House of Commons - Foreign Affairs

Select Committee on Foreign Affairs Fourth Report

ENTRY CLEARANCE OPERATIONS WITH PARTICULAR REFERENCE TO ISLAMABAD AND NEW DELHI

THE VISIT TO NEW DELHI AND ISLAMABAD

37. Applicants for visas are interviewed by ECOs, who may be either Diplomatic Service staff or Immigration Officers on secondment. Of the full-time ECOs, just over one third are Immigration Officers on secondment. At the majority of the overseas posts, the ECO function is combined with other responsibilities as there is insufficient work to justify a full-time officer. The workload is often seasonal, and temporary duty staff are used to cover peaks. The ECO establishment in New Delhi is 12 and in Islamabad 26.[67] The operation is managed by one or more Entry Clearance Managers; in the largest visa sections (including New Delhi and Islamabad) there is also a First Secretary (Immigration).

38. Discussions at both Posts revealed that entry clearance work appeared to be unpopular with Diplomatic Service staff. It was typically a first posting at DS9 level[68], and many staff seemed to regard it as a phase in their career that had to be endured, rather than a matter of choice. Baroness Symons had already indicated to the Sub-Committee that the Government was now trying to counter the impression that entry clearance was a "Cinderella posting" away from the mainstream of the "real work of the Foreign Office" and the Chief Clerk has written round FCO staff saying that a period in entry clearance would be a positive asset to their careers.[69] We agree that entry clearance work is an important FCO function. If, however, the perception among staff is to change, FCO management will need to demonstrate that a successful period of entry clearance work really does enhance career prospects. We look forward to hearing how the FCO proposes to achieve this.

39. For Immigration Service staff, overseas postings as ECOs are at a premium; we understand that many more staff apply than can be accepted. At first sight, this suggests that one option might be to increase the number of IS staff employed as ECOs. This would, however, have two drawbacks. First, the overall staffing situation in the Immigration Service makes it difficult for it to provide more staff for this function.[70] Second, a certain amount of ECO expertise is needed in the Diplomatic Service to be applied in Posts where the ECO has a multi-functional role. These constitute the majority of entry clearance sections worldwide.

40. In both Islamabad and New Delhi, ECOs work in mixed Diplomatic Service/Immigration Service teams, each reporting to an Entry Clearance Manager, who may be from either Service. In both New Delhi and Islamabad, the Immigration Service staff tended to be a little older than their Diplomatic Service counterparts.

41. There was an overall feeling of isolation on the part of ECOs from the main work of the Posts. This was enhanced by the fact that in both New Delhi and Islamabad their accommodation was largely self-contained. There was a perception that senior management viewed it as a relatively unimportant part of the work of the Post, and paid it scant attention. We believe that any such perception is misplaced. For many ordinary citizens in those countries, an ECO may be the only official representative of the United Kingdom that they ever meet. It is vital that every effort is made to ensure that such meetings project a positive view of this country. We recommend that Heads of Posts and Missions make every effort to ensure that entry clearance is, and is seen to be, a key element in the overall function of their work of representing the United Kingdom.

42. In both Posts, there were disturbing accounts of both dissatisfied applicants and sponsors directing verbal abuse towards both ECOs at interview and towards locally-engaged staff on public enquiry counters and on the telephone. Such incidents were apparently not infrequent. We deprecate such conduct, which is hardly conducive to encouraging a "customer-friendly" approach from entry clearance sections.

43. Staffing, training and personnel selection have a part to play in ensuring a high quality of service. It is important, if quality of service is not to suffer, that staffing levels are maintained, particularly in the larger entry clearance sections. We recommend that FCO Personnel and Security Command takes every step necessary to ensure adequate levels of staffing in entry clearance sections, having regard both to seasonal fluctuations in demand, career progression and other calls on manpower. It is clear that some of the difficulties in Islamabad last year would have been avoided if staffing levels had not been allowed to fall in the Entry Clearance Section. We hope that the financial arrangements which have been introduced this year[71] will ensure that financial constraints do not lead to under-staffing of entry clearance sections.

44. Baroness Symons also saw a role for greater training both for ECOs and ECMs.[72] We agree. In particular, this should focus on the circumstances, and in particular, the culture in which they will be operating. In both Islamabad and New Delhi, the contribution made in this respect by locally-engaged staff was emphasised. We recommend consideration of more formalised and greater in-post training for UK-based entry clearance staff in post-specific factors relevant to their work.

45. We commend the excellent arrival notes prepared by the High Commission in New Delhi for ECOs and Entry Clearance Assistants. We understand that these were introduced to cover perceived inadequacies in the generalised pre-posting entry clearance training. Obviously, any such training cannot cover all matters relevant to a particular posting and New Delhi's initiative may have wider application. The cultural aspect was also emphasised in service where this element was often included in field trips.

46. Although the visit was made to the Indian Sub-Continent at a time when entry clearance operations were not at their busiest, it was clear how pressurised life could become. This argues for very careful selection of staff for such posts and their proper preparation for what they might expect to face. In particular, we heard of the potential problems in Islamabad that single women posted there were likely to face. We recommend that particular care is taken over staff selection for posts such as New Delhi and Islamabad, that pre-posting training include appropriate preparation for stress management and that appropriate advice and counselling is offered to single women at the time they are offered the posting. Consideration should also be given to the possibility of shorter postings, to reduce the burden on staff.

47. In concluding this section, we should like to place on record our appreciation of the work done in entry clearance sections at overseas posts. We recognise that there are many posts where this work can be difficult. The Members who visited New Delhi and Islamabad were impressed by the professionalism and dedication of both the UK-based staff and locally-engaged staff at all levels.

INFORMATION TECHNOLOGY

48. In both Posts visited, there appeared to be an urgent need for improvements in the information technology used in the entry clearance section, where attention was drawn to specific deficiencies. The FCO memorandum also drew attention to this problem and its consequences for operational efficiency.[73] Islamabad is presently using an interim system (QUICKFIRE) because of the failure of the previous system (SECUD II).[74] The latter system is still in use in New Delhi where it is "slow and cumbersome".[75] Both Posts are due to receive FIRECREST[76] later this year, after their busy summer seasons. This will allow the Visa Integration Project software package to be deployed which should improve both the speed and the efficiency of the entry clearance operation.[77] Given that upgrading obsolete information technology is one of the areas to receive specific attention following the Comprehensive Spending Review, we hope that there will be a thorough review of entry clearance section information technology to ensure that the full benefit is obtained from the installation of the new software. In view of the problems encountered with information technology in both Posts, we hope their will be no delays in installing the new software.

TAPE RECORDING OF INTERVIEWS

49. We also believe that, at least in sensitive Posts giving rise to a substantial number of representations, there is a case for tape recording interviews at least those at Tier 3 (visit visa applications likely to lead to a refusal) and Tier 4 (settlement visas). This would provide protection both for ECOs and applicants and also enable a record of the interview in the event of subsequent representations being made. Mr Chatwin, of the Joint Council for the Welfare of Immigrants supported the idea of tape-recording of interviews[78] and the Immigration Advisory Service suggested a pilot project, preferably in Islamabad.[79] We recommend a trial of tape recording of interviews at Tiers 3 and 4 in a large entry clearance section such as Islamabad.

Islamabad

RESPONSE TO PROBLEMS AT THE POST

50. We have earlier described some of the very serious problems at the Post in the course of last year. These resulted in a number of visits and inspections. Baroness Symons and Home Office Minister Mike O'Brien visited in November 1997, and there has been a full Post inspection plus a Migration and Visa Department inspection of the entry clearance section. Although we heard from many of the staff about some of the problems, we have not attempted to second-guess these comprehensive inspections, which produced a large number of specific recommendations for improvement. We ask the Government to give us a full progress report in their response to this report.

51. We understand, though, that considerable improvements have been made. These include:

introduction of a same day service for processing visit visas;

increased number of settlement interviews being conducted;

improvements to the public reception areas;

new arrangements for applicants from Mirpur and Sialkot; and

a new training plan.

We understand that the proportion of Members' representations relating to Islamabad which contest an adverse decision has now fallen to about 15% of the total. We congratulate the Post on this and look forward to further progress being reported in the Government response. We are, however, concerned that top priority should continue to be given to ensuring that the entry clearance section is fully staffed, and would therefore like to see the ECM team at full strength as soon as possible.

FORCED MARRIAGES AND RELUCTANT SPOUSES

52. We were told in Islamabad that the issue of forced marriages (typically a United Kingdom national of ethnic Pakistani origin taken to Pakistan and forced to enter into an arranged marriage, often with a cousin) has recently come more to the fore. It has been the subject of recent publicity in the United Kingdom.[80] While the problem is not a new one, with the removal of the "primary purpose" rule, ECOs have fewer options. When that rule was in force, if a sponsor (male or female) had been forced into marriage, the applicant could frequently be refused on primary purpose grounds.

53. Most reluctant sponsors wish their predicament to be kept confidential, because they fear the consequences of possible family, community and social pressure. ECOs respect such requests for confidentiality. Practical problems can arise from such requests, particularly where the reluctant spouse is either living in his or her parents' home, and works in the family business. It is then very difficult for ECOs to make or maintain contact. The task of the ECO is compounded by the fact that some allegations of reluctance are purely malicious. This can result in long delays while attempts are made to verify whether the spouse is genuinely reluctant.

54. ECOs told us that this was a highly sensitive issue to deal with, and that they could find themselves in an extremely difficult position: for example, an applicant who appears to qualify for a settlement visa yet whose sponsor may privately be threatening to commit suicide if one is granted. If a Member makes representations in such a case, perhaps at the behest of the sponsor's parents following an arranged marriage, and the ECO has no other grounds for refusing a visa, the likely outcome is that one will be issued, thus forcing a couple together against their joint will. There has been at least one case dealt with at Islamabad where the intervention of a Member played a key part in the issue of a settlement visa to the spouse of a reluctant sponsor.

55. The underlying considerations which may lead to forced marriages are beyond the scope of this inquiry. We commend the sensitive way in which these cases are handled in the Immigration Section in Islamabad, but we feel that better protection needs to be afforded to reluctant spouses.[81] We recommend that where there is clear evidence of genuine reluctance on the part of the sponsor, every lawful means is used to avoid issuing a visa.

56. We cannot believe that any of our colleagues would knowingly wish to play a part in forcing a couple together in this way. This is a very difficult area for all concerned, but we urge our colleagues to be aware of the fact that on occasion there is a risk that they may unwittingly be party to bringing about such a situation.

AIRLINE LIAISON OFFICER

57. Airline Liaison Officers (ALOs) have an important function to perform in helping to reduce the number of inadequately documented passengers arriving in the UK. Introduced in 1993, their main tasks include the provision of comprehensive training for airline staff on the United Kingdom's passport and visa requirements as well as basic techniques of passenger profiling and forgery awareness.[82] We understand that the ALO in Dhaka is also intended to be accredited to Islamabad but that this has not yet happened. An ECO has attempted to perform some of the functions, but with only limited success. Given the apparently high level of inadequately documented arrivals from Islamabad, and the imminent enhancement of flights, we recommend that urgent efforts be made to secure formal accreditation of an ALO in Islamabad, preferably permanently based there.[83]

67 Ev. pp.7, 9. Back

68 DS9 (Diplomatic Service Grade 9) is the equivalent of the Home Civil Service grade of Executive Officer, which is the grading level of Immigration Officers. Back

69 Q28. Back

70 Ev. p.3. Back

71 Q36. Back

72 Q30-1. Back

73 Ev. p.4. Back

74 Ev. p.9. Back

75 Ev. p.10. Back

76 Ev. pp.9, 10. Back