ENARO Spring Exchange 2012
June 8th – 15th 2012
Vulnerable groups,
including reception of specific minorities
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1. Introduction to ENARO
ENARO is an inter-institutional linkage between 19 European asylum reception organisations
coming together to exchange information, discuss current issues and trends within the field of
asylum. On the basis of discussion taken place at the Steering Committee meetings, themes for two
annual staff exchange programs are selected.
The aim of the programs is exchanging knowledge and "best practices" between staff of the member
states.
2. Introduction to toolkit
The knowledge and experience your colleagues in the host country have gained and the expertise that
they have developed during their work with asylum seekers is often the most valuable asset that an
organisation holds.
This toolkit is designed to assist ENARO-exchange candidates to dig in and identify this knowledge
in their field research in the exchange country. The approach is to collect relevant information on the
given themes with the view to achieving following goals and objectives: firstly, accessing factual
information about current vulnerable groups the host organisation deals with, conditions of their
stay in the country, services provided to assist them etc.; secondly and as the major and crucial part of
the field research, identifying and indepth covering of main issues and "best practices" we would
like you to explore during the exchange; finally, pointing out what specific "best practices" you have
found most applicable for your home organisation and how you are going to share that knowledge.
How to use the toolkit
 Please note that the questions are designed to function as a starting point. In answering them,
you are expected to elaborate on each topic rather than provide simple ‘yes’ or ‘no’ answers
 You may use interviewing, observation or a combination of both as methods to obtain
answers to the questions
 Spending time and collecting data is a unique feature of the field research, so do not hesitate
to adjust your approach to discoveries and developments in the field, you may encounter, if
these are necessary and relevant
 Use the Toolkit as a reporting format, when you are asked to submit it to the ENARO
Secretariat ( more information to follow)
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3. Program details
Participant Data
Name(s)
Kaspar Schøller Jakobsen
Organization
Red Cross
Country
Denmark
Host country
Belgium
Contact person
Host country & email
Mieke Candaele, Director of
Communication and
Information,
mieke.candaele@fedasil.be
Itinerary (Please insert list of places and people visited - see program)
Fedasil Headquarter
Abdel-llah El Abbassi
(Fedasil)
Geert Knockaert (Fedasil)
Pag-Asa
Martine Hendrickx (Fedasil)
Sahra De Hovre (Pag-Asa)
Huis van het
Nederlands
Lin Van Wayenbergh (Fedasil)
Brusselleer (Brussels
Education Centre)
Dawie Punga
BON (Brussels
welcome office for
people of foreign
origin)
Rachid Bouyahiaoui
Fedasil reception
centre at Rixensart
Thierry Pire (Fedasil)
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Eveline Vandendriessche
(Fedasil)
Fedasil reception
centre at
Steenokkerzeel
Eveline Moulart (Fedasil)
Fedasil Headquarter
Joke Impens (Mind Spring)
Dispatching Fedasil
Lin Van Wayenbergh
CGRS (Office of the Lin Van Wayenbergh
Commissioner
General for Refugees
and Stateless Persons)
4. Introduction to theme:
Each ENARO exchange is centered around a specific theme, which all exchange candidates are to
explore more in depth during their visit to their host organisation.
The theme for spring exchange 2012 is: "vulnerable groups, including reception of specific
minorities".
In Section 6 below, we ask each candidate to explore a number of issues around vulnerabilities of
asylum seekers.
It may differ from country to country, organisation to organisation, who is defined as vulnerable, and
which specific services and activities, if any, are provided for this group, depending on definitions.
Vulnerability may be an individual issue pertaining to background and circumstances of an asylum
seeker. However, asylum seekers may have common circumstances, which together may group them
as vulnerable, i.e. with specific needs compared to what is offered in general to all asylum seekers.
These groups could be unaccompanied minors, asylum seekers with health problems, either physical
or psychological, single women with children, trafficked women or other groups.
In Section 6 of this toolkit, we would like to have these issues further explored.
The theme also includes the category of minorities, and how these, if known to the organisation at all,
are received and accommodated. This group could include e.g. ethnic minorities, sexual minorities or
religious minorities.
Minority groups are not vulnerable per se, with special needs or circumstances, but depending on
reception, combination of asylum seekers, accommodation facilities or other issues, they may be in
risk of becoming so. This is a question we would also like you to explore in Section 6 of this toolkit.
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5. Host Country
1. Stakeholder / Operator
Fedasil (Federal Agency for the Reception of Asylum Seekers)
2. Main task:
Reception of asylum seekers: Fedasil is not only in charge of the Fedasil reception centres but
also for the overall distribution to reception centres run by other operators.
Preparation of the reception policy: Fedasil presents solutions and suggestions to the State
Secretary for Asylum and Migration.
Reception of unaccompanied minors: Fedasil also deals with the reception of unaccompanied
minors who do not apply for asylum.
Coordination of the voluntary return: Fedasil cooperates with IOM and Caritas to
coordinate voluntary returns. Fedasil i snot involved with forced returns?
Integration of the reception centres in the municipalities: Fedasil seeks to integrate the
reception centres in the municipalities, e.g. by using local schools and placing the reception
centres in, or near, inhabited areas.
European Refugee Fund: administration of ERF, information for potentially interested
associations, selection of the projects, support in the selected projects and assessment of the
realisation of the projects.
3. Number of asylum seekers between Jan – May 2012 :
Between Jan – May 2012 approximately 12,000 individuals applied for asylum.
The number is based on 9,256 asylum applications (files). In some cases an application covers
more than one individual.
4. Average duration of stay:
13 months
5. Arrival and Reception – procedure and accommodation upon arrival:
After registration, fingerprints and basic medical screening, information about the applicant
is sent to “Dispatching Fedasil” where they try to find a suitable reception centre. A transit
centre is widely used as initial and temporary accommodation. Ideally the stay in a transit
centre should not exceed 10 days, but the applicants sometimes end up staying 3-4 months.
The transit centre is also used for the repatriation phase.
Unaccompanied minor asylum seekers (UMAs) are offered accommodation in an
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“observation and orientation centre” for 2-4 weeks before they are transferred to a reception
centre. Other groups also have an observation period in the form of social and medical
monitoring for 2-4 weeks, but it takes place in a reception centre. The aim is to try to find
the most suitable accommodation and screen for special needs.
6. Types of accommodation:
In the Belgian asylum system there are two basic types of accommodation: Collective
reception facility and individual reception facility.
The collective reception facilities consist of reception centres where 19 are operated by
Fedasil. Some of these are special centres which differ from the normal centres in various
ways:





Four of the centres are for asylum seekers with special medical needs.
Four of the centres are used for repatriation.
Two “observation and orientation centres” (OOC) for UMAs
One OOC for minors who do not apply for asylum
One transit centre for arrivals and departures
The individual reception facilities consist of flats which can be applied for after 4 months
without decision in the asylum application. The flats are organized by the municipalities and
VwV & Ciré.
Apart from the Fedasil reception centres there are 35 centres run by The Belgian Red Cross.
Hotels are used as temporary accommodation when there are no places available in the
reception centres.
7. Main activities / services provided:
The reception centres offer language or computer classes, sewing and cooking classes,
technical training and sports facilities. The asylum seekers can earn pocket money by
cleaning, doing kitchen-work and doing the laundry.
The language courses inside the reception centres are taught by volunteers or paid social
workers. Language courses outside the reception centres are taught by qualified teachers
and can be applied for after 4 months of stay without a positive decision in the asylum
case.
8. Access to work, education, health care:
Since January 2010 access to labour market has been granted to asylum seekers who do not
receive a reply within 6 months.
If the applicant earns more than what a Belgian citizen would be able to receive in social
benefits, the applicant is asked to leave the reception centre. If they earn less than social
benefits, they can stay in the reception centre, but they are supposed to contribute to the
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centre by giving some money. However, there is no accurate procedure for the size and
handling of this contribution.
Asylum seekers have access to education as they are offered language classes inside the
centres. Monitoring internal language classes was not part of the exchange programme, but
we briefly passed by a classroom where UMAs were taught Dutch by an Italian volunteer.
Regarding adult asylum seekers language classes and other educational programmes can be
applied for after 4 months of stay without a decision in the asylum case. Education outside as
well as inside the centres is free of charge. If the applicant has the qualifications necessary
he/she can for example subscribe to a university. It is, however, unclear, who pays the
transport to school. I monitored a Dutch lesson in Huis van het Nederlands, but there were
no asylum seekers among the students.
School is compulsory for minor asylum seekers (from 6-18 years).
Health care is free for everyone, but only urgent medical assistance is offered to rejected
asylum seekers. A doctor and nurses are available at the reception centre, and in some cases
the asylum seekers use a private GP. If necessary, for example in cases of trauma and severe
stress, asylum seekers have access to external psychological support.
9. Rejected asylum seekers – Rights and Obligations:
Rejected asylum seekers have the right to enrol in a voluntary return program.
When the case is rejected, the applicant is transferred to one of the repatriation centres. If
the applicant does not enrol in voluntary return, he/she is asked to leave the reception centre
or flat.
Rejected asylum seekers have access to urgent medical care.
School is compulsory for rejected minor asylum seekers whereas education is not possible for
adult rejected asylum seekers. They are, however, allowed to finish a courses started before
the negative decision.
10. Cooperation / Chain partners:
Accomodation :
Croix-Rouge Fr.(19 centres), Rode Kruis Vlanders (16 centres) Belle Vue
(2 centres), VwV & Ciré (2000 places in flats), ILA (9200 places in flats in municipalities),
Samu social, les Sept lieues, Broeders van Liefde, Hotels in Brussels.
Education/language/integration :
Huis van het Nederlands (Dutch Language House), Brusseller (Brussels Education Centre),
BON (Brussels welcome office for people of foreign origin), Mind Spring
Human Trafficking :
PAG-ASA, payoke and asbi SÜRYA
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6. Vulnerable persons:
1. Definition:
Who is defined as vulnerable? Are there any criteria for determining a person's vulnerability?
Does it imply joint approach of psychologists, soc. workers, asylum seekers etc.?
The following are defined as vulnerable groups:
 Unaccompanied minors
 Asylum seekers with special medical needs and physical challenges
 Pregnant minors
 Asylum seekers with a mental illness
 Asylum seekers with chronic mental illness
2. Screening:
Does the organisations screen for vulnerabilities?
If so,
- which methods are used
- who carries out the screening
- when is the screening carried out (upon arrival, after Dublin phase, etc.)?
The Fedasil reception centres all have a 30 day observation period with special focus on
spotting vulnerabilities. The screening in normal reception centres is not formalized or
carried out by specially trained staff. Observations are discussed on cross-functional
meetings. Regarding UMAs there are OOCs, i.e. observation and orientation centres, where
all unaccompanied minors stay from 2-4 weeks, in order to find the best possible centre for
each individual. The 2-4 week period is often extended up to 2-3 months because of space
problems or because some UMAs are not cognitively capable or being suppressed by other
groups and therefore not ready to move to a reception centre. The screening of the UMAs in
the OOC is carried out by social workers, who get the necessary skills to do so by job
training on the work place, i.e. not by formal qualifications and courses.
3. Accommodation:
Are vulnerable groups accommodated differently from the majority of asylum seekers (e.g.
special centers or orphanages for unaccompanied minors, safe houses for trafficked women,
other institutions used outside those of the asylum system) ?
There are special observation centres for UMAs. Apart from this observation period there
are no special centres for UMAs, but there are sections for this group within all reception
centres. From September 2012 there will be 10 places reserved to a “time-out” group, where
aggressive and problematic UMAs will be observed and “trained” for 5 days.
There is a special section in Rixensart for pregnant UMAs.
There are four centres for asylum seekers with special medical needs.
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Fedasil cooperates with three organizations which offer safe houses for victims of human
trafficking. PAG-ASA, payoke and asbi SÜRYA. PAG-ASA runs a “shelter house” and also
offers accommodation in transit apartments, where the victims can stay for 6 months
without paying rent.
4. Access
Do vulnerable groups have access to specific health services (medical as well as psycho social),
specific education programs, and other specific services?
The central “distribution” of asylum seekers (Fedasil dispatching) seeks to take special needs
into consideration when directing applicants to reception centres. If they are aware of special
physical needs, they try to place the applicant in a centre not far from the needed health
service.
There are clinics with a doctor and a nurse in each reception centre. Pregnant UMAs are
offered a consultation with a doctor and nurse the day after arrival. If needed they are
offered an appointment with a specialist outside the centre.
When they turn 18, pregnant UMAs are offered a place in a “social house” in the local
municipality, which can be seen as a transit between the centre and total independency.
5. Strategies
Are there any strategies for procedures for working with vulnerable groups; either national
strategies or specific strategies within the organization? If yes, how are they implemented? How
is the personnel introduced to working with them?
Fedasil has a four stage plan for working with vulnerable groups. It was launched 2 years
ago - the first two stages have already been implemented; the last two stages are still under
development. All the stages can be seen as an attempt to deal with, and prevent, the mental
illness which can develop in the asylum phase.
Stage 1: How to organize “institution-related problems”, i.e. how to deal with practical
problems when people have to live in a collective reception facility (e.g. cleaning, sharing
rooms) and how to deal with the following frustration and mental fatigue.
Stage 2: Empowerment. How to prevent institutionalizing and passiveness, e.g. via
networking programmes, “Mind Spring” and other psycho-educational approaches.
Stage 3: Specialization. The ambition is to establish “mental health centres”, i.e. centres for
asylum seekers with special mental problems, and to establish special health clinics for
families. The centres are going to be sponsored by ERF.
Stage 4: To establish special programmes for asylum seekers with chronic
psychological/mental problems. The programmes should be developed in close cooperation
with external associates/partners (e.g. Caritas).
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6. Partnerships
Does the organisation cooperate with other partners in providing services to vulnerable groups?
Are there any rules for transferring and sharing information about vulnerable groups?
With regards to human trafficking, Fedasil cooperates with PAG-ASA, payoke and asbi
SÜRYA. Regarding psycho-education Fedasil cooperates with Mind Spring.
The health section working within Fedasil reception centres is restricted by medical
confidentiality; hence there are obvious problems with transferring and sharing of
knowledge relevant to vulnerable groups. However, the social workers also gain information
about the asylum seekers and can, if relevant, share the information internally. An example
is knowledge sharing between the OOC for UMAs and the reception centres; social workers
at the OOC conduct interviews with UMAs to gain their confidence, but also to share the
information with the reception chosen for the UMA after the initial phase. The gained
information is not shared with the Immigration Department.
7. Transfer
If the asylum case is accepted, how is the transfer of vulnerable persons from the asylum system
to that of integration carried out; in terms of stakeholder's cooperation, special programs, etc.
Fedasil cooperates with the municipalities regarding housing and education. No specific
programmes, tools or practices were revealed during the exchange.
8. Return
If rejected, can vulnerable asylum seekers participate in specific return programs?
Rejected asylum seekers have the right to enrol in IOM and Caritas’ program REAB
(Return and Emigration of Asylum Seekers in Belgium). The REAB program may also,
based on individual circumstances, include additional support for reintegration, e.g. medical
assistance, training courses, temporary accommodation, starting up a small business and
tracing family members.
9. Specific challenges
Is the organisation met with specific challenges in working with vulnerable groups?
If so, are these challenges constrained to specific areas of work; health care, special activities
for vulnerable groups, special training courses for the personnel to be able to cope with
vulnerable groups ?Are there other tools within the organisation to create a safe environment
for vulnerable groups?
Fedasil is met with the challenge of receiving an increasing number of UMAs. The
organization seeks to handle the challenge by providing fixed boundaries, clear rules and a
“direction” very early in the applicant’s asylum phase. The OOC seeks to create a protective,
and sometimes also strict atmosphere, which is gradually loosened according to the
individual’s behavior, maturity and age. As a starting point, the UMAs have a curfew, they
are not allowed to receive visitors and they are not allowed to visit friends. Their mobile
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phones are confiscated and there is no internet access. Breaking the rules will typically result
in a penalty, e.g. not being allowed to join the group for the weekly trip to the city.
Fedasil seeks to continue the gradual development of the UMAs in the UMA sections in the
reception centres. If they want to visit a friend, the social worker will accompany the minor
the first time to get an impression of the friend, the conditions etc. In Rixensart, where they
accommodate pregnant UMAs, they have started a new project called “life project”. The aim
is that the UMA gets an understanding of the situation (why am I here…?) and also reflects
on future possibilities and obligations (what are my rights, school is obligatory). The
ambition is to use “life project” in other sections for UMAs.
10. Good practices
Have you seen specific activities you would recommend as good practices?
The OOC (observation and orientation centre) for UMAs
The idea of an initial phase where a vulnerable group can be given a direction, observed and
directed to a suitable accommodation, seems like a good practice for spotting vulnerabilities
(within a vulnerable group) and for developing the UMAs gradually into autonomy.
The 30 days observation period in all centres
The idea of having special focus on spotting vulnerabilities in the first period of stay may
prevent that certain vulnerable groups/individuals are forgotten.
The special section for pregnant UMAs at Rixensart
The section provides a safe and warm atmosphere. All pregnant UMAs are offered a medical
consultation the day after arrival. The pregnant UMA can choose two social workers as
contact persons who will assist them during delivery. The “life project” seems to be a good
way of working strategically with the UMAs, facilitating empowerment and progress.
The division of classes at BON (Brussels welcome office for people of foreign origin)
BON seeks to divide students according to both mother tongue and educational background
when offering integration programmes. As a starting point they divide the students in 3
sectors: “high education”, “low education” and “alphabetizing”. Furthermore they have a
“mixed class” for those who speak a language not represented by many (e.g. Farsi).
Additionally they have classes for highly educated individuals who already have a university
degree or want to finish a university programme already started upon. These advanced
classes are typically larger than the others (max. 40 students compared to normally max.
15/20 students) and they take form as lectures offering fast progress. The integration
programme seeks to rethink the integration aspect and tends to emphasize concepts like
“social participation” and “emancipation and living in a society”.
Dutch Language House
It seems to be a benefit that language- and integration courses are combined in one location.
The Dutch Language House contains a distribution unit, a language school (Brusselleer) and
a centre for integration (BON). The synergy and knowledge sharing is enhanced in a cross
functional learning environment.
Combination of centres and flats
The possibility of applying for individual accommodation relatively early in the asylum
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process seems to facilitate empowerment and prevents institutionalization. Moving UMAs
gradually from centre life to independency via a social house seems to be a good way of
establishing coherence and preventing social isolation.
Special waiting room
In the Immigration Department, where asylum seekers apply for asylum, there is a special
waiting room for UMAs. In that way there is a special focus on a vulnerable group very early
in the asylum process.
MindSpring
MindSpring is a well-documented way of dealing with mental-health education. The aim of
the programme is to learn how to cope with the actual situation.
7. Conclusion and follow-up:
Personal remarks; How was the overall impression of the organization
Fedasil comes across as a very organized and professional organization. The headquarter is a
centre of professionalism and strategic development. The employees at the centres I visited are
welcoming and professional. They clearly have good contact with their target group and they have
a well structured approach to improve the conditions for a group in obvious need.
Which best practices have you seen that you would like to develop in your own organization
(please also note if you have become familiar with practices not necessarily pertaining to
vulnerable groups)?

The OOC (observation and orientation centre) for UMAs

Classes for highly educated individuals

The 30 day observation period in all centres
Are there any best practices from your organization you could see implemented in your host
organization?
Special centres for UMA’s and women. Professional language courses in reception centres
(considering the average stay is 13 months).
Reception centre for asylum seekers with special mental and psychological problems.
Special needs teaching
Red cross language school in Copenhagen
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How do you plan to share your knowledge gained from your visit at the host organization in
your own organization upon return?
- Please set 3 goals for knowledge sharing.

Presentation at a staff meeting (approx. 30 teachers and counsellors)

Presentation at a managers’ meeting

Establish ENARO Workshop at the annual Red Cross Conference (approx. 800
employees)

“Trainee period” for the two Danish ENARO participants
Do you have suggestions for future exchange programs?
Internal end external knowledge sharing in the perspective of transferring information and
experience from the asylum phase to the period after a positive or negative decision in the
asylum case.
Please think of some of the most outstanding practices you encountered that you would like
to contribute with and present at the Closing Conference in November of 2012.

The OOC (observation and orientation centre) for UMAs

Classes for highly educated individuals

The 30 day observation period in all centres
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