Parliament of Australia

Department of Parliamentary Services

BACKGROUNDNOTE Updated14January2011
Asylumseekersandrefugees:whatarethefacts?
JanetPhillips
SocialPolicySection
Contents
Introduction.............................................................................................................................................1
Whatisthedifferencebetweenanasylumseekerandarefugee?........................................................2
Areasylumseekersillegals?..................................................................................................................2
Areasylumseekersqueuejumpers?.....................................................................................................4
Domostasylumseekersarrivebyboat?.................................................................................................6
Doboatarrivalsbringdiseaseandaretheyathreattosecurity?.........................................................7
Areboatarrivalsgenuinerefugees?......................................................................................................8
DoboatarrivalstakeallAustraliasrefugeeplaces?.............................................................................9
DorefugeesreceivehigherwelfarebenefitsthanAustralians?............................................................10
IsAustraliabeingswampedbyboatarrivals?......................................................................................11
IsAustraliabeingswampedwithasylumclaims?................................................................................11
Dodevelopedcountriesbeartheburdenofhostingasylumseekersandrefugees?...........................12
Summary................................................................................................................................................13
Keyresources.........................................................................................................................................14

Acknowledgements
TheauthorisgratefultocolleaguesElibrittKarlsenandLukeBuckmasterfortheirvaluable
inputintothispaper.

Asylumseekersandrefugees:whatarethefacts?
1
Introduction
Themagnitudeandcomplexityoftheissuesarisingfromtheflowofasylumseekersandrefugees
globallyposeshugechallengesfortheworldsdestinationcountries,includingAustralia.These
countriesuniversallystruggletomaintainabalancebetweencontrollingnationalbordersand
offeringprotectiontomillionsofdisplacedpeople.
WhentheOfficeoftheUnitedNationsHighCommissionerforRefugees(UNHCR)wasestablishedin
1951,therewereapproximately1.5millionrefugeesinternationally.
1
Attheendof2009therewere
anestimated43.3millionforciblydisplacedpeopleworldwide,including15.2millionrefugees,
983000asylumseekersand27.1millioninternallydisplacedpersons(IDPs).

Itisestimatedthat
therewereanadditional25millionpeopledisplacedduetonaturaldisasters.
2

TheAustralianGovernmenthasrecognisedthemagnitudeoftheseglobaltrendsnotingthatthe
numbersofpeopleseekingasyluminAustraliaaresmallcomparedtothoseseekingasylumin
Europeandotherpartsoftheworld.
3

Australiahasalonghistoryofacceptingrefugeesforresettlementandover700000refugeesand
displacedpersons,includingthousandsduringandimmediatelyafterWorldWarII,havesettledin
Australiasince1945.
4
However,despitethislongtermcommitment,thereisagreatdealof
confusionandmisinformationinthepublicdebateinAustraliaparticularlyaroundthetermsasylum
seekers,refugees,illegals,queuejumpersandboatpeoplewhichareoftenusedinterchangeably
and/orincorrectly.

1. DMcMaster,Asylumseekers:Australiasresponsetorefugees,MelbourneUniversityPress,Melbourne,2001,p.9.
2. UnitedNationsHighCommissionforRefugees(UNHCR),2009Globaltrends,Geneva,June2010,p.1,viewed15
December2010,http://www.unhcr.org/4c11f0be9.htmlTheUNHCRcollectsstatisticsforseveralpopulation
categoriescollectivelyreferredtoaspersonsofconcern:Refugees:individualsrecognisedunderthe1951
ConventionrelatingtotheStatusofRefugees;its1967Protocol;the1969OAUConventionGoverningtheSpecific
AspectsofRefugeeProblemsinAfrica;thoserecognisedinaccordancewiththeUNHCRStatute;individualsgranted
complementaryformsofprotection;or,thoseenjoyingtemporaryprotection.Therefugeepopulationincludes
peopleinarefugeelikesituation.Asylumseekers:individualswhohavesoughtinternationalprotectionandwhose
claimsforrefugeestatushavenotyetbeendetermined.Internallydisplacedpersons:peopleorgroupsofindividuals
whohavebeenforcedtoleavetheirhomesorplacesofhabitualresidence,inparticularasaresultof,orinorderto
avoidtheeffectsofarmedconflict,situationsofgeneralisedviolence,violationsofhumanrightsornatural,or
humanmadedisasters,andwhohavenotcrossedaninternationalborder,UNHCR,2008Globaltrends,Geneva,June
2009,pp.36,viewed15December2010,http://www.unhcr.org/4a375c426.html
3. FormerMinisterforImmigrationandCitizenship,SenatorChrisEvansisreportedtohaveacknowledgedthatthe
4750peopleseekingasyluminAustraliain2008wasrelativelysmallinglobalterms.SeeCEvans(Ministerfor
ImmigrationandCitizenship),UNHCRreportconfirmsworldwideincreaseinasylumseekers,mediarelease,Canberra,
17June2009,viewed19April2010,http://www.minister.immi.gov.au/media/mediareleases/2009/ce09054.htm
andinoneofherfirstspeechesasPrimeMinisterJuliaGillardacknowledgedthatin2009Australiaonlyreceived0.6
percentoftheworldsasylumseekers;seeJGillard(PrimeMinister),MovingAustraliaforward:addresstotheLowy
Institute,Sydney,6July2010,viewed15December2010,
http://parlinfo.aph.gov.au/parlInfo/search/display/display.w3p;query=Id%3A%22media%2Fpressrel%2FIE8X6%22
4. DepartmentofImmigrationandCitizenship(DIAC),Keyfactsinimmigration,factsheetno.2,DIACwebsite,viewed
15December2010,http://www.immi.gov.au/media/factsheets/02key.htm
Asylumseekersandrefugees:whatarethefacts?
2
Thepurposeofthisbackgroundnoteistopresentinformation(inasimplifiedformat)thatmayhelp
addresssomeofthepopularmisconceptionsthatsurroundasylumissues.Itincludesinformationon
asylumclaims,unauthorisedarrivalsandirregularmigrationinAustraliaandEurope.
Whatisthedifferencebetweenanasylumseekerandarefugee?
Thereisagreatdealofconfusionaboutthedifferencebetweenanasylumseekerandarefugeeand
oftenthetermsareusedinterchangeablyorincorrectly.Anasylumseekerissomeonewhois
seekinginternationalprotectionbutwhoseclaimforrefugeestatushasnotyetbeendetermined.In
contrast,arefugeeissomeonewhohasbeenrecognisedunderthe1951Conventionrelatingtothe
statusofrefugeestobearefugee.TheConventiondefinesarefugeeasanypersonwho:
owingtowellfoundedfearofbeingpersecutedforreasonsofrace,religion,nationality,
membershipofaparticularsocialgrouporpoliticalopinion,isoutsidethecountryofhis
nationalityandisunableor,owingtosuchfear,isunwillingtoavailhimselfoftheprotectionof
thatcountry;orwho,nothavinganationalityandbeingoutsidethecountryofhisformer
habitualresidenceasaresultofsuchevents,isunableor,owingtosuchfear,isunwillingto
returntoit
5

Thedefinitionofrefugeedoesnotcoverotherindividualsorgroupsofpeoplewholeavetheir
countryonlybecauseofwarorothercivildisturbance,famine,naturaldisastersorinordertoseeka
betterlife.AstheUNHCRexplains:
Refugeesfleebecauseofthethreatofpersecutionandcannotreturnsafelytotheirhomesin
theprevailingcircumstances.Aneconomicmigrantnormallyleavesacountryvoluntarilytoseek
abetterlife.Shouldtheyelecttoreturnhome,theywouldcontinuetoreceivetheprotectionof
theirgovernment.
6

Areasylumseekersillegals?
Generallyspeakingillegalimmigrantsarepeoplewhoenteracountrywithoutmeetingthelegal
requirementsforentry(withoutavalidvisa,forexample).However,underArticle14ofthe1948
Universaldeclarationofhumanrights,everyonehastherighttoseekasylumandthe1951Refugee
Conventionprohibitsstatesfromimposingpenaltiesonthoseenteringillegallywhocomedirectly
fromaterritorywheretheirlifeorfreedomisthreatened.
7

TheUNHCRemphasisesthatapersonwhohasawellfoundedfearofpersecutionshouldbeviewed
asarefugeeandnotbelabelledanillegalimmigrantastheverynatureofpersecutionmeansthat

5. UNHCR,Conventionrelatingtothestatusofrefugees,UNHCR,Geneva,2007,p.16,viewed5May2010,
http://www.unhcr.org/3b66c2aa10.pdf
6. UNHCR,Whoarerefugees?,UNHCRwebsite,viewed30April2010,
http://unhcr.org.ua/main.php?article_id=5&view=full
7. UN,Theuniversaldeclarationofhumanrights,1948,UNwebsite,viewed6May2010,
http://www.un.org/en/documents/udhr/;andUNHCR,Conventionrelatingtothestatusofrefugees,op.cit.
Asylumseekersandrefugees:whatarethefacts?
3
theironlymeansofescapemaybeviaillegalentryand/ortheuseoffalsedocumentation.
8
The
RefugeeCouncilofAustraliasimilarlynotesthepracticaldifficultiesencounteredbyasylumseekers
inobtainingtherequisitedocumentationpriortodeparture:
Applyingforapassportand/oranexitvisacanbefartoodangerousforsomerefugees;sotoo
canbeanapproachtoanAustralianEmbassyforavisa.Theseactionscanputtheirlives,and
thoseoftheirfamilies,atrisk.Insuchcasesrefugeesmayhavetotravelonforgeddocumentsor
bypassregularmigrationchannelsandarrivewithoutpapers.
9

Asylumseekersirrespectiveoftheirmodeofarrival,likeothersthatarriveinAustraliawithouta
validvisa,areclassifiedbyAustralianlawtobeunlawfulnoncitizens.However,thetermunlawful
doesnotmeanthatasylumseekershavecommittedacriminaloffence.Thereisnooffenceunder
AustralianlawthatcriminalisestheactofarrivinginAustraliaortheseekingofasylumwithouta
validvisa.
10

Theconfusionaboutlegalstatusarisesfromthosearrivingbyboatdoingsowithoutavalidvisaor
anyotherappropriateauthorisation,whereasmost,thoughnotall,whoarrivebyairandthenseek
asylum,usuallyenteronavalidvisa.Currently,whenunauthorisedboatarrivalsareinterceptedin
Australianwaters,thepassengersaretransferredtoChristmasIslandinordertoestablishtheir
reasonsforattemptingtoenterAustraliawithoutauthority.Ifagovernmentofficialdeterminesthat
anindividualisraisingclaimswhichmayengageAustraliasprotectionobligations,theasylumseeker
willbeassessedunderthenonstatutoryrefugeestatusassessment(RSA)processinplaceon
ChristmasIsland.
11

Themajorityofpeoplearrivingbyboatclaimasylumalthoughafewmaynot(theseareusuallycrew
members).ThepreferredtermsforboatarrivalsasusedbytheDepartmentofImmigrationand
Citizenship(DIAC)areunauthorisedboatarrivalsorirregularmaritimearrivalsand,asnoted
above,peoplearrivingbysuchmeanswhothenclaimasylumareentitledtodoso.
Thetermillegalmaymoreappropriatelyapplytothosewithoutavalidvisa(unlawfulnoncitizens)
whoarenotseekingprotection,suchasvisaoverstayers.
12
Asat30June2009,itwasestimatedthat
therewereabout48700visaoverstayersresidinginAustralia.
13

8. UNHCR,Basicdefinitions,UNHCRwebsite,viewed3May2010,http://www.unhcr.org.au/basicdef.shtml#def06
9. RefugeeCouncilofAustralia(RCOA),Australiasrefugeeprogram:frequentlyaskedquestions,RCOAwebsite,
viewed3May2010,http://www.refugeecouncil.org.au/arp/faqs.html
10. SeeDIAC,SeekingasylumwithinAustralia,factsheetno.61,DIACwebsite,viewed15April2010,
http://www.immi.gov.au/media/factsheets/61asylum.htm
11. DIAC,Processingunlawfulboatarrivals,factsheetno.76,DIACwebsite,viewed22April2010,
http://www.immi.gov.au/media/factsheets/75processingunlawfulboatarrivals.htm
12. DIAC,Overstayersandotherunlawfulnoncitizens,factsheetno.86,DIACwebsite,viewed15April2010,
http://www.immi.gov.au/media/factsheets/86overstayersandotherunlawfulnoncitizens.htm
13. DIAC,PopulationFlows200809,p.75,DIAC,Canberra,2010,viewed15December2010,
http://www.immi.gov.au/media/publications/statistics/popflows200809/
Asylumseekersandrefugees:whatarethefacts?
4
InEurope,thetermillegalismoreappropriatelyusedtodescribevisaoverstayersorthoseworking
inbreachoftheirvisaconditions.
14
However,thetermsillegals,irregularmigrantsandirregular
residentsarecommonlyusedinterchangeablyinEuropeandmayalsorefertothosearriving
withoutauthorisation.AsEuropehasmuchmoreporousandlessgeographicallyisolatedborders,it
isalmostimpossibletomonitortheexactnumbers,butitisestimatedthatabout500000irregular
migrantsorresidents(includingvisaoverstayers,peopleworkinginbreachoftheirvisaconditions
andthosewhogoontoclaimasylumafterarrival)areapprehendedeachyear.
15

Globally,theInternationalOfficeforMigration(IOM)estimatesthatthereareroughly20to30
millionunauthorisedorirregularmigrantsworldwide,comprisingaround10to15percentofthe
worldsimmigrantstock.
16
ByirregularmigrantstheIOMmeansboththosewhoarriveinacountry
undocumentedandthosewhoenterthehostcountrylegallywithtouristdocuments,butlater
violatetheirconditionsofentrybytakingajob.
17

Areasylumseekersqueuejumpers?
Thereisaviewthatasylumseekers,particularlythosewhoarriveinAustraliabyboat,arejumping
thequeueandtakingtheplaceofamoredeservingrefugeeawaitingresettlementinarefugee
camp.Theconceptofanorderlyqueuedoesnotaccordwiththerealityoftheasylumprocess.Paul
Power,CEOoftheRefugeeCouncilofAustralia(RCOA)notesthat:
ImplicitinthisviewisthatAustraliashouldnotbebotheredbypeopleseekingprotectionunder
theRefugeeConventionandthatgenuinerefugeesshouldgotoothercountriesandwait
patientlyinthehopethatAustraliamaychoosetoresettlethem.
18

TherealityisthatonlyasmallproportionofasylumseekersareregisteredwiththeUNHCR:
UNHCRofficesregisteredsome119100applicationsoutofthetotalof923400claimsin2009,a
62percentincreasecomparedto2008...TheOfficesshareintheglobalnumberofapplications
registeredin2009was13percentcomparedto8percentin2008and12percentin2007.This
wasduetothehighernumberofapplicationsregisteredwithUNHCRofficesinMalaysia,
SomaliaandKenya.Europeremainedtheprimarydestinationforindividualasylumseekerswith

14. FDuvell,IllegalimmigrationinEurope,RearVision,ABCRadioNational,interview,10February2010,viewed16
March2010,http://www.abc.net.au/rn/rearvision/stories/2010/2808706.htm
15. EuropeanCommission,Anopportunityandachallenge:migrationintheEuropeanUnion,EuropeanUnion,Brussels,
2009,May2009,viewed19March2010,http://ec.europa.eu/publications/booklets/move/81/index_en.htm
16. IOM,Factsandfigures,IOMwebsite,viewed16March2010,http://www.iom.int/jahia/Jahia/aboutmigration/facts
andfigures/lang/en
17. IOM,Towardsafairdealformigrantworkersintheglobaleconomy,ILO,Geneva,2004,p.11,viewed22April2010,
http://www.ilo.org/wcmsp5/groups/public/dgreports/dcomm/documents/meetingdocument/kd00096.pdf
18. PPower,SpeechtoALPNationalConferencefringeevent:whichwayforward?Refugee,securityandtheAsia
Pacific,31July2009,RCOAwebsite,viewed3May2010,
http://www.refugeecouncil.org.au/docs/resources/0907_ALP_Fringe.pdf
Asylumseekersandrefugees:whatarethefacts?
5
359400asylumclaimsregistered.ItwasfollowedcloselybyAfrica(336400).Thesetworegions
accountedfor39and37percentrespectivelyofallclaims.
19

OnceregisteredwiththeUNHCR,manyrefugeesseekresettlementtoacountrysuchasAustralia.
Refugeesdonothavearighttoberesettled,andstatesarenotobligedunderthe1951Refugee
Conventionoranyotherinstrumenttoacceptrefugeesforresettlement.Itisavoluntaryschemeco
ordinatedbytheUNHCRwhich,amongstotherthingsfacilitatesburdensharingamongstsignatory
states.Resettlementthereforecomplementsandisnotasubstitutefortheprovisionofprotection
topeoplewhoapplyforasylumundertheConvention.
AccordingtotheUNHCR,lessthan1percentoftheworldsrefugeesmayberesettledinanygiven
year:
Millionsofrefugeesaroundtheworldcontinuetolivewithlittlehopeoffindingasolutionto
theirplightresettlementbenefitsasmallnumberofrefugees;in2008[andin2009],lessthan
1percentoftheworldsrefugeesdirectlybenefitedfromresettlement.
20

TheUNHCRestimatesthat747000refugeeswillbeinneedofresettlementin2010,butonlyaround
79000placesareofferedannuallybytheresettlementstates.
21

Forrefugeesinprotractedsituations(inexileforfiveyearsormore)theUNHCRpointsoutthat
therearelimitedoptions:
Theabsenceofasolutionformillionsofrefugeesinprotractedsituationscontinuestoposea
majorchallengetoUNHCRanditspartners,tohostcountries,therefugeesthemselvesandthe
internationalcommunityatlarge.
22

Attheendof2009theUNHCRestimatedthatthereweremorethan5.7millionrefugeestrappedin
protractedsituationsandforwhomtherewaslimitedhopeoffindingasolutioninthenearfuture.
23

DuetoanabsenceofdurablesolutionsforrefugeesthefocusoftheUNHCRinmostrefugeecamps
isonvoluntaryrepatriation.
24
DespitetheUNHCRsbestefforts,during2009nearly26million

19. UNHCR,Statisticalyearbook2009,UNHCR,Geneva,2010,p.36,viewed15December2010,
http://www.unhcr.org/4ce532ff9.html
20. Ibid.p.30;UNHCR,Statisticalyearbook2008,UNHCR,Geneva,2009,pp.1011;andStatementbyErikaFeller
(UNHCRsAssistantHighCommissionerforProtection)at58
th
sessionoftheExecutiveCommitteeoftheHigh
CommissionersProgram,3October2007,citedinUNHCR,Frequentlyaskedquestionsaboutresettlement,UNHCR
webpage,p.1,viewed15December2009,http://www.unhcr.org/4ac0873d6.html
21. UNHCR,Frequentlyaskedquestionsaboutresettlement,op.cit.,p.5.
22. UNHCR,Globaltrends2008,op.cit.,p.4.
23. UNHCR,Globaltrends2009,op.cit.,p.6.
24. AMillbank,Theproblemwiththe1951RefugeeConvention,ParliamentaryLibrary,Canberra,2000,viewed23April,
http://www.aph.gov.au/library/pubs/rp/200001/01RP05.htm.
Asylumseekersandrefugees:whatarethefacts?
6
peopleincluding10.4millionrefugeeswerereceivingprotectionorassistancefromtheUNHCR
(manyinprotractedrefugeesituations).
25

Domostasylumseekersarrivebyboat?
Untilrecently,thevastmajorityofasylumseekersapplyingforprotectioninAustraliahavearrived
originallybyairwithavalidvisaandthenappliedforasylumatalaterdatewhilelivinginthe
community.
26
Historically,boatarrivalsonlymadeupasmallproportionofasylumapplicants
estimatesvary,butitislikelythatbetween96and99percentofasylumapplicantsarrivedbyair.
27

MorerecentlytheproportionsofIrregularMaritimeArrival(IMA)andnonIMA(thatisairarrival)
asylumseekershaveshiftedduetotheincreaseinboatarrivals.However,boatarrivalsstillcomprise
lessthanhalfofAustraliasonshoreasylumseekers:
Onshoreasylumapplications
200809 200910 201011(firstquarter)
IrregularMaritimeArrivals(IMA) 16percent 47percent 44percent
NonIMA 84percent 53percent 56percent
Source:DIACadviceprovidedtotheParliamentaryLibrary,20December2010.
Althoughtheproportionofasylumseekersarrivingbyboathasincreasedsignificantlyinthelast
financialyear,andboatarrivalscontinuetobethefocusofmuchpublicandpoliticalattention,they
areinfactmorelikelytoberecognisedasrefugeesthanthosewhohavearrivedbyair.DrKhalid
Koser(LowyInstituteforInternationalPolicy)notesthat:
Thereasonthis...pointisimportantisthatitmeansthatarguablyAustraliaisworryingabout
thewrongasylumseekers.Whereasthemajorityofthosearrivingbyboatarerefugees,the
majorityofthosearrivingbyairarenot.
28

ThefiguresforEuropearenotasreliableduetoitsporousborders.Whileunauthorisedarrival
figuresforAustraliaaremorepreciseowingtoourgeography,thoseforEuropeareonlyestimates.
WeknowhowmanyunauthorisedarrivalsthereareinAustraliabecauseweareabletomonitor
unauthorisedboatarrivalsinAustralianwatersandallairarrivalsatAustralianairports.

25. UNHCR,Globaltrends2009,op.cit.,p.1.
26. DIAC,Thefactsaboutimmigrationdetention,mediarelease,3July2009,viewed15April2010,
http://www.newsroom.immi.gov.au/media_releases/739?page=4&
27. Asonshoreasylumapplicationdatadoesnotspecifythemodeofarrivalofeachapplicant,itisonlypossibleto
roughlycalculatetheproportions.FormoredetailseeJPhillipsandHSpinks,BoatarrivalsinAustraliasince1976,
Backgroundnote,ParliamentaryLibrary,Canberra,2010,viewed15December2010,
http://www.aph.gov.au/library/pubs/BN/sp/BoatArrivals.pdfandEKarlsenandJPhillips,Seekingasylum:Australias
humanitarianresponsetoaglobalchallenge,Backgroundnote,ParliamentaryLibrary,Canberra,2010,viewed15
December2010,http://www.aph.gov.au/library/pubs/BN/sp/SeekingAsylum.pdf
28. KKoser,RespondingtoboatarrivalsinAustralia:timeforarealitycheck,LowyInstituteforInternationalPolicy,
Sydney,2010,p.6,viewed15December2010,http://www.lowyinstitute.org/Publication.asp?pid=1477
Asylumseekersandrefugees:whatarethefacts?
7
ItwouldappearthatunauthorisedboatarrivalsinEuropemakeuponlyaverysmallproportionof
theirregularmigrantsinterceptedacrossEuropeeachyearasmostarrivewithavalidvisaoriginally
andonlysomeofthosegoontoclaimasylum.EventhosecountriesalongtheEuropeancoasts(that
naturallyreceivealltheboatarrivalsduetotheirgeography)estimatethatboatarrivalsonlymake
upasmallproportionoftheirirregularmigrantsinItaly,forexample,onlyabout15percentof
irregularmigrantsarrivebysea.Nevertheless,in2009itwasestimatedthatpeopleonboardthese
boatscomprised70percentofItalysasylumseekerarrivals:
ThevastmajorityofasylumseekersarriveinItalywithinmixedmigratoryflows,travelling
alongsideirregularmigrants,includingvictimsoftrafficking,throughhighlydangerouschannels
managedbysmugglers.Whilstsomeofthesearrivebyairorbyland,some70percentofasylum
seekersinItalyarenowestimatedtoarrivebysea.
29

Doboatarrivalsbringdiseaseandaretheyathreattosecurity?
AllunauthorisedboatarrivalsarecurrentlytransferredanddetainedonChristmasIslandwhiletheir
reasonsforattemptingtoenterAustraliaareidentified.Comprehensivesecurityandhealthchecks
arealsocarriedout:
Unauthorisedarrivals,regardlessofwhethertheyarriveonthemainlandoratanexcised
offshoreplace,undergoacomprehensiveandthoroughassessmentprocess,includingsecurity
checking,toestablishiftheyhavealegitimatereasonforstayinginAustralia.Thisprocess
includesassessingidentities,asmanypeopledisposeofallpersonalpapersenroutetoAustralia;
assessingwhetherthepersonisraisingclaimswhichmayengageAustralia'sprotection
obligations;andobtainingformalpoliceclearancesfromcountriesoffirstasyluminwhichthey
haveresidedforatleast12months,toconfirmtheyareofgoodcharacter...
Thedepartmenthasacomprehensiveprocessforcheckingthehealthofunauthorisedarrivals.
Aninitialhealthassessmentisconductedtoidentifyconditionsthatwillrequireattention.This
assessmentincludesthecollectionofpersonalandmedicalhistory,aphysicalexaminationand
formalisedmentalhealthscreeningandassessment.
TreatmentmanagementiscoordinatedthroughthedepartmentscontractedHealthServices
Managerforallpeoplewhohaveaclinicallyidentifiedneedforongoingmedicaltreatment.As
wellastheinitialhealthassessmenttherearemechanismsinplacetoidentifyhealthneedsthat
mayemergeduringapersonstimeindetention.Allunauthorisedarrivalscanaccess
appropriatehealthcarecommensuratewiththelevelofcareavailabletothebroader
community.
Adischargehealthassessmentiscompletedforeachpersonleavinganyimmigrationdetention
placement.Thisassessmentincludestheprovisionofahealthdischargesummaryfromthe
HealthServicesManagertotheindividual,whichinformsfuturehealthprovidersofrelevant
healthhistory,treatmentreceivedduringdetentionandanyongoingtreatmentregimes.Where

29. UNHCR,Refugeeprotectionandinternationalmigration:areviewofUNHCRsoperationalroleinsouthernItaly,
UNHCR,Geneva,September2009,pp.12and55,viewed16March2010,http://www.unhcr.org/4ac35c600.pdf
Asylumseekersandrefugees:whatarethefacts?
8
appropriate,linkagesaremadewithrelevantcommunityhealthproviderstofacilitateongoing
carebeyonddischarge.
30

Furthermore,underAustraliasmigrationprograms,applicantsforanypermanentvisaarealso
requiredtoundergohealthexaminationsforpermanententrytoAustralia.Dependingonthe
individualcircumstances,reasonsforenteringandcountryoforigin,temporaryvisaapplicantsmay
alsoberequiredtoundergoahealthexamination.
31

Areboatarrivalsgenuinerefugees?
Asylumseekerswhoarrivebyboataresubjecttothesameassessmentcriteriaasallotherasylum
applicants.Pastfiguresshowthatbetween70and97percentofasylumseekersarrivingbyboatat
differenttimeshavebeenfoundtoberefugeesandgrantedprotectioneitherinAustraliaorin
anothercountry.Forexample:
accordingtotheRefugeeCouncilofAustralia,in199899,approximately97percentofIraqiand
92percentofAfghanapplicants(themajorityofwhomwouldhavearrivedbyboat)were
grantedrefugeestatusandgivenpermanentprotectionvisas
32

underthePacificSolutionatotalof1637unauthorisedarrivalsweredetainedintheNauruand
ManusfacilitiesbetweenSeptember2001andFebruary2008.
33
Ofthose,1153(70percent)
werefoundtoberefugeesandultimatelyresettledtoAustraliaorothercountries
34

duringtheRuddGovernmentapproximately9095percentofassessmentscompletedon
ChristmasIslandresultedinprotectionvisasbeinggranted.
35
Forexample,ofthe1254claims
assessedonChristmasIslandbetween1July2009and31January2010,only110peoplewere
assessedasnotbeingrefugees.
36
Thesefiguressuggestthat1144(approximately91percent)of
thoseclaimsweresuccessful.

30. DIAC,Processingunlawfulboatarrivals,op.cit.
31. DIAC,Healthrequirementsforvisaapplicants,DIACwebpage,viewed22April2010,
http://www.immi.gov.au/allforms/healthrequirements/
32. RCOA,Statementonillegalboatarrivals,RCOA,NSW,15November1999,viewed23April2010,
http://www.refugeecouncil.org.au/docs/resources/ppapers/ppboatarrivalsnov99.pdf
33. ThePacificSolutionreferstothedecisionmadebytheHowardGovernmentin2001toexcisesomeofAustralias
territoryfromthemigrationzoneinordertodiscouragenoncitizensfromarrivingunlawfullyinAustralianterritory
byboat.SubsequentboatarrivalsinterceptedatseawereeitherreturnedtoIndonesiaorremovedtothirdcountries
inthePacific(NauruandManusIsland).TheseborderprotectionmeasuresbecomeknownasthePacificSolution.
34. CEvans(MinisterforImmigrationandCitizenship),LastrefugeesleaveNauru,mediarelease,8February2008,
viewed9December2009,http://www.minister.immi.gov.au/media/mediareleases/2008/ce08014.htm
35. DIAC,AnnualReport200809,DIAC,Canberra,2009,p.96,viewed23April2010,
http://www.immi.gov.au/about/reports/annual/200809/html/outcome1/output122.htm.Estimatesmaybe
calculatedfromfiguresprovidedinthereport.
36. SenateLegalandConstitutionalAffairsCommittee,Answerstoquestionsonnotice,Immigrationportfolio,Additional
BudgetEstimates,9February2010,Questions30and32,viewed16April2010,
http://www.aph.gov.au/senate/committee/legcon_ctte/estimates/add_0910/diac/32_qon.pdfand
http://www.aph.gov.au/senate/committee/legcon_ctte/estimates/add_0910/diac/30_qon.pdf
Asylumseekersandrefugees:whatarethefacts?
9
undertheRefugeeStatusAssessment(RSA)processintroducedinJuly2008,peoplewhoarrive
unauthorisedatanexcisedoffshoreplacearepreventedfromlodgingaprotectionvisa
applicationuntiltheyhavehadtheirclaimsassessedbyDIAC.
37
Ofthe2914RSAassessments
completedin200910,2126individuals(73percent)werefoundtoberefugeesand788(27per
cent)werefoundnottoberefugeesandwouldnothavebeenabletolodgeanapplicationfora
protectionvisa.In200910,572requestsforreviewoftheirprimarynegativeRSAoutcome
(IndependentMeritsReview)werereceivedand184completed.Ofthosecompleted81(44per
cent)werefoundtoberefugees.
38

thefinalprotectionvisagrantratefor200910forpeoplefromAfghanistan(themajorityof
whomwouldhavearrivedbyboat)was99.7percent(thisfiguredoesnotincludethoseboat
arrivalswithanegativeRSAoutcomewhowouldnothavebeenabletolodgeanapplicationfora
protectionvisa).GrantratestopeoplefromIraq,IranandBurma,manyofwhomwouldalsohave
arrivedbyboat,werealsohigh,rangingfrom96to98percent.
39

Incontrast,asylumclaimsfrompeoplewhoenterAustraliabyaironavalidvisaandsubsequently
applyforasylumhavenothadsuchhighsuccessratesandthemajorityarenotfoundtoberefugees.
Thisisdemonstratedbythemuchloweronshorerefugeerecognitionratesoverall(airandboat
arrivalscombined)ofaround20or30percentannuallytheoverallonshorerefugeerecognition
ratefor2009was23.3percent.
40

Inotherwords,pastfiguresshowthatmoreasylumseekerswhoarrivedbyboathavebeen
recognisedasrefugeesthanthosewhoenteredAustraliabyair.
DoboatarrivalstakeallAustraliasrefugeeplaces?
Successfulonshoreapplicants(boatandairarrivals)usuallyonlymakeuparelativelysmall
proportionofthetotalnumberofrefugeesacceptedbyAustraliaeachyearusuallyintheregionof
17to20percent(exceptfor200001and200910,whenthenumberswerehigherduetoan
increaseinthenumberofboatarrivals).
Overthelasttenyears,approximately13000placeshavebeengrantedunderAustralias
HumanitarianProgrameachyear:

37. DIAC,Processingirregularmaritimearrivals,factsheetno.75,DIACwebsite,viewed21December2010,
http://www.immi.gov.au/media/factsheets/75processingirregularmaritimearrivals.htm#d
38. DIAC,Annualreport200910,DIAC,Canberra,2010,p.119,viewed15December2010,
http://www.immi.gov.au/about/reports/annual/200910/
39. Ibid.,p.113.
40. UNHCR,Statisticalyearbooks,UNHCR,Geneva,(variousyears),viewed16April2010,
http://www.unhcr.org/pages/4a02afce6.html;andUNHCR,Statisticalyearbook2009,op.cit.,statisticalannexe,
p.88.
Asylumseekersandrefugees:whatarethefacts?
10
duetoanincreaseinboatarrivals,40.6percentofthe13733HumanitarianProgramgrantsin
200001;and32.9percentofthe13770grantsin200910weretoonshoreapplicants(boat
andairarrivals).
41

only19percentofthe13507humanitariangrantsin200809and17percentofthe13014
visasgrantedin200708wereprotectionvisasgrantedundertheonshorecomponent.
42

DorefugeesreceivehigherwelfarebenefitsthanAustralians?
Inrecentyears,aseriesofemailshavebeenwidelycirculatedthroughoutAustraliaclaimingto
describehighersocialsecurityentitlementsforrefugees,comparedwiththoseofotherAustralian
residents.AcommonclaimintheseemailsisthatrefugeesinAustraliareceivehighersocialsecurity
benefitsthanagepensioners.
Thereisnotruthtoclaimsthatrefugeesareentitledtohigherbenefitsthanothersocialsecurity
recipients.Refugeeshavethesameentitlementsasallotherpermanentresidentstheydonot
receivespecialrefugeepaymentsorspecialratesofpayment.
GiventhecircumstancesinwhichrefugeescometosettleinAustralia,theyareexemptfromthe
standardwaitingperiodthatappliestomigrantsseekingtoaccesssocialsecuritypaymentsor
concessioncards.TheyalsoreceiveshorttermassistancefromDIACaimedathelpingthemsettle
effectively.
DIACalsoprovidesfundingtoassistasylumseekerslivinginthecommunityorincommunity
detentionthroughNGOssuchastheAustralianRedCross.Thefinancialcomponentofsuch
assistancedoesnotexceed89percentoftheCentrelinkSpecialBenefit.Limitedassistanceinthe
formofservicesisprovidedinordertoassistasylumseekerslivinginthecommunityorcommunity
detentiontomeetbasicneedssuchasaccesstohealthandcommunityservices.Asylumseekersin
immigrationdetentioncentresreceiveasmallallowancebutdonotreceiveCentrelinkequivalent
payments.
43

41. DIAC,Annualreport,op.cit.,p.104;andDepartmentofImmigrationandMulticulturalandIndigenousAffairs
(DIMIA),Immigrationsnapshot200304,DIACwebsite,viewed3December2009,
http://www.immi.gov.au/media/publications/statistics/immisnapshot/immisnapshotv1.pdf.
42. CEvans(MinisterforImmigrationandCitizenship),Australiadeliversonrefugeecommitments,mediarelease,
Canberra,1September2009,http://www.minister.immi.gov.au/media/mediareleases/2009/ce09079.htm;and
DIAC,Australiasrefugeeandhumanitarianprogram,factsheetno.60,DIACwebsite,viewed16April2010,
http://www.immi.gov.au/media/factsheets/60refugee.htmandDIAC,PopulationFlows200708,DIAC,Canberra,
2009,chapter4,p.67,viewed1December2009,
http://www.immi.gov.au/media/publications/statistics/popflows200708/
43. Seethefollowingpublicationforfurtherdetail:LBuckmaster,AustralianGovernmentassistancetorefugees:factv
fiction,Backgroundnote,ParliamentaryLibrary,Canberra,2009,viewed4May2010,
http://www.aph.gov.au/Library/pubs/BN/sp/AustGovAssist_Refugees.pdf
Asylumseekersandrefugees:whatarethefacts?
11
IsAustraliabeingswampedbyboatarrivals?
ConcernsinAustraliaoverunauthorisedboatorirregularmaritimearrivals(commonlyreferredto
asboatpeople)haveoccupiedsuccessivegovernmentssincethefirstwaveofboatsarrived
carryingpeopleseekingasylumfromtheaftermathoftheVietnamWarin1976.
44

In2009,Australiainterceptedabout2750unauthorisedpeoplearrivingbyboat.Althoughthe
numbersfor2010aremuchhighergivenasignificantincreaseinboatarrivals(approximately6800),
comparisonsshowthatthenumberofboatarrivalsinAustraliaissmallwhencomparedtotheflows
ofunauthorisedarrivalsinotherpartsoftheworld.Forexample,itisestimatedthatin2006over
72000personsandin2007over51000personsarrivedbyboatonthecoastsofItaly,Spain,Greece
andMaltaalone.
45

Eveninthepreviouspeakboatarrivalyearsofthe1970s(whenjustover2000peoplearrivedby
boatoverafiveyearperiod)and19992001(whenaround12000peoplearrivedbyboatovera
threeyearperiod)thearrivalnumbersinAustraliaweresmallcomparedtootherdestination
countries.
46

IsAustraliabeingswampedwithasylumclaims?
TheUNHCRsummarisestrendsinthenumberofindividualasylumclaimssubmittedinfortyfour
industrialisedcountriesinEuropeandselectednonEuropeancountrieseachyear.In2009these
countriesreceivedanestimated377200asylumapplications.
47

AroundtheworldmostasylumclaimsarelodgedinEurope,theUSAandCanadainfactmore
asylumclaimsarelodgedinEurope(particularlyinFrance,GermanyandtheUK)thaninanyother
partoftheworld.
48
AsylumclaimsinEuropehaveremainedstableoverthelastthreeyearswith
286700asylumclaimsin2009;283700in2008;and249600in2007.

44. SeeJPhillipsandHSpinks,BoatarrivalsinAustraliasince1976,op.cit.
45. CouncilofEurope,Europe'sboatpeoplemixedmigrationflowsbyseaintosouthernEurope,UNHCRwebpage,11
July2008,viewed6May2010,http://www.unhcr.org/refworld/pdfid/487c61f616.pdfFormoreinformationsee,
UNHCR,Irregularmigrationbysea:frequentlyaskedquestions,UNHCRwebsite,28May2009,viewed15December
2010,http://www.unhcr.org/4a1e48f66.html
46. SenateLegalandConstitutionalAffairsCommittee,Answerstoquestionsonnotice,Immigrationportfolio,Question
48,20October2009,viewed16April2010,
http://www.aph.gov.au/senate/committee/legcon_ctte/estimates/sup_0910/diac/48_qon.pdf
47. UNHCR,Asylumlevelsandtrendsinindustrializedcountries2009,UNHCR,Geneva,2010,pp.34,viewed5May
2010,http://www.unhcr.org/4ba7341a9.html
48. HSpinks,Refugeesandasylumseekers:aguidetokeyelectronicresources,Backgroundnote,ParliamentaryLibrary,
Canberra,2009,viewed16March2010,http://www.aph.gov.au/library/pubs/BN/sp/AsylumSeekers_Resources.htm;
andUNHCR,Asylumlevelsandtrendsinindustrializedcountries2009,op.cit.
Asylumseekersandrefugees:whatarethefacts?
12
In2009,thelargestnumberofasylumclaimsforanindustrialisedcountrywasexperiencedbythe
USAwith49000claims,closelyfollowedbyFrancewith42000andCanadawith33300claims.
49

Incomparison,arelativelysmallnumber6500claimswerelodgedinAustraliaandNewZealand
combinedin2009.
50
RCOAcommentedthat:
In2009,Australiareceived6170asylumapplications,just1.6percentofthe377160
applicationsreceivedacross44industrialisednations...Ofthe44nations;Australiawasranked
16thoverallandwas21stonapercapitabasis.
51

Dodevelopedcountriesbeartheburdenofhostingasylumseekers
andrefugees?
ItistruethatAustraliaisoneofonlyabout20nationsworldwidethatparticipateformallyinthe
UNHCRsresettlementprogramandacceptsquotasofrefugeesonanannualbasis.
52
In2008,under
thisprogram,Australiaacceptedthethirdlargestnumberofrefugees(includesrefugeesandother
humanitarianentrants)forresettlementintheworld(8742)aftertheUSA(60191)andCanada
(10804).
53

However,intermsofthetotalnumberofpeopleofconcernglobally,theUNHCRsresettlement
programcurrentlycontributestoresettlingonlyasmallproportionoftheworldsrefugees.About76
to90percentofrefugeesremainintheirregionoforiginplacingtheburdenonneighbouring
countries:
Theavailablestatisticalevidencedemonstratesthatmostrefugeesfleetoneighbouring
countries,remainingintheirregionoforigin.Themajorrefugeegeneratingregionshostedon
averagebetween76and91percentofrefugeesfromwithinthesameregion.UNHCRestimates
thatsome1.7millionrefugees(17percentoutofthetotalof10.4million)liveoutsidetheir
regionoforigin.
54

Thevastmajorityofasylumseekersandrefugeesarehostedindevelopingcountries,sotheburden
ofassistingtheworldsasylumseekersandrefugeesactuallyfallstosomeoftheworldspoorest
countries.UNHCRsdatashowsthatPakistanishosttothelargestnumberofrefugeesworldwide,

49. UNHCR,Asylumlevelsandtrendsinindustrializedcountries2009,op.cit.,p.5.
50. Ibid.,p.5.
51. RCOA,Australiamakesmodestcontributiontoprotectingvictimsofpersecution,mediarelease,24March2010,
viewed5May2010,
http://www.refugeecouncil.org.au/docs/releases/2010/100324%20RCOA%20response%20to%20UNHCR%20stats.pd
f
52. JPhillipsandHSpinks,op.cit.
53. USCommitteeforRefugeesandImmigrants(USCRI),Worldrefugeesurvey2009,USCRIwebsite,Tablesandgraphs,
Resettlementbycountry,viewed16April2010,
http://www.refugees.org/FTP/WRS09PDFS/Resettlementbycountry.pdfand
http://www.refugees.org/article.aspx?id=2324&subm=179&area=About%20Refugees&
54. UNHCR,2009Globaltrends,op.cit.,p.6.
Asylumseekersandrefugees:whatarethefacts?
13
followedbyIranandSyria.Pakistanalsohostedthelargestnumberofrefugeesrelativetoits
economicbase(745refugeesper1USDGDPpercapita),followedbytheCongoandZimbabwe.
55

Summary
Australiahasalonghistoryofacceptingrefugeesforresettlementandover700000refugeesand
displacedpersonshavesettledinAustraliasince1945.
Thereisadifferencebetweenanasylumseekerandarefugeeasylumseekersarepeople
seekinginternationalprotectionbutwhoseclaimsforrefugeestatushavenotyetbeen
determined.AlthoughthosewhocometoAustraliabyboatseekingAustraliasprotectionare
classifiedbyAustralianlawtobeunlawfulnoncitizens,theyhavearighttoseekasylumunder
internationallawandnotbepenalisedfortheirillegalentry.
Upuntil2009onlyasmallproportionofasylumapplicantsinAustraliaarrivedbyboatmost
arrivedbyairwithavalidvisaandthenwentontopursueasylumclaims.Whilethenumberof
boatarrivalshasrisensubstantiallyinrecentyears,itisworthnotingthattheystillcompriseless
thanhalfofonshoreasylumseekersinAustraliaandagreaterproportionofthosearrivingby
boatarerecognisedasrefugees.
Thereisnoorderlyqueueforasylumseekerstojoin.Onlyaverysmallproportionofasylum
seekersareregisteredwiththeUNHCRandonly1percentofthoserecognisedbytheUNHCRas
refugeeswhomeettheresettlementcriteriaaresubsequentlyresettledtoanothercountry.As
theoverallnumberofasylumapplicationshascontinuedtorise,statesareincreasinglytaking
responsibilityforrefugeestatusdetermination.
AllunauthorisedboatarrivalsinAustraliaaresubjecttothesameassessmentcriteriaasother
asylumapplicantsandalsoaresubjecttocomprehensivesecurityandhealthchecks.
ClaimsthatrefugeesinAustraliaareentitledtohigherbenefitsthanothersocialsecurity
recipientsareunfounded.
Inrecentyears,theAustralianGovernmenthasallocatedaround13000placestorefugeesand
otherswithhumanitarianneedsunderitsplannedHumanitarianprogram.
56
Mostoftheseplaces
havebeengiventooffshorerefugeesreferredtoAustraliabytheUNHCR,butsomearegivento
refugeeswhoappliedforasylumonshore.
ThenumberofpeoplearrivingunauthorisedbyboatinAustralia,issmallincomparisontothe
numbersarrivinginotherpartsoftheworldsuchasEurope.Similarly,thenumberofasylum
claimslodgedinAustraliaissmallincomparisontotheUSA,CanadaandEurope.
Whileonlyabout20developednations,includingAustralia,participateformallyintheUNHCRs
refugeeresettlementprogram,thevastmajorityofasylumseekersandrefugeesarehostedin
developingcountries.

55. Ibid.,p.1.
56. DIAC,Australiasrefugeeandhumanitarianprogram,op.cit.
Asylumseekersandrefugees:whatarethefacts?
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