Round Table: The current migration situation in the region and risks associated to the crimes of trafficking in persons and migrant smuggling: Challenges in regulation modernization. December 1, 2010, San Salvador Challenges Relating to Trafficking in Persons and Migrant Smuggling in the Region: From the Perspective of Refugee Protection

Topics to Address: (1) The current situation of refugees in the RCM region: - The situation of Colombia - Mixed migration flows (migrants and refugees) (2) Considerations regarding trafficking in persons and migrant smuggling: - The Interest of UNHCR - Key challenges in refugee protection - Aspects related to regulatory frameworks

The Current Situation of Refugees in the RCM Region

Forced Movement in Figures (2009) Refugees: 812,300 Asylum Applicants: 125,000 Internal Displaced Persons: 3,300,000  Population under 10,000

Mixed Migration and Refugee Protection Refugees move for different reasons than migrants and enjoy a specific legal status under International Law. Mixed Migration: Includes persons with different motives and different assistance and protection needs: - Predominantly migrants for economic reasons - A low percentage of refugees - Other groups with specific needs exist as well (not necessarily as refugees): Unaccompanied boys, girls, and adolescents, victims of trafficking, open water rescue, migrants having suffered abuse

Mixed Migration and Refugee Protection Risks associated to international border crossing Life-threatening risks Violence against migrants and refugees Specific risks for refugees Obstacles to entering the territory Not being identified as refugees Risk of refoulement

Mixed Migration and Refugee Protection Systems for refugees are often the only available protection mechanism

Considerations regarding Trafficking in Persons and Migrant Smuggling

The Interest of UNHCR Trafficking in Persons Could affect persons Could lead to who already are underpersons being the mandate of UNHCRincluded in the mandate of UNHCR (Risk of Protection) (Definition of Refugee)

Key Challenges in Refugee Protection - Significant advances in the protection of victims of trafficking, mainly from the perspective of their nature of victims of a crime - An emphasis on assistance and on meeting immediate needs, with repatriation as the usual measure

Gaps in Protection (From a Refugee Protection Perspective) Medidas generales de Protección ____ No son suficientes para víctimas de trata que temen persecución en su país de origen 1 Procedimien- tos para determinar condición de refugiado ___ Garantizar acceso a las víctimas de trata 2 Definición de refugiado ___ Garantizar interpretación adecuada en casos de trata de personas 3 General Protection Actions Are insufficient for victims of trafficking fearing to be persecuted in their country of origin Procedures to Establish Refugee Status To ensure access for victims of trafficking Definition of Refugee To ensure an adequate interpretation in cases of trafficking in persons

Estados partes reconocen que todas las acciones emprendidas de conformidad con este instrumento internacional, incluyendo la determinación que una persona es una víctima de trata, no debe afectar la aplicación de la Convención de 1951 y su Protocolo, en particular la definición de refugiado y el principio de no devolución. Cláusula de salvaguardia (Artículo 14, Protocolo de Palermo) States Parties recognize that all actions implemented in accordance with this international instrument, including the establishment of a person as a victim of trafficking, shall not affect implementation of the 1951 Convention and its Protocol, particularly the Status of Refugee and the principle of non-refoulement. Saving Clause (Article 14, Palermo Protocol)

Ley contra la violencia sexual, explotación y trata de personas de 2009 estipula: Repatriación para víctimas de trata debe realizarse “sin perjuicio del derecho de asilo” (artículos 16 y 17) Víctimas tienen derecho a información sobre sus derechos y los servicios que se encuentran a su alcance, así como “sobre el procedimiento de asilo, la búsqueda de su familia y la situación en su país de origen” (artículo 2.h) Guatemala The 2009 Law Against Sexual Violence, Exploitation, and Trafficking in Persons establishes: Repatriation of victims of trafficking shall be implemented “without detriment to the right to asylum” (Articles 16 & 17) Victims have the right to information about their rights and the services available to them, as well as “about the asylum procedure, the search for their families and the situation in their country of origin” (Article 2.h)

Ley Federal sobre trata de personas (2007) prevé la capacitación obligatoria en derecho internacional de refugiados Oficio del INM sobre víctimas de trata (2010) prevé expresamente el derecho de asilo y la posibilidad de solicitar el reconocimiento del estatuto de refugiado México Mexico The Federal Law Against Trafficking in Persons (2007) establishes mandatory training on international law relating to refugees The Minute of INM about Victims of Trafficking (2010) explicitly establishes the right to asylum and the possibility of applying for refugee status

Protocolo para la Repatriación de NNA víctimas de trata contiene cláusula de salvaguardia sobre el principio de no devolución y hace referencia a Directrices del ACNUR sobre la aplicación de la Convención de 1951 a las víctimas de trata Costa Rica The Protocol for the Repatriation of Boys, Girls, and Adolescents Victims of Trafficking contains a saving clause on the principle of non-refoulement and refers to UNHCR Guidelines about implementation of the 1951 Convention for victims of trafficking.

Lineamiento regionales para la protección especial de NNA víctimas de trata establecen: “[e]n los casos en que el país que protege tenga motivos razonables para concluir que la repatriación conlleva un serio riesgo para la víctima o su familia, podría ofrecer alternativas jurídicas y/o humanitarias temporales o permanentes a la repatriación, incluyendo la posibilidad, cuando sea aplicable, de asegurar el acceso al procedimiento de determinación de la condición de refugiado, de conformidad con lo establecido en la legislación nacional de cada país”. Conferencia Regional sobre Migración Regional Conference on Migration The Regional Guidelines for Special Protection in Cases of the Repatriation of Child Victims of Trafficking establish: “In those cases where the State providing protection has reasonable grounds to conclude that the repatriation carries a serious risk for the victim or his or her family, the State may offer legal and/or temporary or permanent humanitarian alternatives to repatriation, including when applicable to ensure access to asylum procedures, consistent with the domestic legislation of each country.”

Casos reconocidos en Canadá, Colombia, Costa Rica, Ecuador y Estados Unidos de América Reconocimiento formal del estatuto de refugiado a víctimas de trata Formal Acknowledgment of Refugee Status for Victims of Trafficking Cases recognized in Canada, Colombia, Costa Rica, Ecuador, and the United States

The Interest of UNHCR Migrant Smuggling It is an accepted fact and a cause for concern that refugees and refugee status applicants may be forced to resort to migrant smugglers and other forms of clandestine movements as a means of gaining access to protection in another country.

Key Challenges in Refugee Protection - A need to differentiate between migrants in general and refugees (different rules exist for their treatment). - The form of entry should not have repercussions on the need for protection under refugee status. - Indiscriminate implementation of control actions could affect the chances of refugees to gain access to protection in another country.

Estados partes reconocen que todas las acciones emprendidas de conformidad con este instrumento internacional debe afectar la aplicación de la Convención de 1951 y su Protocolo, en particular la definición de refugiado y el principio de no devolución. Cláusula de salvaguardia (Artículo 19, Protocolo de Palermo) Saving Clause (Article 19, Palermo Protocol) States Parties recognize that all actions implemented in accordance with this international instrument shall not affect implementation of the 1951 Convention and its Protocol, particularly the Status of Refugee and the principle of non-refoulement.

1. Los Estados Contratantes no impondrán sanciones penales, por causa de su entrada o presencia ilegales, a los refugiados que, llegando directamente del territorio donde su vida o su libertad estuviera amenazada en el sentido previsto por el artículo 1, hayan entrado o se encuentren en el territorio de tales Estados sin autorización, a condición de que se presenten sin demora a las autoridades y aleguen causa justificada de su entrada o presencia ilegales.  …  Artículo 31, Convención sobre el Estatuto de los Refugiados de 1951 Article 31, 1951 Convention relating to the Status of Refugees The Contracting States shall not impose penalties, on account of their illegal entry or presence, on refugees who, coming directly from a territory where their life or freedom was threatened in the sense of Article 1, enter or are present in their territory without authorization, provided they present themselves without delay to the authorities and show good cause for their illegal entry or presence.

Autoridades competentes (migratorias, policiales) garantizarán que las personas objeto de tráfico ilícito de migrantes que buscan protección internacional sean remitidas a la autoridad responsable para determinar su caso Se debe garantizar el acceso del ACNUR a estas personas Ley Modelo de UNODC (Artículo 28) UNODC Model Law (Article 28) The competent authority (immigration, police) shall ensure that smuggled migrants who are seeking international protection are referred to the appropriate competent authorities to decide on their case. Access to UNHCR should be ensured for these persons.

Aspects Related to Regulatory Frameworks In regard to matters of protection, is a legal reform required in Member States of RCM to enable them to be more effective in assisting victims of trafficking in persons and migrant smuggling?