Reception desk at the Immigration Authorities office.
Reception desk at the Immigration Authorities office.
Unaccompanied children live in facilities run by the immigration authorities.
In the HOME project, emphasis is placed on children's perspectives and experiences of coming to Iceland and applying for international protection. A total of 31 children between the ages of 7 and 18 were consulted, along with young adults aged 18 - 21 who were children at arrival in Iceland. The children live in Reykjavik and Hafnarfjordur. We added the results of nine interviews with unaccompanied children by other parties. Furthermore, 12 parents were interviewed about their experience of accompanying children through the application process.
The children's perspectives are divided into five categories and the sixth category is based on the parents perspective.
Things that children find difficult:
Things that children and others suggest would improve the children's well-being:
Things that children find difficult:
Things that children and others suggest would improve children's well-being:
Things that children find difficult:
Things that children and other interviewees suggest would improve children's well-being:
Things that children and parents find difficult:
Things that children and others suggest would improve children's well-being:
Things that unaccompanied children find difficult:
Things that children and others pointed out would improve children's well-being:
Things parents find difficult:
Things that parents and others point out would improve children's well-being:
Quotes from the children.
“At school, no grown-up helped me, just a friend who spoke the same language.”
“I was very scared and shivered with fear [...] I was also aware that this was my last chance, the last stop for my life.”
“Waiting was difficult. We were scared of what would happen and we understood nothing.”
“I was lonely at first and wanted to go back.”
“I don’t see a difference between [my home country] and Iceland, except that I’m secure here. There is no one to help me. I am alone.”
Children’s area in front of the immigration authorities interview rooms
The work process is divided into five main components:
The first part of the project is the mapping of the asylum seeking process. The core insight is based on information provided by children that have or where currently applying for international protection, alongsight reflections from parents and major stakeholders. In this way, a realistic picture is drawn of the children’s experience and the experience of those who use and operate the reception process.
After mapping, we identify the problems most children experienced that indicate the challanges that need to be addressed when assessing the best interests of children seeking asylum.
Once the key concerns have been defined, they are presented to the stakeholders which are then asked to address them and design appropriate solutions. We focus on the issues that the children themselves consider most urgent to deal with. This prevents different stakeholders from identifying problems from their own point of view, as this could present problems that are a reflection of the organization itself and not the issues that the children themselves experience. The solutions are eventually evaluated and modified by the children.
The next step is to test the solutions on a small scale, to see how well they work and to take appropriate steps to improve them. Thus, testing is fundamental in verifying both the problem and the solutions, and making informed decisions about changes to the system that improve the situations of most people within it.
If tests show a positive result, a plan for permanent changes to the reception process can be proposed.
LISTENING TO THE CHILDREN
In the beginning of 2019, UNICEF and Grallaragerðin met with 31 children and young adults and discussed their experience of applying for international protection in Iceland. A journey mapping method was used, where the children’s journey upon arrival in the country was created with the help of paper, markers and emoji’s to symbolise their emotions. The children were between the ages of 7 and 18, and were joined by young adults over the age of 18 who had arrived in the country as children. All of the children resided in Reykjavik and Hafnarfjordur. Unfortunately we did not speak to children living in the third municipality that receives asylum seekers, Reykjanesbær, due to time constraints. We included in our research the results from a focus group of unaccompanied children held by the Red Cross during the same time period, as well as interviews with six unaccompanied children collected as part of an MA research study by Eva Björg Bragadóttir at the University of Iceland. Comparing results from other sources proved a valuable accompaniment to our work as it provided an opportunity to verify the journey mapping method we completed. The results of the interviews were quite similar and we therefore infer that the methodology of the project is justified. In addition, interviews were conducted with stakeholders describing the application process and their involvement in the reception process. It also provided important information that could be compared to the children's experience.
MAPPING THE PROCESS
The children's path through the reception process was mapped visually, from the airport or other point of arrival, to a residence permit or deportation. Emphasis was put on the first stages of the process, highlighting the importance of these first points of contact in a new country and how the start can affect everything that follows. Through the mapping process it is possible to gain a better understanding of each of the parties involved in the reception, so as to ensure that they are all participants in the project's conceptual work and that they are aware of the work that is being done. The visual map of the process can be used to disseminate information on the role of different stakeholders and also presented as child-friendly information about the reception process.
WORKSHOPS WITH SPECIALIST
In workshops we asked specialists in the reception of children from all relevant stakeholders to solve the challenges that the children had described. The solutions were generated during two workshops held on 26 March and 10 April 2019 at the Icelandic University of the Arts. A total of 36 experts from 16 different stakeholders participated. The main focus of the workshops was to present the perspectives of children who come to Iceland, to create sympathy, give people the opportunity for conversation and finally to develop solutions.
FEEDBACK FROM CHILDREN
After the workshops, we created visuals of these solutions and presented them to the children. We put models and descriptions of the solutions on display in the lobby of Bio Paradis (cinema). In groups, the solutions were described in the children's native languages and they then gave their feedback and were asked to choose the solutions that they thought were best.
HOME follows the methodology of human-centered design where users participate in the process of improving services for effective reform. Given the fact that the project is aimed at children who in many instances do not spend a long time in the country, it is important to find ways to respond quickly to problems within the reception process. Few Icelandic studies exist in this area and the nature of this research is such that the results are available long after the child needs assistance. Human-centered design is useful when a quick response is needed. In order to get the most comprehensive picture, it is also important to talk to parents and young adults who have past-experiences of the process.
The project was inspired by ’A holistic reception’ a project developed by Fornyelse Labbet, SVID (Swedish Center for Industrial Design) and UNHCR in 2018.
In the context of assessing the best interests of the child, various points were mentioned in the interviews with over 40 specialists from fifteen different stakeholders that are worth further consideration.
When speaking to professionals within the asylum system, it became clear that they felt uncertain about their responsibilities to protect the child’s privacy, and when it was appropriate to share information about children with other stakeholders. One example of this was when the child protection authorities asked the immigration authorities for an estimate of the length of a child's stay in the country. At first glance, this may seem like a reasonable question, however considering the child protection authorities’s duty to provide the child with services regardless of his or her legal status, and in accordance with the best interests of the child, it is clear that such information could result in discriminatory practices. For sensitive personal information, so-called ‘firewalls’ need to be in place in the asylum process where it is clear what information is shared and what is not shared. 1 (p. 13 and 58-62)
In almost all the interviews with stakeholders, they mentioned that the roles of different stakeholders are not clear. There were examples of children who needed assistance but did not receive any, as it was not clear who was responsible. It was noted that there is a lack of monitoring of the overall reception process and that no single person or office is responsible for coordinating the involvement of different stakeholders in the child's journey through different systems. The HOME project takes a holistic view on the reception process where different stakeholders need to come together and work in unison.
In small systems, such as in Iceland, each individual has a great impact especially when norms, rules and guidance are missing. In the interviews with stakeholders, it was repeatedly stated that the views and opinions of staff mattered a lot to the outcome. Procedures need to be improved, however it is also important to provide education and support as well as to set clear policies and monitoring protocols. It is important that the entire process is monitored by experts within the field.
In two full-day workshops over thirty professionals worked on ideas on how to improve the reception system for children. Their proposals are based on the children's views and their own experience of the reception process in Iceland. The ideas therefore derive entirely from experts within this field, however UNICEF in Iceland wholeheartedly supports the ideas generated and we believe that they solve the most pressing problems of children who apply for protection in this country.
Following the workshops, the children were given the opportunity to express their views on the experts' ideas and changes were made to the priority and emphasis given to each in accordance with the children's comments.
The proposals are ranked according to importance after both the participants in the workshops and the children were given the opportunity to vote on the ideas they considered most important.
Description:
The reception home is a special resource for unaccompanied children and young people. It is run by child welfare authorities and aims to safeguard the interests, safety, welfare, well-being and development of children. It is important to start immediately preparing the next steps in the child's life, whatever they may be. In the reception home there is always an adult on site and rules apply as in a normal home. The children receive life skills training. Cooked meals are served in the evenings and regular events are scheduled each week. Everyone gets a voice but has to follow the rules. On the upper floor of the building, the Children's House interview takes place and the house is within walking distance to school, swimming pool, library and gymnasium.
A home with such care enhances the confidence of the children seeking asylum and ensures integration into the community. A safe and happy child contributes to a happier community. The central idea is to bring services to the children. Interviews and life skills training are conducted in the house, but everything else takes place within the community. The accommodation is age and gender specific as required and children get their own private room.
Unaccompanied children are sent to the reception home immediately upon arrival (4 - 6 persons), with access to 24 hour services and access to specialists when needed. Children get a foster family and the foster families receive guidance. The children are guaranteed education or work, as well as leisure activities.
Suggested changes:
Stakeholders are the Ministry of Justice, the Ministry of Social and Child Affairs, municipalities, health care, child welfare authorities, educational authorities, the police, child advocates and the Immigration Office.
The benefits of these actions would be increased efficiency for the Directorate of Immigration and child protection, which would result in faster procedures and less spending in the long term. This would help all service systems, such as the police, educational authorities, sports and leisure activities, primary and secondary schools, etc.
What can be done right away!
While waiting for changes to take place, these steps can be taken in order to tackle the most pressing challenges right away.
Ensure food and rest on arrival: Nutritious food should be made available immediately upon arrival at the reception center in Bæjarhraun. No interviews should be held during night time. Rest, nutrition and health care should be provided before the police interview a child.
Care in Bæjarhraun: Hire an employee to supervise unaccompanied children at Bæjarhraun and manage the child’s daily activities, assisting them with food preparations and daily communication.
Services for 18 to 21 year olds: Ensure young people from 18 to 21 years of age continue to have similar services as are available to unaccompanied children.
Nutrition: Give one hot meal a day where the children can cook in collaboration with an employee.
Foster families: It is the duty of the child welfare authorities to always apply for foster care on the child’s behalf.
Learning and leisure: Provide all children with activities and educational or vocational training.
Supervision: Establish effective monitoring within the Government agency of child protection services and recruit a specialist in the affairs of asylum-seeking children.
Description:
Against loneliness emphasizes leisure and recreation for children to eliminate feelings of loneliness and anxiety after school hours and during school holidays. Furthermore it ensures that leisure activities are available before enrolment in a school. All children should be offered the opportunity to participate in activities that suit their area of interest and connect with the community on an individual basis. Emphasis is placed on hobbies and leisure and on creating customized solutions for each child, for example, with increased intimacy with animals. The aim is to ensure equal opportunities regardless of place of residence and it is important that the service team provided by local authorities share their experience.
The project will help prevent mental problems and combat xenophobia in the society, as well as create personal relationships through hobbies. In order to increase leisure options and introduce children to new opportunities, interest assessments can be applied or children can be encouraged to try two to three leisure activities.
Suggested changes:
The stakeholders are municipalities, sports clubs and art schools.
These actions provide benefits for sports clubs, music schools and the community as a whole, where unexpected talent and diversity can strengthen their activities. For children these activities provide more opportunities to get acquainted with Icelandic culture and begin integration and can directly improve children's mental health.
What can be done right away!
Description:
Today, healthcare for asylum seeking children in the capital area is in the hands of the outpatient ward for disease control and prevention. This ward is responsible for administering health assessment on asylum seekers and issuing health certificates, which is a prerequisite for children's enrolment in school. In “Healthcare for everyone”, health care clinics in the capital area open their general services for asylum seekers who are immediately informed on their rights and how to access services. At the health clinic there are opportunities to develop education for parents about nutrition, domestic violence, etc. and the possibility of offering psychological assistance.
The stakeholders are the Ministry of Health, the Ministry of Justice, the Ministry of Social and Child Affairs and the Immigration Office. Also involved are the Healthcare Center, the Red Cross, applicants for international protection and service teams in Hafnarfjörður, Reykjanesbær and Reykjavík.
The result of these changes would be that all healthcare staff learn how to use interpreting services such as Language Line. Positive attitudes towards diverse groups would increase. This reduces the likelihood of serious problems arising and as a result reduces the burden on other service providers. In line with this, positive media coverage could be promoted.
Suggested changes:
What can be done right away!
Description:
The ‘Information Center’ is both an information center and a migration center. There is an electronic information service, information officer, Icelandic parenting course, playground and day care for children in the same place. The goal is to increase information flow, reduce social isolation and uncertainty, improve mental well-being, simplify the system and facilitate waiting for young children. Information centers are important in catering to the experiences of children and their parents while they navigate the uncertainty of their situation and their lack of knowledge of Icelandic society which can lead to feelings of anxiety and helplessness.
The site meets an important need for community information and the rights and obligations of applicants. It increases the efficiency and relief of other members of the system, creates jobs and reduces prejudice. The site has a positive impact on the integration of applicants, which is subsequently positive for society as a whole.
Interested parties are applicants, ministries, municipalities, the Immigration Office, the Red Cross, as well as volunteers.
Benefits could be realised by utilizing the premises for other projects and linking children seeking asylum to new activities. You could set up such a test center for example in Hafnarfjordur, which aims to become a child-friendly municipality.
What you can do right away!
Description:
The aim of ‘Children’s Art Creation’ is for children who apply for international protection to get to know and share information as a way to breach their isolation and combat insecurity and anxiety. A children's band should be established and children's art exhibitions held. It will be important to invite Icelandic children to participate. Art classes should be established within the system and external art schools and institutions should also play a role. Securing a space and employees for these classes is an important next step in this process, and renowned artists should be involved where possible. A trial run will take place after the school calendar ends in the spring, e.g. 5 days after the week of the 13th to 16th.
This art program will have a positive effect on the well-being of the children and their parents and will open up dialogue between cultures. The aim is such that education will be available to children upon their arrival in the country and would ensure their engagement from the outset of their stay in Iceland. Art creation is unhindered by language barriers and promotes mental well-being and social connection. Participation in such classes increases the likelihood of a positive attitude during waiting periods, as well as helping children to adapt to their new environment. As an example, we suggest that the project should be linked to friendship projects in schools and in this way then be linked in with the activities of leisure and social centers. The project aims to generate good memories for the children, however care should be taken as this can also lead to disappointment when the process concludes and the relationship ends.
What you can do right away!
Description:
‘Outdoor Life and Friendship’ is a social project that builds bridges and facilitates friendships and communication between children and young people. This can be organized indoors and outdoors, e.g. with hikes and outings where the children support each other and work together to cultivate friendship and understanding through play and work.
The strengths of this project are that it provides the opportunity for informal learning of Icelandic culture and language while offering the children a sense of freedom, connection to and knowledge of nature, togetherness and connection. The project aims to reduce isolation, increase activity and to introduce children to new cultures and new places. This project would benefit from collaboration with youth movements active in Iceland such as, for example, the Scouts and/or Hitt Húsið. The first step in this project should be to test the project in a single place once a month and review the experiences of the children after the trips. A smaller version of the project should go to places that allow for movement and activity, e.g. a trampoline park.
The parties involved are municipalities, the Scouts, aid forces and tourism companies.
It can be expected this project will benefit the Scouts and other clubs and organisations by introducing new members to their activities and broadening the skill base and diversity of these groups.
Description:
‘Hand in Hand’ is a volunteer system where applicants can choose to pair up with a friend or support family who can help them within their daily life or provide companionship. This system could also include counseling and instruction on navigating Icelandic society. This is an important task because it reduces isolation and marginalization, increases social integration and builds self-confidence through experience.
The application process and education materials for the project can be digitally administered, however communication needs to be delivered in person and foster mutual friendship. It may prove difficult to attract volunteers to be involved in the first instance and it is suggested that people who have experience of living outside of their home country, such as Icelanders who have lived abroad or foreigners who have moved to Iceland, should be approached to take part.
In order for the idea to be effective, one party is needed to take charge of this system. Collaboration would be possible with other institutions such as the University of Iceland. Costs would be marginal when compared with the benefits to those involved. Volunteers and families in search of protection can attend courses and receive introductory video tutorials tailored towards the needs of both adults and children. After this, an employee would need to keep track of volunteers and look after them.
The concept is fairly clear as an understanding of the role of a support family is already known within the Icelandic community and it is therefore considered broadly feasible. Obstacles might be experienced when assessing support families and finding people to pair up with families in need of support. It is important to conduct frequent follow-ups with all of the parties involved so that the project is as effective as possible.
In recent years, the number of children applying for international protection in Iceland has increased significantly. The reception of asylum seeking children has been criticised by NGOs and the public, and in 2018 the UNICEF Research Institute published a report on the status of children applying for international protection in the Nordic countries. The report revealed problems in the reception of asylum seeking children in all the countries.
Subsequently, UNICEF Iceland decided to focus on Article 3 of the Convention on the Rights of the Child. The project HOME examines the reception of children who apply for international protection in Iceland from the point of view of the children themselves, and thus sheds light on the issues that the Icelandic government needs to consider in order to comply with Article 3. The main goal of the project is thus to identify the main challenges in the reception and to find realistic solutions to how the government can better fulfil Iceland's obligations to children.
The project HOME is based on the third article of the Convention of the Rights of the Child, which requires authorities to assess and prioritise the best interest of the child. The third article is one of the fundamental principles of the treaty, along with a child's right to life and development, the right to be heard and right to non-discrimination. The article states that "the best interests of the child shall always be given priority when social, public or private, judicial, government or legislative measures are taken." The child’s best interest is thus one of the basic elements of the reception of children who apply for international protection and is all at once a right, a principle and rule of procedure.
However, human rights are more than a legal text. All decisions and procedures need to consider the child’s best interest in order for children to actually enjoy their human rights. This means that all decision makers need to assess what is best for the child in a formal way, and prioritize his or her interests. The government is encouraged to formalize such an assessment and ensure that experts in children's affairs are involved in the assessment. Among other things, the assessment should cover wellbeing, development, identification, safety, equality, education, health care, sensitive status, care, the child views, family and family reunification.
Assessment of the best interests of the child should be carried out at all stages of the reception process. On one hand, to evaluate what services the child needs and on the other hand for the decision on protection. It is important to understand how these two aspects of assessment work together. In fact, one can say that one cannot work without the other, ie. it is not possible to assess whether it is best for a child to stay in the state in question unless, on the basis of an assessment by the parties involved, the child's interests. Furthermore, it is impossible to make decisions regarding a child based on an assessment of what is best for the child, without such an assessment being part of a decision on refusal or protection.
“When we got the second refusal, I felt lost. I was angry, scared and confused”
The project is based on the perspectives of children and young people aged 7-21 that applied for international protection in Iceland in the years 2017 - 2018. The children are of different origins and they arrived in the country either alone or accompanied by parents. When we met them, some had already received protection but others were still in the process of applying for asylum. In addition to the childrens’ views, the findings are also based on parents' views and were compared with the views of the stakeholders who work within the field.
Here is a summary of children’s key challenges and the things that parents and caregivers pointed out could help children feel better:
Upon arrival in Iceland, many children said they were afraid of police and other government officials because of negative past experience. It is important to build trust with the authorities and provide clear and useful information for children to understand their position. The children experienced uncertainty and insecurity because they did not know what would happen next in the process or when. It is therefore important to inform children about the reception process and strive to make the timeline of the process clearer from the beginning. There is a great lack of child-friendly material and child-friendly facilities where information is provided efficiently. Places that did have some child-friendly facilities, such as toys, were fresh in the children’s memory and their experience became more positive. The children experienced a lot of waiting and found that specially difficult. There was also a lack of preparation and assistance for children who were denied protection.Therefore, it is important for children to have access to appropriate toys, entertainment or leisure, along with child-friendly information and support throughout the whole reception process.
The majority of the children described being hungry, tired and cold for the first 24 hours in Iceland. When their living arrangements were remote and there was a lack of toys and playgrounds, the children expressed loneliness. Most of the children stated that the first rooms they stayed in were dirty and incomplete. They remembered being very tired when they needed to help clean the room upon arrival, even at midnight. Then it was important to the children that it was a sleeping place for everyone in the family, but it had not been in every case. Most often, housing by the municipalities turned out to be better. Providing nutritious food immediately upon arrival, as well as ensuring adequate housing conditions, could increase children's well-being during the first 24 hours and build the necessary confidence.
Children experience loneliness in Iceland and describe a lack of guidance and assistance from adults. They expressed great interest in school and school, but did not feel that adults would meet them at school. They felt that the responsibility for school integration was placed on the shoulders of other children of foreign origin. There was a difference between municipalities regarding invitations to leisure or other activities, since children living in Hafnarfjörður were not invited to do so. It is important that children in these situations have something to do outside of school. Oftentimes there are difficult situations in the home where the application process is very tedious and it relieves situations when the children are thinking about other things. Most of the children expressed great interest in learning Icelandic and spoke about the importance of the language both socially and in education.
Parents expressed concern about access to health care. Health services could only be obtained through social workers, but access to them varies by municipality. Furthermore, it does not appear clear where applicants for international protection in Reykjavik and Hafnarfjordur should apply for such services. The Immigration Agency's agreement with the Capital Region Healthcare provides access to public health centers, but in practice, only the outpatient ward in Mjódd is available. Limited access to health care had the effect that sometimes health problems became much more difficult and required more complex interventions than if they had failed immediately. In addition, it would have far-reaching positive effects on increasing access to health care facilities, including accelerating epidemiology, which is a prerequisite for children's education. In addition, children who had experienced severe parental illness indicated that they had received little support.
Unaccompanied children come to the country without their parents and are therefore in charge of child welfare authorities. There was a difference in the experience of unaccompanied children depending on when they came to the country and whether they turned 18 during the application process. Before changing the law on foreigners, unaccompanied children were placed in the custody of child protection and lived in housing on their behalf or with a foster family. Children who arrived during that period experienced great support from their social workers and foster parents. Good co-operation between social workers and children increases confidence and increases opportunities for learning, leisure, foster care and other resources. However, they found it difficult to come to the country and to establish themselves in a new community and the requests and refusals in the application process were too much of an issue. But with support, they got through the process. Children who came after the entry into force of the new law experienced a different reality.
The new law allows children over the age of 15 to be housed in the Immigration Office's premises at Bæjarhraun in Hafnarfjordur. It is the view of both children and professionals in this field that conditions in Bæjarhraun are unacceptable. The children experienced fear, insecurity and hopelessness because they lacked all care. They expressed a desire for important adult partners to assist them with daily activities and the application process in collaboration with them. It increases the sense of independence and self-esteem when the child is an active part of the application process, including in the spokesman's work. The children experienced a great lack of information about the application process and the situation at each time, as well as information about the community. They received weekly allowance and were expected to shop and cook food themselves. They expressed regret if good food and worries about poor nutrition. Hot and good food is important to the children and reduces loneliness.
This group often lacks education and language teaching which causes them to miss out on learning opportunities and limited independence. Then they experienced a great lack of activity and they had not offered a fetus. Foster families greatly enhance the children's opportunities to understand the application process and Icelandic society. They relieve the stress of waiting and help prepare for the future. Concerns about their own families were high on the children, but some expressed a lack of family unit support after protection was provided. In general, those who were still in the application process were very concerned about the future and did not receive assistance in preparing the future. Negative and extremely difficult changes occur at the age of 18. Then it is considered that the child has become an adult and it is moved to worse resorts with adults.
Parents expressed great concern about the well-being of their children. Most of them felt they were struggling to protect their children from situations, especially when the family lived in the same housing as other applicants. Parents were idle, experienced great distress, and lacked information about their rights and obligations. Some had experienced a lack of consultation with them because of the children and most people experienced fear, hopelessness and helplessness towards the application process. Good access to services and information helps parents to fulfill their role well. Greater activity by parents helps them cope with waiting and uncertainty.
All content found on this website was originally prepared for a report submitted to the Ministry of Social Affairs in June 2019. The members of the project thank the ministry for their support and open mindedness towards the project.
UNICEF Iceland collaborated with the designer Búi Bjarmar Aðalsteinsson. Then the preparation and execution of the project was done in cooperation with the following parties:
Ministry of Social Affairs
Ministry of Justice
The Directorate of Immigration
Iceland University of the Arts
Iceland Design and Architecture
Ombudsman for Children
In addition, the following parties participated or supported the project:
Reception department at Hvaleyrarskóli
Service unit for asylum seekers in Reykjavík, Hafnarfirði og Reykjanesbæ
Immigration Appeals Board
Government Agency for Child Protection
The Children’s House in Iceland
Child Protection Services in Sandgerði
Child Protection Services in Reykjavík
Réttur, law firm
Bíó Paradís, cinema
Red Cross, Iceland
Erna Huld Ibrahimsdóttir, translator
Kinan Kadoni, translator
We would like to express our deepest gratitude to the parents who trusted us and let us into their homes. We would also like to thank the children who showed great courage in sharing their stories.
The project was inspired by ’A holistic reception’ a project developed by Fornyelse Labbet, SVID (Swedish Center for Industrial Design) and UNHCR in 2018.
For more information about the project, you can send an email to the following addresses:
Eva Bjarnadóttir - evab@unicef.is
Búi Bjarmar Aðalsteinsson - buibjarmar@gmail.com