The Challenge Of Resettling Refugees In Japan

POINT OF VIEW/ Johan Cels: The challenge of resettling refugees in Japan

SPECIAL TO THE ASAHI SHIMBUN

Johan Cels

"Moving to Mars" is the title of a superb documentary about two young Karen refugee families who are being resettled from Mae La, a camp on the border between Thailand and Myanmar (Burma), to Sheffield in Britain.

The film chronicles their experiences in the refugee camp, their hopes for a brighter future and their resettlement to Britain. Humorous on occasion, the film is deeply touching as it shares the hopes, dreams and bewilderment, as well as the shock of the two families, while establishing a new life.

The film's message could not be more timely. The first group of some 30 Burmese refugees, including young children, arrived in Japan today. They fled Myanmar years ago and have resided at Mae La ever since.

As they are not able to return to Myanmar or settle in Thailand, resettlement elsewhere is their only hope. Living in refugee camps is harsh and offers no future. Education and employment opportunities are scarce. Many of the children born there know little else.

In December 2008, the Japanese government decided to start a resettlement pilot project. Over a three-year period, 90 Burmese refugees will be resettled in Japan.

Japan is the first Asian country to adopt such a project in line with human-security principles, protecting and empowering people, guiding its policies. It also reflects Japan's strengthening of refugee and asylum policies. In recent years, more refugees have been granted protection in Japan. In 2009, a total of 531 refugees were allowed to stay. This is the highest number since Indochinese refugees began arriving in Japan more than 30 years ago.

For the U.N. High Commissioner for Refugees (UNHCR), the resettlement pilot project is very important.

At present, the UNHCR faces a huge gap between existing needs and available resettlement destinations. Worldwide, some 750,000 people out of 10.4 million refugees under the UNHCR's mandate are estimated to be in need of resettlement over the next five years. However in 2009, only 84,000 refugees, or 11 percent of those in need of resettlement, were able to depart for a new country.

To overcome this gap, the UNHCR has been urging more nations, beyond the traditional immigration and resettlement countries like the United States, Australia, Canada and New Zealand, to welcome refugees. Japan has responded positively to the call and we must ensure the success of the program.

One of the key measures of success will be the sustainable integration of the Burmese refugees into their new communities and Japanese society. The experience of the 11,000 Indochinese refugees who came to Japan shows that they can successfully integrate into Japanese society and make important contributions to local communities.

There are, however, important challenges and we need to draw upon the experiences gained so far.

Before arriving in Japan, the International Organization for Migration (IOM) will provide initial language training as well as cultural orientation about life in Japan. Upon arrival in Japan, a six-month assistance program will be implemented through the Refugee Assistance Headquarters. This includes, among others, providing accommodations, medical care, language training, cultural orientation, skills development and assistance in finding employment.

Following the initial period, the refugees are free to choose where to live in Japan while continuing to receive counseling and assistance for employment and skills training, often through the local communities and authorities. Hopefully, as soon as possible, the resettled refugees will be able to stand on their own feet.

But there will be many unforeseen challenges. What may appear logical, practical and obvious to us, may solicit bewilderment and angst among the refugees.

To minimize these challenges, we must adopt a comprehensive and longer-term integration strategy. The provision of assistance during the first six months may not suffice and a longer-term integration, thus a follow-up strategy must be developed. Basic proficiency of the Japanese language is necessary to find employment. The experience of the Indochinese refugees showed that language training requires longer concerted efforts, especially for adults. In the right context, children are quick to learn a new language at school and through friends.

The experiences of the Icho Elementary School in Yokohama, which schools many refugee and migrant children, shows that special training and support is also required for the teachers and the community so that education programs and teaching skills can be adjusted to meet the needs of the children and the parents.

From the outset, it is essential to build a strong social support network around the refugees. Navigating daily life in a sprawling urban context like Tokyo requires sustained support and skills that cannot be easily shared through cultural orientation courses.

Therefore, it is important to extensively draw from the outset upon the support of the existing Karen refugees as well as of the NGO communities, including in the design and implementation of the integration programs.

There is a small but vibrant Karen community in Japan which can assist the new refugees in their daily orientation. The NGO community can equally help build a bridge between the refugees and the local communities. Likewise, the local authorities will provide important services, such as social security, housing and medical services. They require guidance on the potential issues that they may need to address.

At the broader level, close coordination among all relevant government ministries, local authorities, NGOs, refugee communities as well as IOM and UNHCR are essential.

Much of the assistance does not necessarily have to be provided through government services, but it can be done by the public. To do so, however, requires guidance, support and the necessary resources.

A successful reintegration program for resettled refugees will also have broader implications for developing a comprehensive integration policy for refugees in Japan, which is lacking.

At present, varying levels of assistance exist depending on whether a person has been granted Convention Relating to the Status of Refugees or humanitarian status, or is a resettled refugee. For example, language training is only available for a limited period to refugees with convention status as well as those who have resettled.

While taking into account specific needs and requirements, harmonizing the level of integration assistance that is being provided to the various protected groups will be an important step.

Extensive experience and expertise exists in Japan through, for example, the integration packages developed for foreign workers of Japanese origin and Indochinese refugees. It is important to review and identify the best practices. Gathering the experiences of other countries in integrating various groups of refugees and humanitarian status holders will also provide useful insights for Japan.

At the end of the pilot project, the UNHCR hopes that more refugees will be given the opportunity to start a new life in Japan. What matters now is the quality of the program, rather than the number of refugees resettled during this pilot project phase.

It's also important to ensure that the program develops successfully in the coming years and that a comprehensive and sustainable integration strategy is implemented, benefiting both resettled as well as other refugees recognized in Japan.

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Johan Cels is a UNHCR representative in Japan.

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Footnote: The film "Moving to Mars" (directed by Mat Whitecross) will be shown at the 5th UNHCR Refugee Film Festival taking place in Tokyo from Oct. 1 to 10. For details, see (http://unhcr.refugeefilm.org).