Migratory Policy as an Exclusionary Tool: The Case of Haitians in the Dominican Republic
Abstract
:1. Introduction
2. Outlook of Haitian Migration in the Dominican Republic
3. The Function of Racism in the Context of Haitian Migration in the Dominican Republic
4. Problematizing Haitian Migration as a Political Tool: Over a Million ‘Civil Deaths’?
5. Final Thoughts
Author Contributions
Conflicts of Interest
References and Notes
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- Reglamento Orgánico de las Instituciones Educativas Públicas del 28 de mayo de 1999, in the original. Order No. 4/99.
- The Protocol of Understanding between the Dominican Republic and the Republic of Haiti on Repatriation Mechanisms of 1999 (Protocolo de Entendimiento entre la República Dominicana y la República de Haití sobre los Mecanismos de Repatriación) was adopted in response to the motion put forward by the IACHR on November 22nd, 1999, as a result of a denunciation on mass expulsions of Haitian workers and their family members. Among other aspects, the agreement predicted: (1) ceasing mass expulsions of foreigners; and (2) respecting due process, including "the minimum notification period, access to family members, adequate audiences, and binding decisions to which the competent authorities would be legally obliged to comply."
- Ley de Migración No. 285/04, in the original.
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- Translated by the authors.
- A side note must be made here about the case of Haitian asylum seekers attempting to reach the United States by sea. As pointed out by Linda Bosniak (pp. 50–51), ‘the single most salient feature of the government’s immigration power is the fact that it is substantially unconstrained as a constitutional matter. American courts describe the immigration power as ‘plenary’ in character, by which they mean that the judiciary has virtually no authority to scrutinize what the political branches do in this domain’. She further notes that ‘plenary power has been invoked to support forcible return of Haitian and other nationals seeking to apply for political asylum in the United States’ and that ‘[m]any commentators have observed that the plenary power doctrine is an extraordinary doctrine of judicial abdication that has few, if any, analogues in other fields of public law’. Further to this, the authors would point out that, in recent years American policy vis-à-vis Haitians arriving by boat has been unequivocal: albeit not named, Haitian are targeted on the basis of a presumed nationality, and denied the right to seek asylum at the first port of call, in this case the United States. In July 2013, Australia made the headlines by heightening offshore asylum processing of asylum seekers, preventing them from reaching its shores and deporting them to subhuman camps, the worst of which in Papua New Guinea. See: Linda Bosniak. The Citizen and the Alien: Dilemmas of Contemporary Membership. Princeton and Oxford: Princeton University Press, 2006, pp. 9–11.
- Disposición Circular No. 017, in the original.
- The constitutional validity of Directive 017 of 2007 was challenged before the Dominican Supreme Court of Justice, which would argue that ‘if a foreign woman gives birth in the national territory, her son or daughter, by mandate of the same Constitution, is not born Dominican, […] therefore certainly it cannot be born Dominican the son or daughter of a foreign woman who, at the moment of birth, finds herself in an irregular situation’. See: “Emildo Bueno Oguis c/Oficialía del Estado Civil.” Dominicana Republic Supreme Court of Justice, Sentence No. 460. 2 November 2011.
- Similar cases put forward on this Amnesty International report: Dominican Republic. “Vidas en tránsito: la difícil situación de la población migrante haitiana y de la población dominicana de ascendencia haitiana.” AMR 27/001/2007. March 2007. http://www.amnesty.org/es/library/info/AMR27/001/2007/es.
- Although it has not been possible to gain access to the text of the Directive No.7475, its media impact easily exposes its fundamental principles. See: “La circular 7475 de la Dirección General de Migración y los derechos adquiridos.” Acento.com.do. 13 June 2012. http://www.acento.com.do/index.php/news/17897/56/La-circular-7475-de-la-Direccion-General-de-Migracion-y-los-derechos-adquiridos.html.“Extranjeros ilegales no entrarán a las escuelas.” Diario Libre. 11 June 2012. http://www.diariolibre.com/dleducacion/2012/06/11/i339582_extranjeros-ilegales-entraran-las-escuelas.html.Julia Ramírez. “Entidades dominico haitiana rechazan circular de Migración.” El Caribe. 12 June 2012. http://www.elcaribe.com.do/2012/06/12/entidades-dominico-haitianas-rechazan-circular-migracion.
- Natalia Riveros. “Estado del arte de las migraciones que atañen a la República Dominicana 2012.” Graphic on the educational profile of Haitian immigrants and immigrants with other backgrounds, with children older than 5 (Gráfico sobre el Perfil educativo de la población inmigrante haitiana y la población inmigrante de otros países con niños de 5 años o más), p. 58. Santo Domingo. OBMICA. 2013. http://www.obmica.org/index.php/publicaciones/informes/57-estado-del-arte-de-las-migraciones-que-atanen-a-la-republica-dominicana-2012.
- The Dominican Congress has a Bi-Chamber Commission on Haitian Affairs; in the Chancellery there is a Division of Haitian Affairs; the Dominican National Army curiously has a Department of Haitian Affairs within the State Secretary for the Armed Forces (Secretaría de Estado de las Fuerzas Armadas, in the original); the Police and the Directorate of Migration have similarly named outfits. This unifocal orientation in a single ethnicity, or at the very least the surprising choice of name is remarkably reminiscent of the bureaus of Jewish affairs of the Third Reich, or the Department of Indian Affairs and Northern Development in contemporary Canada (an umbrella federal state department in charge of native issues, which addresses native healthcare, education, justice, etc., based on the ethnic distinction of Canadian First Nations, rather than on the basis of issues shared with fellow Canadians). While it seems extreme to compare the Third Reich with liberal Canada and the Dominican Republic, the civil extermination of bodies in the two latter countries can be equated with the undoubtedly more violent physical elimination performed by the Nazis. Long-criticized postulations of the Indian Act in Canada decree that, in spite of its colonial history, any member of the Canadian First Nations carrying Indian Status will forfeit all its privileges (but presumably not the racial discrimination inherent to his/her condition) should s/he happen to marry anyone not carrying Indian Status. The offspring of that union would similarly forfeit any claim to Indian Status in the future. In one of the most ethnically diverse countries, this is tantamount to the civil genocide of Canadian First Nations within a couple of generations, at least in Southern Canada’s urban areas, where these community live side by side with Canadians of many other ethnicities.
- In the original: Blanco (B); Indio Claro (IC); Indio Oscuro (IO); Mestizo (M); and Negro (N).
- According to the testimony of three Dominican lawyers with the Haitian-Dominican Cultural Center in the Dominican Republic, if a Dominican citizen wants his skin color to be listed as ‘Black’ (N), s/he would have to make a formal request to the adequate administrative office. Otherwise, her/his I.D. would carry the summarily assigned identifier (IO) for Dark Indian. The overwhelming majority of people identified as (N) on their identity cards are Haitians with legal residence in the Dominican Republic.
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- I/A Court. On the case Nadege Dorzema et al. v. Dominican Republic. Judgement of October 24 2012 (Merits, reparations, and costs). Serie C No. 251. See also: Loyda Peña. “Afirma que CIDH se extralimita; sugirió denunciar Tratado.” Hoy Digital. 19 June 2012. http://www.hoy.com.do/el-pais/2012/6/19/433336/Afirma-CIDH-se-extralimita-sugirio-denunciar-Tratado.
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- “Urge la suspensión del genocidio civil.” Hoy digital. 16 March 2013. http://www.hoy.com.do/el-pais/2013/3/16/471649/Urge-la-suspension-del-genocidio-civil.Loyda Peña. “CERD pide restituir actas a dominicanos de origen haitiano.” Hoy digital. 11 March 2013. http://www.hoy.com.do/el-pais/2013/3/11/470834/CERD-pide-restituir-actas-a-dominicanos-de-origen-haitiano.Bueno Torres. “Sin identidad...no soy nadie.” Listín diario. 16 February 2013. http://www.listin.com.do/puntos-de-vista/2013/2/15/266095/Sin-identidad-no-soy-nadie.
- Oscar Medina. “¡A Denunciar esa Comisión! ” Listín diario. 18 March 2013. http://www.listin.com.do/puntos-de-vista/2013/3/18/269956/A-denunciar-esa-comision.Wanda Méndez. “Abogados divididos en torno a posición de la JCE ante la CIDH.” Listín diario. 15 March 2013. http://www.listin.com.do/la-republica/2013/3/15/269615/Abogados-divididos-en-torno-a-posicion-de-la-JCE-ante-la-CIDH.“JCE pide a CIDH no acoger medida cautelar contra RD porque demandantes no han agotado recursos de jurisdicción interna.” Hoy digital. 13 February 2013. http://www.hoy.com.do/el-pais/2013/3/13/471186/JCE-pide-a-CIDH-no-acoger-medida-cautelar-contra-RD-porque-demandantes-no.Viviano de León. “RD expresa inconformidad a CIDH por tantas audiencias.” Listín diario. 13 March 2013. http://www.listin.com.do/la-republica/2013/3/12/269223/RD-expresa-inconformidad-a-CIDH-por-tantas-audiencias.
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- Following exploratory visits, UN experts on the human right of minorities pointed out that ‘[…] Haitians living in established communities as well as Dominicans of Haitian descent live and work in fear of and in a situation of vulnerability, extreme poverty, and exploitation. Their documents are administratively denied, and all their other rights are subject to the arbitrary refusal and abuse of low-level bureaucrats, police officers, and soldiers who have power, lack instruction, and rarely have to account for their actions.’ See ref. [5].
- See in: IACHR. “Informe de Fondo No. 64/12. Case 12.271 Benito Tide Méndez y otros con República Dominicana.” 29 March 2012. paragraph 128. www.oas.org/es/cidh/decisiones/corte/12.271Fondo.doc.
- In a 1999 report called “The situation of Haitian migrant workers and their families in the Dominican Republic” (‘La situación de los trabajadores migrantes haitianos y sus familias en República Dominicana’) the Interamerican Commission on Human Rights described bateyes as ‘[…] inadequate [places to live], lacking electricity and sewage. The overcrowding, the lack of hygiene, of drinking water, and of latrines are all very serious problems. These shortcomings create conditions for diseases such as diarrhea, malaria, and tuberculosis.’ See: IACHR. “Report on the situation of Human Rights in the Dominican Republic.” OEA/Ser.L/V/II.104, Doc. 49 rev. 1. 7 October 1999. para. 343. Available at: http://www.cidh.org/countryrep/DominicanRep99/Table.htm.
- This conception is highly reductive, since Haitian religious culture has been influenced in equal measure by elements of African religions as well as by the evangelizing mission of Catholicism. Likewise, in the Dominican Republic Catholicism shares its space with Afrodominican rites such as santería.
- See, for example: “Haitianos matan compatriota y entierran cadaver.” El Caribe. 30 November 2012. http://www.elcaribe.com.do/2012/11/30/haitianos-matan-compatriota-entierran-cadaver.“Policía apresa haitiana mató a cuchilladas a otra de su misma nacionalidad.” El nuevo diario. 25 June 2012. http://www.elnuevodiario.com.do/app/article.aspx?id=291761.Ricardo Rodríguez Sosa. “Haitianos matan a un dominicano.” El Nacional. 16 September 2011. http://www.elnacional.com.do/nacional/2011/9/16/95245/Haitianos-matan-a-un-dominicano.
- See, for example: Fabio R. Herrera Miniño. “En el umbral del 169 aniversario de la separación.” Hoy digital. 22 February 2013. http://www.hoy.com.do/opiniones/2013/2/22/468414/En-el-umbral-del-169-aniversario-de-la-separacion.
- Foucault, Michel, op.cit. note 29, p. 206.
- Wieviorka, op.cit. note 4, p. 67.
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- See: Loyda Peña. op. cit. ‘Afirma…’. 19 June 2012.
- Wieviorka, op. cit. note 4, p. 125.
- Natalia Riveros. Estado del Arte de las migraciones que atañen a República Dominicana 2012, op. cit. note 17. 55.
- Rivers, op. cit., p. 65. To reach this conclusion the author compares the statistics of the Encuesta Nacional de Inmigrantes del año 2012 (2012 Immigration Census) with the figures of the Immigration Directorate, which identified 11,000 people of Haitian descent.
- Committee for the Elimination of Racial Discrimination, CERD/C/DOM/13–14. Report presented by the Dominican Republic as a member State, in reference to Article 9 of the Convention in the periods 13–14 (2011), § 39. The same argument was recently made by the State when justifying its allegations before the Interamerican Court on Human Rights, in the audience of the case “Nadege Dorzema and others vs. the Dominican Republic.” on 22 June 2012.
- Javier De Lucas. “La inmigración, como res política.” In Cuadernos Electrónicos de Filosofía del Derecho. 2014, vol. 10, p. 3. [Google Scholar]
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- A necessary note is that Haitian political bodies are disputed also in Haiti, where the rule of precariousness prevents citizens from partaking in the social order (much like the situation of Haitian denizens in the Dominican Republic. For a discussion on this, see Maria João Ferreira. “Bodies Do Matter! The Rule of Precariousness in Haiti.” International Social Science Journal 62, no. 205–06 (2013): 339–50. [Google Scholar]
- Butler, op. cit. note 24. Other contemporary examples might included the lives of Syrian or Libyan refugees shipwrecked off the coast of Italy, or the example of 9/11 terrorists put forward by Judith Butler (2006).
- On the occasion of the presentation of the Dominican Republic’s report to the Committee for the Elimination of Racial Discrimination, on the basis of article 9 of the Convention, the State maintained that ‘[… ] so as to guarantee better living conditions in the bateyes, several modernization and social reorganization programs were executed in the CAEI communities, the only sugar factory operating in the region of San Pedro de Macorís, at a cost exceeding US$25 million in the years 2007–2010. This amount includes the construction and equipment of primary and secondary schools, primary health care centers, bateye rehabilitation […].’ See here: CERD/C/DOM/13–14 (2011), par. 77. Nonetheless, this has been contested by Natalia Riveros’ report ‘Estado del arte de las migraciones que atañen a República Dominicana 2012’. Santo Domingo, Dominican Republic: Observatorio Migrantes del Caribe, 2012. (The state of migrations affecting the Dominican Republic 2012). The author underlines the precarious conditions workers and their families are subjected to (note 17, p. 100).
- “According to the first national immigrant census (Primera Encuesta Nacional de Inmigrantes en República Dominicana, 2013), the number of people affected by this measure would be 244,151 personas (2.5% of the country’s population), out of which 209,912 have Haitian origins.” http://media.onu.org.do/ONU_DO_web/596/sala_prensa_publicaciones/docs/0565341001372885891.pdf.
- Constitutional Court of the Dominican Republic. “Sentence TC/0168/13.” 2012, p. 24, §1.1.4. http://tribunalconstitucional.gob.do/sites/default/files/documentos/Sentencia%20TC%200168-13%20-%20C.pdf.
- I/A Court of Human Rights. “Case of the Girls Yean and Bosico V. Dominican Republic.” Judgment of September 8, 2005. Seri C No. 130.
- For additional information refer to: http://reconoci.do/
- We should note the worrying bouts of racism and xenophobia demonstrated by certain segments of Dominican society in support of the Court’s decisión. Manifestations of racial hatred, sometimes calling for violent action have occurred in Dominican streets with the acquiescence of the authorities. See: Primera Maye. “Miles de dominicanos de origen haitiano pierden sus derechos políticos.” El País. 11 November 2013. http://internacional.elpais.com/internacional/2013/11/11/actualidad/1384142862_840717.html.Primera Maye. “Si te portas mal, te va a llevar el haitiano.” El País. 2 November 2013. http://internacional.elpais.com/internacional/2013/11/02/actualidad/1383366569_134694.html.
- “Preliminary Observations from the IACHR’s Visit to the Dominican Republic.” I/A Commission of Human Rights. 6 December 2013. http://www.oas.org/en/iachr/media_center/PReleases/2013/097A.asp.
- Agamben, op.cit. note 39, p. 217.
- The authors have recently authored a report on Haitian human rights within the Caribbean region for a consortium of institutions including the ACP Observatory on Migration, IOM, and the National Consultative Council of Haiti. While it focused on the case studies of the Bahamas, Cuba, and Dominica, the Dominican Republic was an omnipresent example for its extremes, deserving a plethora of observations in the report’s body and in the annexes on third countries. See: Pedro F. Marcelino, ed. Si Proche et si Lointaines: Les Diasporas Haïtiennes aux Caraïbes. Brussels: ACP Observatory on Migration.
- Bosniak, Linda, op. cit., pp. 9–11.
- Chandrai Estévez. La Variable Étnico Racial en los Censos de Población en la República Dominicana. Santo Domingo, Dominican Republic: Oficina Nacional de Estadísticas (National Statistics Office), 2012, http://www.one.gob.do/.
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Mazzaglia, N.L.; Marcelino, P.F. Migratory Policy as an Exclusionary Tool: The Case of Haitians in the Dominican Republic. Laws 2014, 3, 163-178. https://doi.org/10.3390/laws3010163
Mazzaglia NL, Marcelino PF. Migratory Policy as an Exclusionary Tool: The Case of Haitians in the Dominican Republic. Laws. 2014; 3(1):163-178. https://doi.org/10.3390/laws3010163
Chicago/Turabian StyleMazzaglia, Natalia Lippmann, and Pedro F. Marcelino. 2014. "Migratory Policy as an Exclusionary Tool: The Case of Haitians in the Dominican Republic" Laws 3, no. 1: 163-178. https://doi.org/10.3390/laws3010163
APA StyleMazzaglia, N. L., & Marcelino, P. F. (2014). Migratory Policy as an Exclusionary Tool: The Case of Haitians in the Dominican Republic. Laws, 3(1), 163-178. https://doi.org/10.3390/laws3010163