Programmes for assisted return to Afghanistan, Iraqi Kurdistan, Ethiopia and Kosovo

225 Pages·2016·11.59 MB·English

R 2016: 2
Programmes for assisted return to Afghanistan,
Iraqi Kurdistan, Ethiopia and Kosovo:
A comparative evaluation of effectiveness and
outcomes
Arne Strand (team leader), Synnøve Kristine Nepstad Bendixsen,
Hilde Lidén, Erlend Paasche and Lovise Aalen
With Asnake Kefale, Sara Khadir, Ali Kurdistani, Hana Limani and Akbar Sarwari
Chr. Michelsen Institute (CMI)
is an independent, non-profit
research institution and a
major international centre in
policy-oriented and applied
development research. Focus
is on development and human
rights issues and on international
conditions that affect such
issues. The geographical focus
is Sub-Saharan Africa, Southern
and Central Asia, the Middle East
and Latin America.
CMI combines applied and
theoretical research. CMI
research intends to assist policy
formulation, improve the basis
for decision-making and promote
public debate on international
development issues.
Programmes for assisted return to
Afghanistan, Iraqi Kurdistan,
Ethiopia and Kosovo:
A comparative evaluation of
effectiveness and outcomes

Arne Strand (team leader), Synnøve Kristine Nepstad Bendixsen,
Hilde Lidén, Erlend Paasche and Lovise Aalen
With Asnake Kefale, Sara Khadir, Ali Kurdistani, Hana Limani and Akbar Sarwari

R 2016: 2
Authors: 
Arne Strand, Chr. Michelsen Institute 
Synnøve Kristine Nepstad Bendixsen, Uni Research Rokkansenteret 
Hilde Lidén, Institute for Social Research 
Erlend Paasche, Peace Research Institute Oslo 
Lovise Aalen, Chr. Michelsen institute 

Front‐page picture:  Bakery in Jalalabad, Afghanistan (Arne Strand) 
Project number: CMI 13078 
Project title: Comparative study of assisted return 

ii
Contents

List of tables and boxes ................................................................................................................................ vi
Abbreviations ............................................................................................................................................ viii
Executive summary ...................................................................................................................................... 1
1. Introduction ...................................................................................................................................... 15
2. Terms, concepts and categorisation of returnees ............................................................................... 17
2.1 Sustainable return .................................................................................................................................. 17
2.2 Typology of returnees ............................................................................................................................ 19
2.3 Implementing partners and different programme components ............................................................ 20
2.4 Programme phases and potential implementers ................................................................................... 22
3. Methodology and informant profile .................................................................................................. 25
3.1 Overall methodological design and considerations ............................................................................... 25
3.2 Country specific methodology ............................................................................................................... 27
3.3 Basic primary informants information from country cases .................................................................... 31
4. Norway: The decision to leave their country of origin ........................................................................ 33
4.1 Security issues and fear of persecution .................................................................................................. 33
4.2 Economic incentives ............................................................................................................................... 33
4.3 The stay in Norway ................................................................................................................................. 34
4.4 Living for a longer period in reception centre ........................................................................................ 35
4.5 Living outside the reception centre ....................................................................................................... 36
4.6 Short stay in Norway .............................................................................................................................. 37
5. Decision making: Motivations for applying for assisted return policies .............................................. 38
5.1 Models of individual action .................................................................................................................... 38
5.2 Conditions in Norway ............................................................................................................................. 39
5.3 Expected conditions in the country of return ........................................................................................ 42
5.4 Three categories of subjective experiences of signing up ...................................................................... 44
5.5 Knowledge of the return programmes ................................................................................................... 45
5.6 Return‐ and reintegration assistance as a motivating factor? ............................................................... 46
5.7 Contact with IOM and NGOs .................................................................................................................. 46
5.8 Differences between those living inside and outside reception centre ................................................. 47
5.9 The role of time ...................................................................................................................................... 48
5.10 The role of others in making the decision ......................................................................................... 49
5.11 Sticking with the decision to return................................................................................................... 51
5.12 Conclusion ......................................................................................................................................... 52
6. The idea of return: Predictability or uncertainty ................................................................................ 54
6.1 Predictability in the return process ........................................................................................................ 54
6.2 The various meanings of “return” .......................................................................................................... 54
6.3 Expectation management ...................................................................................................................... 55
6.4 Conclusion .............................................................................................................................................. 57
7. Afghanistan ...................................................................................................................................... 58
7.1 Introduction............................................................................................................................................ 58
7.2 Data and profiles of respondents ........................................................................................................... 59
7.3 Decision making: Motivations for applying for assisted return ............................................................. 63
7.4 Logistics: Processing time and travel ...................................................................................................... 64

iii
7.5 Reintegration starts at the airport: The first encounters with IOM in the country of origin ................. 65
7.6 Reintegration assistance after the first meeting .................................................................................... 66
7.7 Business .................................................................................................................................................. 68
7.8 Employment ........................................................................................................................................... 71
7.9 Education and VTY .................................................................................................................................. 71
7.10 Housing allowance ............................................................................................................................. 72
7.11 Actor assessment ............................................................................................................................... 74
7.12 Present situation and future.............................................................................................................. 75
7.13 Families, children and gender............................................................................................................ 77
7.14 Conclusion ......................................................................................................................................... 77
7.15 Recommendations ............................................................................................................................. 78
8. Iraqi Kurdistan .................................................................................................................................. 80
8.1 Introduction............................................................................................................................................ 80
8.2 Country background ............................................................................................................................... 80
8.3 Data and profile of respondents ............................................................................................................ 82
8.4 Decision making: Motivations for applying for assisted return ............................................................. 86
8.5 Logistics: Processing time and travel ...................................................................................................... 87
8.6 At the airport: The first encounter with IOM in country of origin ......................................................... 88
8.7 Reintegration assistance after the first meeting .................................................................................... 91
8.8 Business .................................................................................................................................................. 92
8.9 Employment ........................................................................................................................................... 97
8.10 Education ........................................................................................................................................... 98
8.11 Other types of reintegration assistance ............................................................................................ 99
8.12 Actor assessment ............................................................................................................................. 102
8.13 Present situation and future............................................................................................................ 109
8.14 Families and children ....................................................................................................................... 114
8.15 Gender ............................................................................................................................................. 115
8.16 Conclusions ...................................................................................................................................... 115
8.17 Recommendations ........................................................................................................................... 116
9. Ethiopia ........................................................................................................................................... 119
9.1 Introduction.......................................................................................................................................... 119
9.2 The Ethiopian migration context .......................................................................................................... 119
9.3 Data and profile of respondents .......................................................................................................... 120
9.4 Decision making: Motivations for applying for assisted return ........................................................... 123
9.5 Logistics: Processing time and travel .................................................................................................... 125
9.6 Reintegration starts at the airport: The first encounter with IOM/ARRA in country of origin............. 125
9.7 Reintegration assistance after the first meeting .................................................................................. 126
9.8 Business ................................................................................................................................................ 127
9.9 Employment ......................................................................................................................................... 129
9.10 Education ......................................................................................................................................... 129
9.11 Reintegration assistance for the vulnerable .................................................................................... 129
9.12 The Returnee Community Assistance Programme (RCAP) .............................................................. 129
9.13 Actor assessment ............................................................................................................................. 131
9.14 Present situation and future............................................................................................................ 136
9.15 Families, children and gender.......................................................................................................... 139
9.16 Conclusions ...................................................................................................................................... 139
9.17 Recommendations ........................................................................................................................... 140
10. Kosovo ............................................................................................................................................. 142
10.1 Introduction ..................................................................................................................................... 142
10.2 Country background ........................................................................................................................ 142
10.3 Data and profile of respondents ...................................................................................................... 144
10.4 Decision making: Motivations for applying for assisted return ....................................................... 149

iv
10.5 Return decision making and the threat of deportation ................................................................... 149
10.6 Logistics: Processing time and travel ............................................................................................... 153
10.7 At the airport: The first encounter with IOM in country of origin ................................................... 153
10.8 Reintegration assistance after the first meeting: Additional in‐kind support for vulnerable ......... 155
10.9 Actor assessment ............................................................................................................................. 159
10.10 What returnees point to as strengths and weaknesses .................................................................. 160
10.11 Present situation and future............................................................................................................ 164
10.12 Families, children and gender.......................................................................................................... 166
10.13 Conclusions ...................................................................................................................................... 166
10.14 Recommendations ........................................................................................................................... 167
11. Comparison between cases .............................................................................................................. 169
11.1 Leaving the country of origin ........................................................................................................... 169
11.2 Applying for assisted return and leaving Norway ............................................................................ 170
11.3 Reintegration assistance and process ............................................................................................. 171
11.4 Actor assessments ........................................................................................................................... 172
11.5 The present and the sustainability of return ................................................................................... 173
12. Conclusion and recommendations .................................................................................................... 176
12.1 Main findings divided by return phases .......................................................................................... 176
12.2 Aspiration and ability factors ........................................................................................................... 180
12.3 Main evaluation questions .............................................................................................................. 181
12.4 Recommendations ........................................................................................................................... 184
Annex I: Overview of assisted return packages and support ...................................................................... 187
Annex II: Comparison between cases (tables) ............................................................................................ 190
Leaving from home ........................................................................................................................................ 190
Applying for assisted return and leaving Norway .......................................................................................... 191
Reintegration assistance and process ............................................................................................................ 192
Actor assessment for IOM and ARRA ............................................................................................................. 194
The present and sustainability of return ....................................................................................................... 194
Annex III: Terms of Reference: Oppdragsgivers beskrivelse av oppdraget .................................................. 196
Annex IV: Interview forms ......................................................................................................................... 200
Annex V: Information letter ...................................................................................................................... 209
Annex VI: Academic references ................................................................................................................. 210

v
List of tables and boxes
Table 1 – Type of returnee and post-return characteristic
Table 2 – Potential implementing partners for different activities
Table 3 – Type of support by country
Table 4 – Types of data
Table 5 – Vulnerability
Table 6 – Gender distribution
Table 7 – Age distribution
Table 8 – Civic status
Table 9 – Education
Table 10 – Type of activity upon departure from country of origin
Table 11 – Year of arrival in Norway
Table 11b – Number of years in Norway
Table 12 – Reasons cited for emigration from country of origin.
Table 13 – Reasons cited for coming to Norway in particular
Table 14 – Year of return to country of origin
Table 14b – Status of asylum application at the time of applying for assisted return, by year of return
Table 14c – Length of time from asylum application to application for assisted return
Table 15 – How returnees got to know about the programme
Table 16 – Processing time in months from application to departure
Table 17 – How well organised was the return journey?
Table 18 – Assistance at airport
Table 19 – Expenditure of cash grant/check received at the arrival
Table 20 – Cited importance of money received at arrival
Table 21 – Which type of support did returnees choose?
Table 22 – Processing time from stated preference of support until it was received
Table 23 – Characteristics of business

vi
Table 24 – How long were businesses operative, if closed at time of interview?
Table 25 – Characteristics of business. Telephone interviews only
Table 26 – Characteristics of employment.
Table 27 – Characteristics of employment. Telephone interviews only
Table 28 – Housing allowance
Table 29 – Respondents’ assessment of IOM in Norway
Table 30 – Respondents’ assessment of IOM in Norway by activity
Table 31 – Respondents’ assessment of IOM in Norway by education
Table 32 – Respondents’ assessment of IOM in country of origin
Table 33 – Respondents’ assessment of IOM in country of origin by activity
Table 34 – Respondents’ assessment of IOM in country of origin by education
Table 35 – Was the information about the return programme in Norway accuarate?
Table 36 – Is your personal situation after return very different from what you had expected?
Table 37 – Will you remain where you live now or go somewhere else?

Table 38 – Re-migration plans among those who have a friend/relative who has left after their return
Table 39 – Is the programme seen to allow for a sustained stay?
Table 40 – Biggest advantage of the programme
Table 41 – Do you advise or recommend your friends in Norway to return through assisted return
programmes
Table 42 – Respondents’ assessment of ARRA by activity
Table 43 – Respondents’ assessment of ARRA by education
Table 44 – How was the information inaccurate (in Ethiopia)?
Table 45 – Type of activity at the time of the interview
Box 1 Female asylum seekers and cultural practice
Box 2 Vulnerability, place of residence and security
Box 3 Vulnerability, health and gender
Box 4 Three deportees on the decision not to apply for assisted return

vii
Abbreviations
ARE Assisted Return to Ethiopia
ARRA Administration for Refugees and Returnees Affairs
AVR Assisted Voluntary Return
AVRR Assisted Voluntary Return and Reintegration (used by IOM)
CMI Chr. Michelsen Institute
EPRDF Ethiopian People’s Revolutionary Democratic Front
ERIN European Reintegration Network
ETB Ethiopian birr
EUR euro
FSR Financial Support to Return
HA housing allowance
HG headquarters
IDP internally displaced person
IOM International Organization of Migration
IRRANA Information, Return and Reintegration of Afghan Nationals to Afghanistan
IRRINI Information, Return and Reintegration and of Iraqi Nationals to Iraq
ISF Institutt for Samfunnsforsking
IQD Iraqi dinar
KDP Kurdish Democratic Party
KLA Kosovo Liberation Army
KRG Kurdish regional government
MFA Ministry of Foreign Affairs
MOJ Ministry of Justice
MORR Ministry of Refugees and Repatriation (Afghanistan)
MOU memorandum of understanding
NATO North Atlantic Treaty Organisation

viii