This document summarizes a research study on undocumented migration and public opinion in Greece. The study interviewed 778 people in Athens and Nafplion about their attitudes toward undocumented immigrants in Greece. It provides background on Greece's economic struggles following the 2008 financial crisis and the resulting 22% decline in GDP. High unemployment and economic failures have led Greek society to take extreme measures against undocumented immigrants. The document reviews literature on the relatively new concept of "illegal immigration" and how migration patterns have changed over time. Greece has shifted from being a country of emigration to one of immigration. The influx of immigrants, both documented and undocumented, impacts economies and can increase social tensions.

1. Finding a New Home: Undocumented Migration in the Eastern Mediterranean and
Greek Public Opinion.
Henry M. Jackson School of International Studies
Undergraduate Research Winter 2015
______________________________________________________________________________
Research Advisor
Dr. Taso Lagos
taso@uw.edu
____________________________
Authors
Inna Dobrogoskaya
Lavina Joseph
Melonique RiAll
Aimee Shuck
Alison Steichen

2. 1
Introduction
In July 2013, the European Union (EU) countries signed the Dublin III Regulations,
which makes the first Member State where an asylum seeker boards accountable for examining a
person’s refugee claim. As a gateway nation to the rest of the EU countries, this law affects
Greece tremendously, as the country has seen an exorbitant increase in undocumented people.
Furthermore, the Global Financial Crisis of 2008, which resulted in the fall of stock markets and
slow economic growth, had a greater impact on Greece’s economy than any other country.
Between 2001 and 2008, the Greek government’s revenues grew by 31%, the economy’s deficit
decreased by 5% annually, but government expenditures increased by 81%.
Simultaneously, the Eurozone, a monetary union currency system used by the 19 EU
countries including Greece, and represented by the Euro (€), decreased by 2%. In the aftermath
of the Financial Crisis, Greece’s economy continues to shrink more than any other wealthy
nation. Roughly, 49.3% of the Greek youth population is unemployed, and the nation’s nominal
gross domestic product (GDP) fell by 22% from 2008 to 2014. High unemployment and a failing
economy, mixed with illegal immigration has resulted in Greek society taking extreme measures,
including the violation of human rights, to halt undocumented people from crossing into and
staying in their country.
This research study focuses on illegal immigration and the opinions of 778 interviewees
in Athens and Nafplion, Greece about how they feel about undocumented people living and
working in Greece. It examines the problems that have risen for the undocumented living in
Greece during the recent economic turmoil. Furthermore, the study concentrates on the history of
migration in Europe (Greece in particular), and its increase in the late 20th
and early 21st
centuries from North African and East Asian countries. Four questions were asked involving

3. 2
attitudes towards undocumented migration into Greece and the role the Greek government does
or does not play in facilitating such inflow. All questions were open-ended and the interviews
conducted in English except for a rare instance when it was conducted in German. Students were
divided into teams of three and conducted the interviews in four downtown areas of Athens as
well as the resort city of Nafplion in the Peloponnese. The four areas – Pangrati, Kolonaki,
Plaka, and West Plaka – were chosen for their demographic value as areas that working, middle
and upper-middle as well as areas of general mixed use in high-traffic, mixed-used sections of
the city. There was no systematic randomization of the respondents nor did students have any
training in conducting ethnographic interviews of this type as part of the effort. The project was
part of a University of Washington study abroad program in Greece in summer, 2014. Thus is
should be stated at the outset that the scientific value of this study may be of limited use, since
normal procedures to insure scientific validity were not followed. Nevertheless, the results were
interesting and do shed some light on the attitudes of Greeks toward their unwelcome visitors.
Literature Review
Prior to the Twentieth Century, people migrated around the world without restrictions on
movement. The concept of illegal immigration, sometimes referred to as “irregular immigration,”
is a new one. In order to keep out a certain “unwanted” racial, religious, or ethnic group, nations
developed restrictions on immigration. By establishing boundaries and borders, the idea that
there are “insiders” and “outsiders” is promoted. Consequently, this leads to the outsiders
attempting to change their status to insider by whatever means possible. As migration, policies
and restrictions are imposed or strengthened, clandestine immigration increases as a direct
response to the rise in security.

4. 3
Some of the first modern and longstanding restrictions on immigration were the
Netherlands Aliens Act in 1849 and the United States’ Chinese Exclusion Act of 1882, followed
by similar statutes in Canada a few years later. The Europeans, introduced restrictions on
immigration in the late Nineteenth Century and the beginning of the Twentieth Century. Even
the term classifying immigrants as “illegal” was not really used until after the 1920s in the
United States, and in Europe the term illegal immigrant is rarely seen in sources prior to World
War II. The 1920 Immigration Act in Belgium established the concept that unwanted immigrants
were those who had entered the country illegally. Before this act, “illegal” immigrants were just
seen as colonial workers and were widely tolerated despite their “illegal” status, and legalizing
their status was very easy at the time. Until the early 1980s, immigrants were simply referred to
as foreigners, and the term immigrant was not used until after the mid-1980s. The term
“clandestine” was not used to describe immigrants until after the Martelli Act in Italy in 1990. In
the EU, “illegal immigration” was not officially declared an issue until 1985.
Migration Patterns and Effects
Humanitarian immigration and utilitarian immigration are two categories that generally
classify immigration. Humanitarian immigration mainly refers to the migrants who immigrate
because of political or social oppression and dangers. This category is mainly asylum seekers,
and people who come from very deprived and vulnerable backgrounds. Asylum seekers are often
from very impoverished backgrounds and often have a low level of education. This group of
migrants is most likely to seek social benefits from the host country, which increases the social
expenditures of the host country.

5. 4
Utilitarian immigration is typically migrants who immigrate for economic reasons. This
type of immigration generally includes young and healthy workers, people who have a
significant amount of capital, capabilities, and/or skills that are in demand in a particular labor or
financial market. This second category of immigrants has a higher possibility of integrating
successfully in the economy and society of the host country and is more likely to benefit the
economy. Most of these immigrants are chosen based upon their ability to integrate
economically. Some asylum seekers may have attributes that apply to both categories, but the
majority does not. There are also “fake asylum seekers”; those who want to immigrate but do not
face any life threatening dangers in their home countries and lack the skills and capital to qualify
as economic migrants. A host country cannot continually accept immigrants that neither migrate
for humanitarian purposes nor fit the utilitarian category criteria because of the high social
expenditures these types of immigrants require.
Migration patterns change over time throughout geographical regions, Greece was
formerly a country from which people emigrated; now it has become a host country to many
immigrants, both legal and illegal. When a country shifts from being an exporting country of
migrants to a receiving country, one of the key elements affected is the economy. When
immigrants arrive on the labor market, there is an increased supply of labor, which means in
general, there will be a decrease in the average wage since there is now excess supply of labor.
This often leads to a decrease in native employment because natives are discouraged from taking
jobs at the new lower wage. Those who arrive illegally, or legally but are not able to find jobs in
the formal market, generally participate in the informal economy of the country, especially in the
countries of Southern Europe, which often aggravates the plight of already poor workers. The
increase of immigrants in a host country sometimes creates social tensions, especially in times of

6. 5
crises. The rise of social pressures often encourages racism and xenophobia and increases far-
right political movements. This is a phenomenon that can be found not only in Southern
European countries like Greece, with the slow but sure growth of support for the far-right party
Golden Dawn, but also has gained momentum even in countries such as France and Germany,
especially since the attack on a Parisian magazine ¨Charlie Hebdo¨ in January.
Irregular Immigrants in Europe
In the last two decades of the Twentieth Century, Greece turned into a receiving country
of migrants, rather than one from which migrants leave. Apart from the many legal immigrants
from various countries, it has become a host to a few million illegal immigrants from North
Africa, the Middle East, South East Asia, and even from Eastern Europe, primarily the Balkans.
Europe as a whole has seen an enormous increase in illegal immigration in the last decade. As of
2006, there were approximately 4-7 million irregular immigrants in Europe. Frank Duvell claims
that there are certain assumptions that can be made of the illegal immigrants:
● For the most part, irregular immigrants originate from neighboring regions
and countries.
● These migrants move according to previous colonial ties between
countries: for example, Francophiles are more likely to migrate to French-speaking
European nations such as Belgium and France, and so forth.
● Some irregular immigrants relate to the refugee crisis in Europe during the
1980s and the 1990s— they are rejected asylum seekers that did not leave, or they
attracted more “illicit chain migration.”

7. 6
● Irregular immigrants move because of labor markets, which include
domestic work, entertainment, sex, and so on.
● Immigrants and ethnic groups of migrants create chain migration: they act
as a bridge for other migrants of the same background, establishing a network, and
encouraging others to follow.
● The most significant countries of origin of immigrants are neighboring
regions, but there is an exception concerning Europe, where illegal immigrants come
from all over the world, not only surrounding areas.
The illegal immigrants of Europe come from more than just the neighboring areas and
former colonies. Europe’s population of illegal immigrants is exceptionally diverse. A great deal
of the illegal immigrant population of Europe at one point sought asylum, but, being rejected,
turned to smugglers and clandestine transportation to cross the border. Many irregular
immigrants also enter into their target country legally, with a tourist visa for example, and then
dissolve into the informal economy of the country. A great number of the illegal immigrants are
also asylum seekers, who sought asylum in European countries because they had no other legal
way to enter the country. Some of the illegal migrants were also those granted a temporary stay
because they had applied for refuge, but upon rejection, they did not leave the country.
According to the 2011 National Census, foreigners comprised 8.4% of the population of
Greece. The estimated number of undocumented immigrants was about 250,000 people. In the
past 10 years, there has been a massive increase in the number of immigrants from Africa and
Southeast Asia, and although this number is increasing, the majority of the immigrants come
from former socialist countries, primarily in Southeastern Europe and the Balkans. The recently

8. 7
published case study of the immigrant population in Preveza, Greece, found that about 24.1% of
the immigrants of Preveza participated in the informal economy. Even though informal
employment is much more frequent in rural areas because of agriculture, it is the highest
employer of immigrants in the Southern European countries. Integrating immigrants in
workforces is crucial to reap the social and economic benefits for a host country. In the Preveza
case, about 50% of the population as a whole participated in a formal economy, but only 17.5%
of immigrants held full-time positions, as compared to 50% of natives. Less than 20% of the total
Greek population participated in the informal economy, but it was 33% among immigrants.
Although informal employment has decreased in Greece, the number of immigrants involved in
the informal sector has increased. As immigrants disappear into the informal economy of the
country, they become harder and harder to track.
Dealing with irregular immigration is extremely difficult; there seems to be a direct
correlation between the increase of regulations and restrictions at borders and the rise of a
clandestine movement. Strengthening restrictions on migration does not have a deterrent effect
on illegal immigration. In fact, it seems that they are directly proportional. As restrictions grow,
illegal immigration increases—especially through human traffickers—because people who once
met certain criteria to qualify for asylum and other types of legal migration are no longer
eligible, and, therefore, seek illegal entrance into the target country. The EU have established
many policies in order to prevent the entrance of unwanted migrants, but those migrants still find
ways to enter. It would be beneficial for the EU to work with bordering countries to help prevent
illegal immigration, as Germany did with Poland before it joined the EU.
Germany for instance, helped Poland control its borders by providing financial support to
Poland specifically for border security. In order to insure that some members have regulations

9. 8
that are more lenient on immigrants, the EU has established a Common European Asylum Policy
(CEAP), which all members are required to implement, along with the Dublin Regulations. The
Dublin Regulations puts a great deal of pressure on the EU member states that lie along the
borders, and it is their responsibilities to maintain control of EU border. However, not all
countries have enough resources to successfully keep illegal immigrants from entering,
especially countries like Greece and Italy, both of which are easily accessible through their sea
borders.
Results
This study took on the complicated and sometimes emotional task of interviewing many
Greeks to hear what their feelings and opinions are about the illegal immigration issues in
Greece; an issue that has been on the rise over the past several years. Greece has become a main
transit point for Asian and African immigrants who are trying to step foot in the EU. There are
mixed feelings about this immigration. There have even been many attacks on immigrants and
complaints from immigrants of abuse within the many camps and detention centers. Europe finds
itself caught between backlashes at home against the rising numbers of immigrants coming from
war-torn countries and international pressure to provide a humane response to the crisis that
many of these people are dealing with when they migrate. What complicates this is that it is not
just a problem in Greece, but also a European Union problem that should be with collectively
and humanely.
Those who make it to Greece risk detention in a closed camp to await deportation.
According to the Economist article, “Surge from the Sea,” “some 6,000 migrants are held in a
half a dozen camps,” while others are in overcrowded police stations. The situation is bleak for

10. 9
many that immigrate, but the situations they face in Europe are much better than what they are
leaving behind in the country from which they immigrate. The circumstances for immigration
into Greece have strained the number of immigrants that have been coming to Greece and those
forced to stay in Greece because of the Dublin III Agreement. The Dublin Agreement stipulates
that when immigrants are found to be undocumented in a country other than their country of
origin they are to be sent back to the country where they first stepped foot into the EU. This is
the country where their fingerprints are stored and asylum claimed—thus, the country becomes
responsible for them. The Dublin Agreement affects Greece because many of the immigrants
come from Europe via Greece because of its location and ample access from land and water.
The first question we asked the interviewees was about their position on illegal
immigration into Greece. We asked this question in order to get an idea of what residents of
Greece thought about the immigration situation. Of the 778 people interviewees, about 46%
reported that they support or are “for” illegal immigration because they that know many of the
people that are coming to Greece are coming from war torn countries where they have no choice
but to flee for their safety and the possibility of an opportunity for a better life. However,
because many people that immigrate do it for employment reasons, this is where the majority of
our interviewees voiced their disapproval with illegal immigration.
Alternatively, about 51% were against illegal immigration citing a variety of reasons. On
one hand, many claim that Greece’s economy is just not able to support so many people coming
there to work. With high unemployment rate in Greece, many residents have reported not finding
work and not wanting to have to compete with illegal immigrants for the little work there is
available and having to take lower wages because of the increase in available labor from new
immigrants. Others indicated that they were worried about what the immigrants would do to be

11. 10
able to make a living; that they might turn to criminal activity or disappear within the informal
economy to be able to support themselves. Still others stated that they just did not agree with
people doing things that are illegal, and therefore they should go through the legal process in
order to able to legal. This is a complicated and an expensive process in Greece, as in other
countries, and many times even asylum claims are denied to applicants. The remaining 3% of our
interviewees were unsure or lacked enough information about the issue to be able to say whether
or not they were for or against illegal immigration or they simply did not want to answer the
question.
Many people in Greece have expressed unrest with the way their government is handling
business in Greece. Illegal immigration is one of the serious issues that have been facing the
Greek government, and one that has many people unhappy with the results. Many have taken
issue with the way the government has dealt with immigrants and the conditions of the detention
camps where immigrants, including children, are held. Brutality is typical. Asylum is denied
much of the time.
According to a report by Human Rights Watch, Greece recognizes about 1% of asylum
claims. The government’s rejection of the vast majority of the asylum applications results in
many appeals; more than the system can keep up with. Rather than dealing directly with the
problem of the backlog of cases for appeals, the Greek government made it worse and gave the
job of interviewing the asylum seekers to police directorates who already have many other duties
and lack training in this area. The government then abolished the right to appeal leaving only
limited judicial review and people trapped in a bureaucratic maze. This result in the detention of
immigrants, who are then given a “white paper” and order for deportation within 30 days. This
instigates the problems because there is no enforcement behind the paper. If the time expires and

12. 11
the illegal immigrant does not leave, he or she is just given another white paper. Nevertheless, if
they are caught trying to leave the country, they are arrested and detained. One can see the
obvious problems with the government’s system.
As a result of this issue, the second question that we asked our interviewees was whether
or not they thought the Greek government was doing all they can do to deal with the problem of
illegal immigration. An overwhelming number of people reported that they did not believe the
Greek government was doing all that they could do. Of those who we interviewed 88% of the
people answered a strong “no” to this question. Many laughed and thought it was a ridiculous
question, or responded, “of course they aren’t.” Only 10% of the people we interviewed said they
thought that the government was doing all they can. Many thought that it was a complicated
issue and that the Greek government needed more help to deal with this subject. The remaining
2% reported they lacked enough information about what the government was doing to address
this problem, or they simply did not feel comfortable answering the question at all.
Our third issue was a little more complicated. It was about the laws that are now in place
in Greece and what people thought should be done to help with the illegal immigration problem.
We asked whether people thought, new legislation should be enacted to restrict illegal
immigration into Greece. This question gave rise to a variety of responses and many opinions
about the current laws for immigration in Greece and what should be done. As mentioned
previously, the Dublin III Agreement has a significant effect on the way that illegal immigration
is handled in Greece. Of the Greeks we interviewed, 54% reported that they supported new laws
that would restrict illegal immigration into Greece. Although the types of rules that they would
like to see put in place varied considerably throughout the interviews, many reported that they

13. 12
thought the EU should help with this problem. This is just not a Greek problem; it is a European
issue, and the EU countries need to work together to be able to have any progress in this area.
Other also stated that they thought there should be stricter border control. This issue is
more complicated than it may appear, because of the many ways that migrants can enter the
country over water and land. Furthermore, 41% of our interviewees conveyed that they were
against new laws that restrict immigrants. They stated there were already enough laws in place in
Greece, and they needed to enforce the laws that were already in place. Finally, about 5% of the
people said they were unsure and lacked enough information to answer this question.
The last question was the hardest to ask and get answers from people because it dealt
with the most humanitarian part of this issue. The question was whether illegal immigrants
should immediately be sent back to the country from which they came. Similar to the first
question, many people felt the government needed to do something to help people who are
fleeing from countries where they are suffering. Although they also know that the Greek
economy cannot support all the people that are migrating, many people felt that they should be
looked at individually. This should be done by reforming the asylum system and changing the
way that the government deals with migrants when they get there. In addition, 68% the
interviewees stated that they did not think that the migrants should immediately be sent back to
their country of origin and that each situation should be considered. The interviews showed that
29% of the people reported that the Greek economy cannot support these people and that they
need to go back to where they came from for many of the same reasons that they were not for
illegal immigration. Finally, about 3% of the people reported that they were unsure or did not
have enough information to answer the question.

14. 13
Overall, many of the Greeks we spoke to had high humanitarian feelings towards the
people coming into their country, but they also strongly felt that their country could not support
all of these people and that they needed help from the government and the EU to deal with this
issue. Many thought that it is a European problem and that it needs to be addressed on that level.
The new Greek government says that it wants to improve the human rights record of migrants. In
order to achieve this, they need to end abuses, protect migrant children, and reform asylum
practices. The future will reveal what the government chooses to do about this problem.
Discussion
This section analyzes the significance of the results for the four questions presented in the
interviews in Nafplion and Athens, Greece. It examines the overall importance of the findings to
discern the real opinions of Greeks on the issue of immigration.
For the first question, “Are you for or against illegal immigration?” the results are
close—they are almost divided into half with only a very few who were unsure. These findings
are somewhat peculiar considering the rise of the Golden Dawn party, which is known for being
extremely opposed to immigration. We were expecting to see results showing that more Greeks
were against illegal immigration. This could indicate that although the Golden Dawn party is
rising in numbers, perhaps the overall population has a plainly different mindset from the Golden
Dawn’s. Another possibility is that the Greek people interviewed do not want to say explicitly
that they are against illegal immigration, but consciously or subconsciously, they are.
In particular, this is a multi-faceted issue because of the state of the economy in Greece.
The economy since the recession has been a major source of discontent. Problems such as lack of
employment opportunities, public debt, inflation, and economic inequality between the rich and

15. 14
the poor have been generating restlessness in Greece for some time. Greeks are currently very
preoccupied with all of these issues, and in surveys done by the Pew Center unemployment was
reviewed as the biggest problem of all; nearly all Greeks (99%) think that unemployment is a
paramount problem in their country. This is important because that the economy in Greece is
already drained, and many people do not want to support the problems of other countries in
regards to financial and economic support for refugees. It is not that they do not feel
compassionate towards them but that they do not think that Greece can or should help them with
the economy in its present state. Undoubtedly, Greeks are already preoccupied with the
unavailability of jobs. Some people interviewed were unemployed and, for that reason, the added
burden of more illegal immigrants is a complicated domestic issue. On the other hand, many
Greeks empathize entirely with the plight of illegal immigrants and some people feel that the
immigrants can fill jobs in the informal sector. This could be the reason for the divide in
responses we received in our interviews.
For the second question, “Is the Greek government doing everything it can to help with
this problem?” the answers were as expected. The majority said “no.” Greek people are very
dissatisfied with their government. The consensus of the population is that the Greek government
is not doing anything to help any problem, especially in regards to illegal immigration. Greeks
are more dissatisfied with the “direction” of their country than any other country in the European
Union. For this reason, it is not a surprise that the majority of the people answered “no.” These
answers were also the easiest to decipher during interviews.
Our third question asked, “Are you for or against stricter laws that would restrict illegal
immigrants from coming in the country?” Most people felt that stringent legislations to control
the borders and prevent illegal immigrants from entering Greece should exist 13% more were for

16. 15
stricter rules than against, and 5% were unsure. These results were surprising, however, for the
same reason the results from question one were surprising: the rise of the Golden Dawn. For this
reason, it is very interesting to see that this issue still relatively divides the population.
The fourth question stated, “Are you for or against illegal immigrants being immediately
sent back to the country?” Once again, the results were close, but a majority of those interviewed
would like the illegal immigrants to be sent back to their country of origin. We think this is
because this is a complicated issue with many factors that make it difficult to choose a side.
Many people struggled with coming up with a definite answer to this question. Many people
wanted them to be sent back because it is an illegal act. Some interviewees showed some
compassion for the immigrants but did not want the immigrants to suffer more in Greece because
they felt that Greece did not have enough resources to help them.
The fourth question also frustrated another group because of the fact that many
immigrants did not want to stay in Greece, but saw the country as a gateway to other well-off
European Union nations. In the same way, another problem citizens had with immigration is they
felt illegal immigrants often turn into criminals. On the other hand, a more compassionate
viewpoint is that there are terrible conditions for those caught sent to refugee camps. Many of the
interviews indicated that people understood the immigrants’ necessity to go to Greece. For
example, if the immigrants were from a war-torn country, such as Syria, interviewees thought
that it was inhumane to send them back. The foremost opinion was in favor of sending the
immigrants back either because they did not like what the illegal immigrants do to their country
in terms of depleting Greece’s resources or because they would inflict more crime.

17. 16
Overall, the significance of the results is intriguing because it is not easy to say that, even
though the Golden Dawn party has become more popular recently, all of the population is in
agreement with the views of that party. Although many people had mixed feelings on issues of
humanity and Greece’s well-being, it is evident that the majority of the population is not in
agreement with the state of the government either.
Conclusion and Future
The recent experience in Greece illustrates that illegal immigration is a multi-faceted and
very complex matter, involving political, economic, racial, ethnic, religious, humanitarian, and
other issues. Deciding what foreigners should enter a country can be highly charged with
subjective considerations often overriding what should be objective criteria. In enacting the
Dublin III Regulations, the European Union made a mistake in assigning to the Member State
where an asylum seeker boards the responsibility for examining the person’s refugee claim. The
research and analysis discussed in this study show that illegal immigration is an issue for the
entire EU and that it should be dealt with and administered by the central EU government. As
long as there is repression, injustice, and the plight in the world, people are going to look for a
better place to live, work, raise families, and enjoy fundamental human rights and freedom. That
is not going to change, and history has taught is that border restrictions are not practical.
Immigration should be handled realistically, humanely, and objectively. The Greek experience
has shown that provincial enforcement of immigration laws and policies is not active.
Illegal immigration has had a disproportionate impact on Greece because of its
accessibility to immigrants. The financial crisis in which Greece has been embroiled greatly
exacerbates this issue. Bureaucracy has mired the administration of immigration matters. This

18. 17
study has established that the EU should amend the Dublin III Regulations and that the EU
should decide immigration issues objectively for all of the EU and its individual Member States.
Members States should fairly spread the social and administrative costs immigration.

19. 18
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