Download Submission to the Cross Departmental Group on Integration

Submission to the Cross Departmental Group on
Integration
Submitted by Mayo Intercultural Action
May 2014
Mayo Intercultural Action’s Mission Statement
MIA’s mission is to promote the positive effects of interculturalism and the meaningful
participation of migrants and their families in all aspects of the community in County Mayo. MIA
would like to see an open, just and equal Ireland where human rights and cultural differences are
respected and where new Irish communities are afforded equal rights and opportunities. Mayo
Intercultural Action (MIA) ascribes to the values of equality, justice, inclusiveness, empowerment
and transparency
Background to Mayo Intercultural Action
Mayo Intercultural Action (MIA) had its beginnings in December 1999 when the Government
announced the dispersal of people in the asylum process to accommodation centres around the
country. In response to this policy two voluntary support groups were formed to provide support,
information and advice to people living in direct provision. By 2004 the work of the Westport
Refugee Support Group and Mayo Refugee Support Group was consolidated into Mayo
Intercultural Action and the organisation had embraced the needs of all migrants in County Mayo.
Since 2004 MIA has worked to generate a real and optimistic impact on the lives of migrants and
their families as well as the wider population in County Mayo over the past number of years.
Achievements include:
 Publication of “Building a Diverse Mayo – A Report on Immigration, Integration and
Services Provision” which was well received and continues to contribute to policy formation
in the county.
 High level of publicity in the public sphere on matters relating to migrants’ experiences in
County Mayo.
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 Contribution to the formation of the Mayo Integration Forum which has become a
significant arena for discussion, increasing statutory and NGO organisations awareness of
migration issues.
 Alliance building with a wide range of agencies including other NGOs, statutory and private
sector organisations at local regional and national levels.
 Delivery of significant training, educational and development programmes – ‘Naisc Nua’
(New Links) an education, training and employment project 2007-2009, ‘Different
Together-Building a Sustainable Model of Integration’ under the European Refugee Fund
Programme 2010-2013, ‘GROW Growing Real Opportunities of Women’ under the
Equality for Women Measure 2010-2012 and ‘SOLAS – Support, Orientation and Learning
for Asylum Seekers’ under the European Integration Fund 2013-2014.
1. Specific Issues and Needs of Migrants
MIA is working from a particular understanding and analysis of the challenges facing the migrant
population in County Mayo. The experiences of people in the asylum process, those with refugee
status and migrant workers are very similar in relation to social isolation due to loss of separation
from normal family and community support which contributes greatly to mental stress. Adapting to
a new culture and a new language are stressors on health and well being. Racism, prejudice,
isolation and discrimination also contribute to the stresses of adapting to a new life in a new
country. MIA recognises that social factors contribute adversely to the psychological health and
well being of people in the asylum process, people with refugee status and other migrants. Their
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identity, self worth and value system are threatened. Therefore mental and physical well being is
linked with cultural and social factors.
1.1 Isolation
o In the process of developing consciousness of human rights among communities and other
organisations MIA has become acutely aware of the isolation of people with refugee status,
those in the asylum process and other migrants in County Mayo. The dynamics of isolation
has resulted in migrants being systemically left without the supports needed to counter the
daily experience of isolation, exclusion and inequality.
o Migrants, and particularly those in direct provision accommodation, are regularly excluded
from identifying as members of Irish society. They experience isolation from each other as
well as from the rest of society as they are geographically scattered and always in the
minority throughout the county. This lack of contact with Irish society and thus the
opportunity for intercultural contact and exchange does and will in the future manifest itself
through: racism and discrimination exacerbated by isolation, long term effects such as
ghettoisation due to a set of people living in poverty, experiencing marginalisation and
social exclusion and a diminishing of adults and children’s equality of opportunity and equal
rights.
o In addition the rural setting of the county, its poor public transport system and the
population distance from services contribute greatly to this physical, social and cultural
isolation. Therefore it is very difficult for migrants to gain social support and validation of
their experience.
1.2 Migration Process
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o Many of the impacts on people in the asylum process and people with refugee status and
other migrants develop and/or increase after arrival due to post migration stresses. Their
mental and physical health is further affected by social isolation, pre and post migration
trauma, cultural shock, language barriers, insecurity due to the asylum process, loss of
traditional support structures, separation or death of family members, prolonged uncertainty
regarding the outcomes of the asylum process, fear of deportation coupled with a lack of
understanding about services, poverty, social exclusion and poor accommodation
arrangements. It is MIA’s deeply held belief that the social and economic circumstances and
experiences of migrants have as much an impact on health and well being as lack of services
or lack of access to health and care services does.
1.3 Direct Provision
A key area of concern for MIA is that the system of Direct Provision has had an adverse effect on
the health and well being of people in the asylum process. Asylum seekers are resettled regionally
to full-board accommodation, where they are provided with three meals a day and given €19.10 per
week for adults and €9.60 per child to meet other basic needs (which has not increased since 1999
despite other social welfare recipients receiving increases). There are a number of aspects of Direct
Provision, which are of concern in examining the adverse impact on the health and well being of
people in the asylum process, including:
o Dietary Needs:
The preparation and consumption of food is a key part of everyday
independent living for most of the population. However within the direct provision system
there are no self-catering facilities and a limited diversity in the range of food on offer.
Children’s food is often lacking in the necessary nutritional requirements. If food offered
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does not agree with residents or is not what they are used to they have no option but to
supplement their diet from their weekly allowance of €19.10.
o Overcrowding/communal accommodation: There are a number of impacts resulting from
this issue ranging from the potential risk to residents of contracting contagious illnesses due
to overcrowding and sharing of toilet facilities, lack of hot water for washing etc, to the
emotional and psychological impact due to the lack of privacy and dignity afforded to
people.
o Lack of independent monitoring of direct provision facilities: While monitoring does
take place it takes place with advanced warning to the management in question and it is the
physical condition of the building that is monitored.
o Specialised Training for Staff in Direct Provision Centres is needed.
o Access to services: Few statutory services enter direct provision centres and will usually
communicate with the management of the centres rather than directly with the residents.
o Effects on children’s health and well being: The impacts on children’s health and well
being are immeasurable at this stage. Spending part of and in many cases their whole life to
date (not knowing any other experience other than direct provision) will undoubtedly store
up problems for the future.
Observing their parents and friends distress, stress and
emotional strain has and will in the future have immense mental and emotional ill effects on
these children.
The lack of play facilities, lack of freedom to roam, poor nutritional
standards and the clear and imposed sense of ‘being different’ from other children in society
will contribute to the ill health in the future but also the potential for a deeply stratified and
unequal society.
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o Risk of Abuse: The Direct Provision System exposes children to the risk of abuse and is, in
itself, a child abusive structure.
o Effects of Poverty: The allowance paid to residents in direct provision has not increased
since 2000 despite the increase awarded to all other welfare categories. An example of the
effect of poverty generated by such low financial support is that medicines not supported by
the medical card and the prescription fee must be paid out of an adult direct provision
allowance of only €19.10 per week (indeed most of these medicines cost considerably more
that this). As a result a resident is often unable to purchase the necessary medicine leading
to further complication in his/her medical condition.
o Prohibition on the right to work, education and training: There are many ill effects of
forced ‘idleness’ on the wellbeing of people in the asylum process arising from the
prohibition on the right to work, education or training including deskilling, diminishing of
their sense of self-worth, confidence and capacity to participate in a key part of Irish
society’s economic, social and cultural sphere. People in asylum process have contributed
significantly to voluntary activity in a climate where there is a lessening of the volunteer
capital once available to clubs, society, community and voluntary organisations in Irish
society. It provides them with a chance to interact, participate and contribute to Irish society.
However, volunteering can also lead to frustration because government agencies fail to
acknowledge it as a contribution by asylum seekers to society contrary to government
embracing it and social capital as key social ideals.
1.4 Family Reunification: In relation to people with refugee status and migrants in Ireland family
reunification within a reasonable timeframe following arrival in Ireland remains a key issue.
1.5 Access to Information and Support
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o Migrants have considerable difficulties in finding their way around the healthcare,
educational, welfare and security services and personal difficulties when there is no
adequate language in common between the service provider and the migrant.
o Lack of accessible information about rights and entitlements: Lack of knowledge on how to
access services.
o Language, cultural barriers and insensitivity to the cultural backgrounds of service users
currently limits or prevents migrants’ access to services. The lack of respect or time
provided by some frontline service providers in establishing an understanding of people in
the asylum process, people with refugee status and migrant workers formed by their culture
and socialisation process is evident. For example the western world’s model of health care
is the normal process of health care provided however it may not always adhere to the
service users own belief system.
1.6 Mental Health Issues
People in the asylum process, people with refugee status and other migrants with mental health
problems fear being stigmatized and as a result may not seek help. In addition “the disparities in
mental health care and services for racial and ethnic minority’s recounts that racial and ethnic
minorities…are more likely to receive poor quality and inappropriate mental health care”1. In
addition other barriers and problems, which exist, include:
o Trauma/Poverty and Social Exclusion: People who seek asylum in Ireland, people who
are granted refugee status and other migrants come from a diverse range of countries and
cultures. They have often, in their own and in other countries, experienced a wide range of
events and trauma that has affected their state of health. Women, men and children may
Brid Clarke, CEO, Mental Health Commission – Addressing the Mental Health Needs of Minority Ethnic Groups and Asylum
Seekers in Ireland, National Conference HSE West January 2006.
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have experienced and/or witnessed torture, sexual violence, violence and political and/or
religious oppression and persecution. In addition, they may also have experienced poverty
and social exclusion. The impacts of these events and experiences manifest themselves in
significant physical ill health and mental health problems including depression,
psychological disturbances and or/post traumatic stress syndrome.
o Lack of regional and local psychological and counselling support services: In order for
people in the asylum process and people with refugees status living in the west of Ireland in
need of counselling and/or psychological support services which meets their specific needs
they have to travel to Dublin. This adds to their distress, has financial implications and
means that they are away from their families and communities while undergoing treatment.
Consistency of treatment is a clear necessity in the treatment of any mental, emotional or
physical illness however polices can be short-sighted and regressive. Furthermore while the
access to counselling services which exists are extremely limited, there is no dedicated
service in existence for asylum seeking children who may have witnessed or experienced
trauma prior to their migration to Ireland
1.7 Consequences of the Economic Downturn
In addition to the above issues the economic downturn is adding extra pressures to migrants and
their families including:
o An increase in migrant’s reliance on social welfare support.
o Increased discrimination and racism towards migrants due to increased competition for
jobs, housing and social welfare.
o Further marginalisation of migrant groups within Irish society.
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o Education spending cuts to special needs assistants and language resource teachers
which adversely impact on migrant children.
2. Recommendations
Mayo Intercultural Action (MIA) welcomes the introduction of a review of integration activities
being undertaken by Government and the proposal to introduce a new Integration Strategy which
includes consultation with key stakeholders. It is the view of MIA that a comprehensive review and
consultation process must include the direct input of migrant communities living in Ireland,
therefore MIA’s initial recommendation is
i.
The Cross Departmental Group takes proactive measures to meet with migrants, members of
migrant communities, migrant representatives and migrant led groups to enable their
participation in the process of developing a new Integration Strategy.
ii.
Evaluation at different stages of the implementation process of the Integration strategy needs
to be prioritised. Measurement indicators need to be included in any effective policy in order
to evaluate its progress and success.
iii.
Better streamlining and communications between Government Departments and at National
and local level. Policies should not contradict each other e.g. Department of Justice and
Equality holding onto people’s IDs until their case is deteremined while at a local level
Social Welfare and Gardaí ask people to present IDs.
2.1 Reception and Orientation Phase
iv.
Implement a comprehensive information and orientation programme for asylum-seekers to
be available within one month of their arrival in the State. If adequately resourced to do so
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this programme could be provided through community groups in collaboration with
statutory agencies and would include an introduction to structure of Irish society,
Government, state departments and agencies, the Irish political system, Irish culture and
society, rights and responsibilities, active citizenship and life skills needed in their new
environment. This programme could also be made available to newly arrived migrants with
various immigration status to enable greater understanding of Irish society and structures
and promote integration and encourage participation in society from the outset.
v.
Implement a comprehensive mental and physical health assessment for newly arrived
asylum-seekers and migrants with a referral system to relevant mainstream and specialised
services.
2.2 Direct Provision
vi.
It is an overriding recommendation of MIA that the current system of Dispersal and
Direct provision for persons engaged in the asylum process/protection determination
process should be abolished due to its detrimental impact on the physical, emotional and
psychology health and well being of residents and the impact on their fundamental human
rights.
vii.
While the system of Direct Provision continues to operate it should be monitored by an
independent body, residents should be consulted by the monitoring body, and that the
monitoring body should have the power to make recommendations and impose sanctions on
operators of direct provision accommodation centres. In addition this body should be given
the task of investigating individual complaints from residents of direct provision
accommodation centres.
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viii.
The prohibition on the right to work, participation in training and education for people
seeking protection in Ireland should be removed to allow people in the asylum
determination process to interact in the major social, economic and cultural sphere of Irish
society therefore offsetting negative implications of direct provision on a person’s ability to
integrate and participate meaningfully in society.
ix.
For the period that the system of Direct Provision continues to operates, and following the
introduction of an alternative model to support people seeking asylum in Ireland targeted
health service initiatives should be implemented to address the mental health needs of
people in the asylum process and people with refugee status. To enable equality of access to
health services this should be implemented through a dedicated regional and local
mainstream psychological service and counselling/support service. These services must be
based on the identified and assessed needs of the service users based on direct consultation.
x.
People seeking protection in Ireland and those engaged in the asylum determination process
should be permitted access to social protection/social security supports within a system that
does not exclude and discriminate based on their immigration status in the State.
xi.
Children seeking protection in Ireland and children who are in the State in the care of their
parent who is seeking protection should not be prohibited from receiving the universal child
benefit payment.
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xii.
The recent 2012 publication by the Irish Refugee council ‘State Sanctioned Poverty and
Exclusion’ has evidenced the child protection concerns that arise as a result of the mix of
families with single men. Due to the nature of seeking asylum the backgrounds and personal
histories of residents cannot be verified at the time of their dispersal to accommodation
centres. This puts more vulnerable residents and their children at untold risk of exploitation
and harm to their physical and psychological well-being. It is recommended that for the
period Direct Provision is in existence families should be catered for in family only
accommodation centres.
2.3 Promoting Integration through Legislation and Policy
xiii.
The Immigration, Residence and Protection Bill and associated policy documents should be
enacted and implemented without further delay.
xiv.
In the course of the enacting of new legislation reforming the current protection application
process in Ireland provisions should be for people already engaged in applications with the
Department of Justice and Equality.
xv.
In the course of drafting new legislation and associated policy documents consideration
should be given to introducing an appropriate remedy for migrants in the State who have
become undocumented to have the opportunity to access a scheme to regularise their
immigration status.
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xvi.
The presence of family in a migrant’s host country and the process of family reunification is
a key factor in promoting integration for migrants. Rights to family reunification for
migrants and Irish citizens should be established on a legislative basis.
xvii.
The Integration Strategy should include recommendations for the updating and development
of national strategies such as the National Action Plan Against Racism, and for the inclusion
of migrant communities in the National Action Plan for Social Inclusion.
xviii.
The remit of Office of the Ombudsman should be expanded to include areas relating to
immigration, asylum/protection determination process and naturalisation.
2.4 Access to Information and Services
xix.
A comprehensive translation and interpretation service should be available for migrants
accessing statutory services, information about the availability of an interpreting service and
the right to access an interpreting service should easily available and accessible in various
languages in all state agencies and offices offering a service to the public.
xx.
The strategy should recommend and implement training in cultural competence, anti racism
and diversity for statutory service providers and other service providers engaging with the
public.
xxi.
Professional body to oversee/ regulate the interpreting /translation services is needed.
xxii.
Specialised supports such as counselling provided by Spirasi, Rape Crisis Centres is under
resourced and very difficult for people in rural locations to access. More funding and
expanded services needed.
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2.5 Migrant Participation and Integration
i.
Migrant service users should be involved in the planning, design and delivery of services,
ranging from services affecting an individual, to inclusion in the planning and delivery of
wider services. For example Interagency Migrant Forums should be established at County
level to analyse, plan and respond effectively and culturally appropriately to the needs of
migrants living in the county. The Interagency Migrant Forum could be within the Local
Authority structure under the Local Community Development Council. New Irish
Communities are underrepresented on Local Community Development Councils and other
fora and steps must be taken to ensure their participation.
ii.
The Integration Strategy should recommend the building of community infrastructure in
order to enable migrants to come together through the provision of meeting space,
supporting the organisational development of groups and the provision of leadership training
in order that they can represent themselves and that their own voices are heard.
iii.
The Integration Strategy should ensure the building of alliances and partnerships between
migrant led organisations, community/voluntary group, NGOs working with migrant
communities and statutory services.
2.6 Funding
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iv.
The Integration Strategy should ensure that consistent and secure funding is made available
to implement recommendations from the Strategy to maintain the effectiveness of the
strategy in promoting integration.
v.
The Integration Strategy should ensure that legal services, information and advocacy
services are adequately resourced to ensure migrant’s can realise their rights following any
legislative changes.
vi.
The Integration Strategy should ensure the provision of more consistent, long term funding
and resources for community services and support systems delivered by community and
voluntary groups, charities and NGOs that have built the trust, confidence and skills of
migrants. Funding could be allocated through a central agency or through the Local
Authority structures.
vii.
Funding should be made available to support community based and voluntary organisations
and groups to carry out outreach work and consultation migrants. It must support them in
building trust with migrant communities and assist these service users in identifying their
own issues and needs. This must be followed by the building of capacity, collective action,
support and influencing of policy and practice which best meets the needs of migrant
communities.
2.7 Positive Action:
The Strategy should recommend the implementation of a system of positive action similar to that
implemented in local authorities in relation to achieving an employment rate of 3% of staff with a
disability. It has been documented in relation to employment, that migrants experience what
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McGinnity and Lunn (2011) refer to as the ‘ethic penalty’. As part of McGinnity and Lunn research
entitled ‘Measuring discrimination facing ethnic minority job applicants: an Irish experiment’, 500
equivalent C.V’s were sent out to Irish employers from a mix of Irish and minority candidates. The
report found that candidates with Irish names were over twice as likely to be called to interview as
candidates with African, Asian or German names. The report also found that the discrimination rate
in Ireland was high by international standards. Similarly a percentage of employees within statutory
agencies should come from ethnic minorities/migrant communities.
viii.
The Strategy should recommend the accommodation of the transfer of qualifications (from
migrant’s country of origin to the Irish education system) in a user-friendly manner and
accomplished in a short time frame. For example, a person who has already undergone a
four-year period of study in his or her own country should not be expected to undergo it
again within the Irish system when a short refresher or progression programme would
suffice.
ix.
The strategy should recommend and implement training in cultural competence, anti
racism/anti discrimination and diversity for members of the majority population. Promoting
integration is not solely the responsibility of migrants, without majority population
understanding of migration, cultural difference and the impact of discrimination meaningful
integration will not occur.
3. Conclusion
In conclusion the strength of any strategy is the ability to establish mechanism to review, monitor
and evaluate it comprehensively, including providing clear and uniform process that can be
monitored and evaluated. Therefore the Strategy should:

Ensure implementation strategies.
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
Review the Strategy in each county.

Ensure the same method of review is used in each region.

Ensure opportunities to identify problems and make appropriate amendments are built
into strategy.
Mayo Intercultural Action
Registered Charity CHY 17936
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