This is the second of two articles about Turkey’s approach to migration and the most immediate challenges arising from the ‘refugee crisis’. While the first article analysed EU-Turkey relations, this blog gives and overview of the institutional set-up of migration management in Turkey.
By Tamer Kılıç and Marion Noack
Over the past 50 years, Turkey experienced a rapid transition, developing from a net emigration to an immigration country. During the 1960s and 1970s, large scale emigration from Turkey - mainly to Germany - took place due to guest-worker programmes and family reunification afterwards. By the end of 1973, after which labour recruitment had stopped, more than 780,000 workers were sent to Western Europe. Labour migration from Turkey drastically decreased afterwards, and the characteristics of "new" Turkish emigrants have changed: one-third of the migrants coming from Turkey to Europe nowadays are either highly-skilled professionals or students. At the same time, rapid globalisation, economic growth and political stability in Turkey are attracting more and more immigrants, mainly from neighbouring regions of the Middle East, EU and CIS countries. Though, while Turkey prospers, economic and political instability in its neighbouring countries Syria and Iraq have made it a major destination country for refugees.
Institutional set-up, and possibly a new ministry
These developments of the past decades, together with Turkey’s efforts to join the EU have necessitated a new approach to migration management. In 2013, Turkey’s first comprehensive Law on Foreigners and International Protection came into force. It created a new legal and institutional framework for migration and asylum. Amongst others, it established a new migration management institution under the Ministry of Interior: the Directorate General for Migration Management, DGMM. Since its foundation, ICMPD has been providing support for the institutional set-up and initial functioning of the DGMM. This new authority took over the tasks which were previously carried out by the Turkish National Police. Within two years it became fully operational, working nationwide through its 81 offices in each province of Turkey.
As the migration situation in Turkey changed quickly and thoroughly since the establishment of this new government agency in 2013, an even stronger institutional structure for migration management might be needed. There are considerations to establish a separate ministry responsible for migration matters, although the outcome of the discussions remains open. 2016 will be a decisive year for Turkey’s migration management.
A recent study by ICMPD shows that Syrian refugees are in a vulnerable situation and are often trafficked or exploited because they are not able to meet their basic needs. This is exacerbated by a lack of regular access to work. The Turkish government has recently adopted a directive on work permits of foreigners under temporary protection, allowing Syrians under temporary protection to work in selected sectors under simplified procedures and to apply for a working permit after six months.
Last but not least, the fragmented institutional set up of border management in Turkey also calls for a new institutional arrangement. Currently, 5 different bodies, all reporting to the Ministry of Interior, are involved in managing the flow of people and goods across Turkey’s land and sea borders. The Turkish government has recently announced that the establishment of a professional border guard system will be among the key priorities to be achieved by the end of 2016 and work on a new law has started. Also the implementation of a set of agreements with the EU, such as the visa liberalisation roadmap, the readmission agreement with the EU and the new Turkey-EU Migration Action Plan have put pressure on the current structures (read part I of this blog to learn more).
Ensuring policy coherence
The Directorate General for Migration Management aims to further strengthen its function as a focal point for migration among the different public institutions as well as international and civil society organisations. This is key to enhancing policy and institutional coherence across all migration-related sectors as the cornerstones for responsible and sustainable migration governance.
Acting as a coordinator, DGMM can capitalise on its experience of developing the above mentioned Law on Foreigners and International Protection from 2013 in a consultative and participatory process with a number of public and non-governmental actors involved.
Since its establishment, DGMM also committed to incorporate a development-sensitive approach, which has now gathered more impetus from the recently adopted Sustainable Development Goals which includes a set of migration-related targets. For Turkey, the integration of a development perspective concerns both – Turkey’s development and the development of Turkey’s partner countries. Hence, migration policy development needs to be embedded in broader demographic, development and labour market considerations.
Through the Swiss-funded project ‘Sessiz Destek’, ICMPD supports these efforts to strengthen policy coherence by providing institutional capacity development to DGMM. The project activities so far have strengthened relations between this migration authority and important public institutions.
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Tamer Kılıç is ICMPD’s Local Representative in Turkey. Marion Noack is a Project Manager and part of ICMPD’s Competence Centre for Migration & Development.
The views expressed here are those of the authors and not necessarily those of ICMPD.
Photo: ccarlstead on Flickr