• Text size Normal size text | Increase text size by 10% | Increase text size by 20% | Increase text size by 30%

EU asylum programme must focus on burden-sharing, says Lubbers

News Stories, 5 November 2004

© UNHCR/M.Cierna
A refugee reception centre in Adamov, Slovakia. Greater burden-sharing within the EU is crucial as more asylum seekers flock to new EU states like Slovakia.

GENEVA, Nov 5 (UNHCR) The UN refugee agency has welcomed today's adoption of the European Union's new multiannual asylum programme, but warned that much more needs to be done for refugee protection both in Europe and beyond.

"UNHCR looks forward to working with the EU to make sure that we provide better protection to refugees," said UN High Commissioner for Refugees Ruud Lubbers, responding to the European Council's adoption of the EU's five-year programme in the area of freedom, security and justice, known as the "Hague Programme", in Brussels on Friday.

He added, "The first phase of EU harmonization of asylum policy was only a beginning. Much more needs to be done, both within Europe's borders and beyond."

The first phase, from 1999-2004, saw the adoption of a set of directives containing minimum standards. Now that EU countries must transpose these directives into national legislation, UNHCR has urged them to adopt or retain national laws which offer higher levels of refugee protection instead of harmonizing their policies at the level of the lowest common denominator allowed by the directives.

In an editorial released earlier in the day, Lubbers had advised EU leaders that to manage instead of simply react to today's asylum and migration challenges, they need to harmonize not only their laws but also their practice.

The Hague Programme states that the transposition process will be monitored, with an evaluation of the measures adopted in the first phase of harmonization set for 2007. UNHCR has called on the EU to ensure that the process is transparent and consultative, taking into account the views of independent experts, including UNHCR and specialised non-governmental organisations.

In Brussels, EU leaders agreed to put a common asylum system in place by 2010, with the European Commission studying the legal and practical implications of joint processing of asylum applications within the EU.

As High Commissioner Lubbers pointed out in this morning's editorial, the current standards of refugee recognition and asylum procedures in EU countries vary greatly. UNHCR hopes that the joint processing, if it is ever adopted, will ensure greater consistency and higher quality in decision-making.

This, in turn, could lead to a faster and more efficient system for returning properly rejected cases to their home countries. In the meantime, practical cooperation among EU states and between them and UNHCR could help to improve asylum decision-making throughout Europe.

The refugee agency also welcomed the external dimension of European asylum policy, noting that the Hague Programme's "Regional Protection Plans" could fit well with UNHCR's Convention Plus initiative to help the bulk of the world's refugees who remain in developing countries. Thus the EU could contribute a great deal towards building a more accessible, equitable and effective system of refugee protection worldwide.

"These plans should be directed at a genuine improvement in the protection and welfare of refugees in other parts of the world," said Lubbers. "They must also be coupled with European readiness to share responsibilities with the developing countries where most of the world's refugees are sheltered. If their purpose is simply to shift the burden, then not only will they be doomed to failure, they will also seriously undermine the global refugee system, to the detriment of everyone including the EU itself."

In his editorial, the High Commissioner had urged EU leaders to shun political expediency in favour of a reliable asylum system that is fair and efficient.





Advocacy is a key element in UNHCR activities to protect people of concern.

Convention Plus

International initiative aimed at improving refugee protection worldwide and to facilitate the resolution of refugee problems through multilateral special agreements.


UNHCR advocates fair and efficient procedures for asylum-seekers

Zero-Star "Hotel" that Asylum-Seekers Call Home in Dijon

France is one of the main destinations for asylum-seekers in Europe, with some 55,000 new asylum applications in 2012. As a result of the growing number of applicants, many French cities are facing an acute shortage of accommodation for asylum-seekers.

The government is trying to address the problem and, in February 2013, announced the creation of 4,000 additional places in state-run reception centres for asylum-seekers. But many asylum-seekers are still forced to sleep rough or to occupy empty buildings. One such building, dubbed the "Refugee Hotel" by its transient population, lies on the outskirts of the eastern city of Dijon. It illustrates the critical accommodation situation.

The former meat-packing plant is home to about 100 asylum-seekers, mostly from Chad, Mali and Somalia, but also from Georgia, Kosovo and other Eastern European countries. Most are single men, but there are also two families.

In this dank, rat-infested empty building, the pipes leak and the electricity supply is sporadic. There is only one lavatory, two taps with running water, no bathing facilities and no kitchen. The asylum-seekers sleep in the former cold-storage rooms. The authorities have tried to close the squat several times. These images, taken by British photographer Jason Tanner, show the desperate state of the building and depict the people who call it home.

Zero-Star "Hotel" that Asylum-Seekers Call Home in Dijon

The makeshift camp at Patras

Thousands of irregular migrants, some of whom are asylum-seekers and refugees, have sought shelter in a squalid, makeshift camp close to the Greek port of Patras since it opened 13 years ago. The camp consisted of shelters constructed from cardboard and wood and housed hundreds of people when it was closed by the Greek government in July 2009. UNHCR had long maintained that it did not provide appropriate accommodation for asylum-seekers and refugees. The agency had been urging the government to find an alternative and put a stronger asylum system in place to provide appropriate asylum reception facilities for the stream of irregular migrants arriving in Greece each year.The government used bulldozers to clear the camp, which was destroyed by a fire shortly afterwards. All the camp residents had earlier been moved and there were no casualties. Photographer Zalmaï, a former refugee from Afghanistan, visited the camp earlier in the year.

The makeshift camp at Patras

East Africans continue to flood into the Arabian Peninsula

Every month, thousands of refugees, asylum-seekers and migrants from Somalia and Ethiopia cross the Gulf of Aden or the Red Sea to reach Yemen, fleeing drought, poverty, conflict or persecution. And although this year's numbers are, so far, lower than in 2012 - about 62,200 in the first 10 months compared to 88,533 for the same period last year - the Gulf of Aden remains one of the world's most travelled sea routes for irregular migration (asylum-seekers and migrants). UNHCR and its local partners monitor the coast to provide assistance to the new arrivals and transport them to reception centres. Those who make it to Yemen face many challenges and risks. The government regards Somalis as prima facie refugees and automatically grants them asylum, but other nationals such as the growing number of Ethiopians can face detention. Some of the Somalis make their own way to cities like Aden, but about 50 a day arrive at Kharaz Refugee Camp, which is located in the desert in southern Yemen. Photographer Jacob Zocherman recently visited the Yemen coast where arrivals land, and the camp where many end up.

East Africans continue to flood into the Arabian Peninsula

Italy: Mediterranean RescuePlay video

Italy: Mediterranean Rescue

The Italy Navy rescues hundreds of migrants and asylum seekers on the high seas as the numbers of people undertaking the crossing of the Mediterranean from North Africa grows.
Italy: Waiting for AsylumPlay video

Italy: Waiting for Asylum

Sicily has a high number of asylum-seekers because of its location in the south of Italy. In 2011, Cara Mineo was set up to provide asylum-seekers with a place to live while their applications were processed. Today, more than 4,000 people stay there and must wait up to a year for a decision on their applications.
Khaled Hosseini - No one chooses to be a refugeePlay video

Khaled Hosseini - No one chooses to be a refugee

UNHCR's 2012 World Refugee Day global social advocacy campaign, "Dilemmas", aims to help fight intolerance and xenophobia against refugees. UNHCR Goodwill Envoy Khaled Hosseini and a host of other celebrities echo the same strong message: No one chooses to be a refugee.