a]ll fouradministrationsarecommittedtotheprincipleofgoodcommunicationwitheachother,andespecially where one administration’s work may have some bearing upon theresponsibilitiesofanotheradministration”.88ThismeansthatalthoughtheUnitedKingdomgovernmentmayhavefullcontroloverthecountry’s immigrationandasylumpolicies,theNorthernIrelandExecutivecanstillhaveaninputonthedecisionsthatarebeingmade.AsrefusedasylumseekersarebeingleftdestitutelargelybecauseoflegislationenactedbytheUnitedKingdomgovernment,theNorthernIrelandExecutiveshouldmakeitclearthatitwillnotacceptthishappeningtopeoplewithinitsjurisdiction.

88UnitedKingdom,MemorandumofUnderstandingandSupplementaryAgreements(2012)https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/316157/MoU_between_the_UK_and_the_Devolved_Administrations.pdf,p.5.

39

Thiscanberemediedbyensuring that therightsof refugees,asylumseekersandrefusedasylum seekers form a part of the training and professional assessments that NIHE andsocialservicesstaffundertake.In-betweentraining,staffshouldberegularlyprovidedwithuptodateguidelinesthatoutlinehowtheyshouldrespondtotheneedsofrefugees,asylumseekersandrefusedasylumseekers,asthiswoulddomuchtoalleviateconfusion.

However, the fact that refusedasylumseekers areunlikely to seekassistance fromsocialservicesinthefirstplaceshowsthatamoreproactiveapproachmustbetakentowardsthisgroupofpeople.WhenreceivinganegativedecisionfromtheHomeOffice,refusedasylumseekersshouldhaveacaseworkerfromsocialservicesassignedtothem.Thispersoncanassesstheirclients’needsandputtogetheramultidisciplinarycareplanthatcoversissuessuch as housing, social care and financial support. As long as they have their client’sconsent, the case worker should liaise with any social worker or medical professional,includingGP’sorhealthvisitorsthathavecome intocontactwiththeirclient. Thiswouldallowthecaseworkertotakeintoaccounttheirclient’shistoryandanytreatmenttheyarecurrently receivingwhen devising their care plan. The care plan should be put togetherduringthe21day‘graceperiod’,sothat itcantakeeffect immediatelyaftertheirclient isevictedfromNASSaccommodation.

Thereisalsoaclearneedforrefusedasylumseekerstohaveamechanisminwhichtheycanregularlyvoicetheirconcernsrelatingtothetreatmenttheyarereceivingandtheiroverallliving conditions. This could take the formofapanelmadeupof representatives fromanumberof local charities thatworkwith refusedasylumseekers, inwhich the issues thathave arisen among this group can be brought before representatives from the relevantExecutivebodies.

Finally,theNorthernIrelandExecutiveshoulduseitsvoiceasadevolvedassemblytolobbythe United Kingdom government in respect to this issue. ‘The Memorandum ofUnderstanding and Supplementary Agreements’, agreed in 2012 between the UnitedKingdom government and the three devolved governments, states that “[a]ll fouradministrationsarecommittedtotheprincipleofgoodcommunicationwitheachother,andespecially where one administration’s work may have some bearing upon theresponsibilitiesofanotheradministration”.88ThismeansthatalthoughtheUnitedKingdomgovernmentmayhavefullcontroloverthecountry’s immigrationandasylumpolicies,theNorthernIrelandExecutivecanstillhaveaninputonthedecisionsthatarebeingmade.AsrefusedasylumseekersarebeingleftdestitutelargelybecauseoflegislationenactedbytheUnitedKingdomgovernment,theNorthernIrelandExecutiveshouldmakeitclearthatitwillnotacceptthishappeningtopeoplewithinitsjurisdiction.

88UnitedKingdom,MemorandumofUnderstandingandSupplementaryAgreements(2012)https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/316157/MoU_between_the_UK_and_the_Devolved_Administrations.pdf,p.5.

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TheUnitedKingdomGovernmentOf course the high rate of destitution among refused asylum seekers across the UnitedKingdomcanbe largelyattributed to the limitedstatutorysupport that they receive fromthe government. In the face of the ImmigrationAct 2016,whichwill further restrict thesupportthatwillbeavailabletorefusedasylumseekers,NICRAS’reportmakesitclearthatthisgroupofpeoplearealreadyextremelyprone todestitutionand livingconditions thatareadverselyaffectingtheirhealth.

Acrossthetestimoniesthattherespondentsgavetothissurvey,numerousstoriesemergeofindividualsstrugglingtogetbywitheverydaylife.

This reportshould thereforeserveasawarningagainstcutting thestatutorysupport thatrefused asylum seekers currently receive. Instead, the government should look at whatmeasurescanbeput inplace thatwillease thepressure that refusedasylumseekersareunder.

OnesuchmeasurewouldbetocontinuetheprovisionofSection95supportonan‘interim’basisratherthansimplycuttingitoff21daysafteranegativedecisionisdelivered.Refusedasylum seekers should be provided this ‘interim’ support until they have completed andreceived a decision in respect to their Section 4 support. Thiswouldmean that refusedasylumseekersdonothavetogopotentiallyweekswithoutanyformofstatutorysupportwhiletheywaitfornewsregardingtheirSection4applications.Section95supportshouldonly stop if there is no proof that the refused asylum seeker has applied for Section 4support,withproofbeingsuppliedintheformofareceiptthattheHomeOfficecouldsendto applicants immediately upon receiving their form, or a photocopied, signed anddatedpageofacompletedform.

“Ihavetotakeclothesfromrubbish,can’tcleanmyselfproperly”

“Ihavebeeninfearandterror,stressandnightmareinlast5years”

“Puttingpeopleonthestreets,itishell”

“Beinganasylumseeker,it’slikehavingadisease”

“Nopeaceofmind,neverknowifyou’llbesleepingonthestreets,especiallyinWinter”


42 43

41

HowHasNICRASBeenHelpingRefusedAsylumSeekers?NICRAS has been working with other local charities to secure practical solutions for theproblemsthatrefusedasylumseekersface. Progresshasbeenmadeinrecentyears. Forexample, after years of working in partnership with the Simon Community and localpoliticians, the Simon Community began to provide accommodation to refused asylumseekersinitshostelsinBallymena,LisburnandBelfastinthefinalmonthsof2012.Howeverthecharityfoundthatitcouldnolongeracceptanyfurtherrefusedasylumseekers,asthelengthyappealprocessandextensivetimethattheyspentonSection4supportmeantthattheywerestaying intheirhostels fortoo long. As itcostsapproximately£110aweekforsomeonetostayinoneoftheSimonCommunity’shostels,thefinancialpressureofallowingrefused asylum seekers to stay for indefinite periods of time also became an issue.Although the Simon Community has been unable to accept any further refused asylumseekerssince2015,ithasallowedthosewhowerealreadystayinginitshostelstocontinueresidingintheiraccommodation.RefusedasylumseekerscanreceivefoodbagsonceaweekfromNICRAS’officeatUniversityStreet inBelfastandthere isalsousuallyaselectionofsmall itemsof furniture, toiletries,books and children’s toyswhichNICRASmembers can take at any time. All of these aredonatedbymembersof thepublic, localorganisationsandchurches,with themajorityofthefoodcomingonaweeklybasisfromtheSOSBusandStorehouse.NICRASalsoworksinpartnership with Storehouse and the Saint Vincent de Paul Society and can refer itsmemberstotheseorganisationsiftheyrequireassistancewithlargeritemsoffurniture.If any NICRAS member has an issue or question concerning, for example, theiraccommodation, financial support or healthcare entitlements, NICRAS has two full-timemembersofstaffwhotheycanspeaktoandreceiveadvicefrom.NICRASalsorunsvariousprograms and events to help its members integrate into their local community. NICRASvolunteersalsorunfreeEnglishclassesandaHomeworkclubwhichareavailableforanyofNICRAS’members.

However, although therearemany local charities thataredoingbenevolentandvaluableworkforrefusedasylumseekers,thishastobedoneinresponsetothewiderproblemsthattheUnitedKingdomgovernmentcreateswithitslegislationandthatpublicbodies,suchastheNIHE,compoundwiththeirpractices. If the livesof refusedasylumseekersaretobeimprovedinthelong-term,thenthislegislationhastobeamendedandthesepublicbodiesneedtoadjusttheirpracticestowardsrefusedasylumseekers.

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NICRAS’RecommendationsIn response to the high level of destitution among refused asylum seekers in NorthernIreland,NICRASrecommendsthat;

FortheNorthernIrelandHousingExecutive;

• Refused asylum seekers shouldhave equal access to emergency accommodationwith the Housing Executive and hostels run by publicly funded charities inNorthernIreland.

• Staff shouldbe fully trained tounderstandand respond to theneedsof refusedasylumseekers.

FortheHealthandSocialCareBoard;

• Staff shouldbe fully trained tounderstandand respond to theneedsof refusedasylumseekerswithdependantsundertheageof18.

• Material concerning the rightsof refusedasylumseekerswithdependantsundertheageof18shouldberoutinelydistributedamongstaff.

• Refusedasylumseekersshouldbeassignedcaseworkersuponreceivingnegativedecisions, who can put together multidisciplinary care plans that take effectimmediatelyaftertheyareevictedfromNASSaccommodation.

FortheHomeOffice;

• When receiving a negative decision, refused asylum seekers should also receiveclearandconciseinformation,intheapplicant’sprimarylanguagewherepossible,explainingtheirrighttoaccommodationandthepracticalitiesofobtainingit.

• ThedecisionmakinginrespecttoSection95andSection4applicationsshouldberegularlyreviewedwiththeaimofreducingtheamountofnegativedecisionsthatareoverturnedonappeal.

FortheUnitedKingdomgovernment;

• The new Section 95A support containedwithin the Immigration andAsylumAct2016 shouldnot cut the statutory support that refusedasylumseekers currentlyreceive.

• Section 95 support should not end 21 days after a negative decision isadministered,butshouldcontinueonan‘interimbasis’untiltheHomeOfficehasdelivered its decision in respect to an individual’s Section 4/Section 95Aapplication.


43

FortheNorthernIrelandExecutive;

• Apanel shouldbeestablished that canprovideamechanism for refusedasylumseekers to give feedback to the relevant government departments and publicbodies.

• TheExecutiveshouldlobbytheUnitedKingdomgovernmentandmakeitclearthatitwillnolongeracceptrefusedasylumseekersbeingforcedintodestitution.

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CHAPTEREIGHT

Conclusion

“Todenypeopletheirhumanrightsistochallengetheirveryhumanity”

NelsonMandela

ThisreportillustratesthedifficultiesthatrefusedasylumseekerslivinginNorthernIrelandare likely to endure as they frequently suffer from homelessness, poverty and ill-health.CurrentlegislationconcerningrefusedasylumseekersintheUnitedKingdom,purposefullyrestrictsthisgroup’sabilitytoobtainbasicessentialssuchashousing,foodandmoney.Asrefused asylum seekers are being evicted from their accommodation before alternativehousinghasbeensecuredforthemandonlyprovidedwithminimalfinancialsupport, it ishardtoseehowtheUnitedKingdomgovernmentcanclaimtheyaretreatingthisgroupofpeoplewiththedignityandrespecttheydeserve.From this already low position, it is therefore worrying that the Immigration Act 2016represents a backward step in relation to the government’s treatment of refused asylumseekers.Whenfullyenactedthislegislationwillincreasethehardshipthatrefusedasylumseekerswithdependantscurrentlyendure,meaningthatchildrenwillbeatagreaterriskofbeinghomeless and living on the ‘bareminimum’. Refused asylum seekerswill also facegreaterdifficultyinobtainingthefinancialsupportonwhichtheyrely.However, despite the United Kingdom government adopting an increasingly harsh policytowards refused asylum seekers, there is action that canbe taken inNorthern Ireland toenablethisgroupofpeopletobetreatedinamorehumaneanddignifiedmanner.AsthefindingsfromNICRAS’surveyhaveshown,smallchangestohowpublicbodiessuchastheNIHEandtheHSCBoardoperatewouldmakeahugedifferencetothelivesofmanyrefusedasylumseekers. Forexample, if therelevantHSCstaffwere fullyawareof therights thatrefusedasylumseekerswithdependantshavetoaccommodationthenthatcouldresult inthesefamiliesnolongerhavingtobehomeless.The Northern Ireland Executive can also use the power that it has to initiate a newconversation about thehuman rights of refused asylum seekers. It can lobby theUnitedKingdomgovernmentandmakeitclearthattheNorthernIrelandpublicwillnotacceptsuchhuman rights abuses occuring within the country. By doing this, the Northern IrelandExecutivecanbringpositivechangetoagroupofpeoplewhohavebeenforgottenfortoolong.

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CHAPTER EIGHT


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AnnexA:TheSurveyQuestionnaire

Backgrounddetails

1a.Name(optional):_________________________________________________________

1b.PostCode(e.g.BT12,BT7)_________________________________________________

1c.Age:16-24 25-3435-4950-6465+1d.Gender: Male Female

1e.Countryoforigin:______________________________________

1f.Doyouhavefamilyhere(pleasecircle)? Yes No

1g.Ifyes,pleasecirclerelationsyouhavehere:Spouse PartnerChildren

Other?________________________________________

1h.ifyouhavechildrenhere,howmany(pleasecircle)? 1 2 3 4 5

Asylumapplication

2a.Whatstageareyouatintheasylumapplicationprocess(pleasecircle)?

FirstAppealFirstTierTribunalUpper-TierTribunalCourtofAppeal

SupremeCourtEuropeanCourt JudicialReview ‘Dublin’case

FreshClaim/FurtherSubmissions RejectedDon’tKnow

Other?________________________________________

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2b.Howlonghaveyoubeenintheasylumprocess(pleasecircle)?

0-6months 6-12months 12-24months 24+months

Livingconditions

3a.Pleasetickallofthebelowwhichdescribeyourcurrentlivingsituation:

i.Sleepingoutside[] v.Livinginveryovercrowdedconditions[]

ii.Stayingwithfriendsorfamily[] vi.Atriskofviolenceifyoustayinyourhome[]

iii.Stayinginahostel[]

vii. Living in poor conditions that are damaging yourhealth[]

iv.Stayinginplaceofworship[] viii.Livinginahousethatisunsuitableforyou[]

v.Stayingelsewhere[]ix.Other_________________________________

xi.Noneoftheaboveapplytomeatpresent,butIamatriskofoneormoreofthesesituationsinthenearfuture[]

3b. Ifyou tickedanyof theabove, theNorthern IrelandHousingExecutivemayconsideryouasbeinghomeless.Forhowlonghaveyoulivedlikethis?

0-6months 6-12months 12-24months 24+months

3c.Wherewereyoustayingbeforeyouwerehomeless?___________________________

3d.IsthisyourfirsttimebeinghomelessinNorthernIreland? Yes No

3e.Ifno,howmanytimeshaveyoubeenhomelessinNorthernIreland?1 2 3+

3f.Doesyourlivingsituationaffectyourhealth(physicalandmental)?Yes No


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IfYes,pleaseexplain:_________________________________________________________

Nobody shouldbehomeless inNorthern Ireland, includingpeoplewho come to seekasylum.Thisresearchisaboutcontributingtoacampaigntosecureadequatehousingforasylumseekers.

3g.Ifhousingwasofferedtoyou,whattypeaccommodationwouldsuityourneeds?

Ownhome Sharingwithafamily SharingwithanindividualAnytype

Other:__________________________________________________-

Support

4a.Haveyouapproachedsocialservicesforhelpwithaccommodation?

4b.Ifyes,wasthesupportprovidedsufficienttomeetyouhousingneeds?

4c.Pleaseexplain:

_________________________________________________________________________

__________________________________________________________________________

4d. Have you approached local charities for your help with your housing need (e.g. Red Cross,Homeplus,NICRAS,Simon,etc)?

4e.Ifyes,wasthesupportprovidedsufficienttomeetyouhousingneeds?

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4f.Pleaseexplain:

_________________________________________________________________________

__________________________________________________________________________

4f.Doyouhaveanyothercomments?Anythingthegovernmentcandothisyearaboutthis?

4g.Doyouwanttoknowmore/bekeptinformedaboutthecampaignforhousingrights?

Yes No

IfYes,[email protected]

4h.Contact: Email_____________________Phone:_______________________

Your identityandyourresponses inthesurveywill remainstrictlyconfidential.


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AnnexB:TheFullSurveyFindings

Figure2:Periodoftimetherespondentswerehomeless

6%9%

21%64%

LengthofTimeintheAsylumProcess

0-6months

6-12months

12-24months

24+months

Figure1:Lengthoftimeintheasylumprocess-fromthestarttothefinaldecision

23%

15%

6%21%

35%

PeriodofTimetheRespondentswereHomeless

0-6months

6-12months

12-24months

24+months

Nodata

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Figure5:Respondentswhoapproachedacharityforassistance

Figure4:Therespondentswhoapproachedsocialservicesforassistance(Ofthosewhowereeligibleforsuchassistance)

6%

18%

6%

33%

37%

LivingSituaeonsattheTimeofBeingSurveyed

Hostel

NASS

Desvtute(street)Desvtute(livingwithfriends)Nodata

Figure3:Therespondent'slivingsituationsatthetimeofbeingsurveyed

33%

67%

ApproachedSocialServices

YesNo

79%

6%15%

ApproachedaCharity

Yes

No

Nodata


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Figure6:Therespondentswhosaidtheirlivingconditionsaffectedtheirhealth

76%

9%

15%

WhetherLivingCondieonsAffectedHealth

Yes

No

Nodata

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