estimates that as of March 2015, the country s Syrian refugee population has exceeded 1.7

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2 To: Republic of Turkey, Ministry of the Interior From: HUMAID CONSULTING GROUP Date: December 6, 2016 RE: MANAGING THE REFUGEE CRISIS Executive Summary Turkey is now hosting the largest collective of displaced Syrians. United Nations data estimates that as of March 2015, the country s Syrian refugee population has exceeded 1.7 million and due to the large amount of unregistered refugees the total number is likely to be even higher. The country s geographic location, bordering Syria in the Southeast, is the primary reason why it has received so many of these refugees. Several agencies have made efforts to assist Turkey in managing the current influx and the ensuing burdens of hosting such a large number of people. Successfully managing the largest collective of displaced Syrians however, has encountered several hurdles which impede any progress. The current crisis has been primarily managed by international and national organizations on the ground, but there is a lack of larger policy guidance and global governance burden sharing necessary for a successful long-term framework. The HUMAID Consulting Group (hereinafter referred to as HUMAID) recognizes the stresses compounding the Turkish economy and domestic environment and is prepared to provide the Turkish Ministry of the Interior with guidance on how to best move forward and act with its best interest in mind. This paper reiterates the problem at hand, our objectives, deliverables, and a preliminary framework based on research to help ensure the appropriate 1

3 delegation of incoming economic and non-material resources for the management of migrants within Turkey. HUMAID s analysis of the current situation comes to the conclusion that the Turkish government s non-camp approach, while likely to facilitate the integration of the Syrian refugees in the Turkish society and to result in economic benefits for the host country in the long-term, has created significant socio-economic challenges, primarily regarding employment and income. In order to avoid an escalation of ongoing tensions between the large Syrian refugee population and the most vulnerable Turkish citizens, HUMAID would like to present three concrete policy recommendations to the Turkish Ministry of the Interior: I. To strengthen cooperation between Turkish government and non-governmental agents II. III. To continue pursuing the improvements of the Turkish non-camp approach Promote methods to help mitigate tensions with refugees in Southern provinces Prioritizing mutually beneficial relationships between Turkey and non-governmental organizations in order to address management of the aforementioned crisis will enhance coordination of resources and improve accountability among the international arena. Through implementation of a cooperation framework modeled after previous UNHCR and U.S. State Department relations, HUMAID and Turkey will be able to oversee the delegation of funding and pursuit of objectives and priorities by the assigned date. 2

4 I. Overall Problem Statement Since the escalation of the Syrian conflict in mid-2011 Turkey has been exponentially affected by an influx of Syrian refugees. As a result of Turkey s open door policy toward refugees escaping from the civil war in its neighboring country, between April 2011 and September 2014 an estimated total of 1,350,000 Syrians approximately 77% of them being women and children arrived in Turkey according to the Disaster and Emergency Management Presidency (AFAD), the main governmental body managing the Syrian refugee issue (Ahmadoun, 2014: 1-2). The country s Syrian refugee population has continued growing since and today Turkey is hosting the largest collective of displaced Syrians. United Nations data estimates that as of March 2015, the country s Syrian refugee population has exceeded 1.7 million and due to the large amount of unregistered refugees the total number is likely to be even higher (İçduygu, 2015). In December 2015 the Turkish Government presented a total number of 2,225,147 registered Syrians under Temporary Protection (SuTPs) (Haberturk, 2015). Under the assumption that this number is accurate HUMAID has analyzed the current situation of Syrian refugees in terms of their regional distribution, legal status, living conditions, employment opportunities and long-term integration perspectives with the following results: a) Regional Distribution While Istanbul as the economic and cultural center of the country attracted many refugees resulting in the largest concentrations of refugees (20%), the southern provinces of Gaziantep (14%), Hatay (12%) and Sanliurfa (10%) - because of the geographical proximity to Syrian territory - remain highly affected as well (AFAD, 2013). The main factor contributing to the 3

5 spread of refugees cross country is the search for better livelihood opportunities. It is mostly large metropolitan areas and areas of seasonal agricultural work that are expected to become principal destinations for SuTPs that will continue their journey, abandoning the Southern provinces due to the lack of long-term perspectives. (World Bank, 2015: 6) b) Legal Status At an early stage of the conflict Syrian refugees were commonly seen as guests rather than official asylum seekers. However, in April 2014 a new migration law came into effect granting them conditional refugee status or temporary asylum under the newly established General Directorate of Migration Management (GDMM) (Ahmadoun, 2014: 1-2). The Temporary Protection (TP) regime outlines the rights and responsibilities of SuTPs and regulates procedures from registration and admission to government services that shall be provided to them. It is of vital importance to be cognizant of the fact that the TP extends to all Syrian refugees, not only to those who are officially registered (World Bank, 2015: 3). c) Living conditions A unique characteristic of the situation of refugees in Turkey is the fact that only 12% of all SuTPs are living in tents or temporary shelter provided by the government. The vast majority of the SuTPs have settled in urban areas while making an effort to find their own accommodations and work opportunities (World Bank, 2015: 2). HUMAID has identified severe discrepancies regarding the living conditions of SuTPs living in camps in relation to urban refugees. Our analysis comes to the conclusion that the collaboration of AFAD with UNHCR and other UN agencies has contributed to establishing well-functioning camps where living conditions for refugees are extremely good. On the other 4

6 hand, a large number of refugees in cities do not have access to the services and benefits being provided by the Turkish government or international organizations; the only significant exception being primary health care which, under a 2013 governmental decree, has been granted to all Syrian refugees. (World Bank, 2015: 5) d) Employment opportunities Finding reliable data on employment rates among SuTPs is difficult; however, recent surveys indicate that particularly in the Southeast, most Syrian families have been able to survive thanks to savings and remittances. As these means are likely to be depleted in the near future, increasing demand for employment opportunities is to be expected. In October 2014 Turkey passed a law for foreigners under temporary protection that was designed to open the labor market for SuTps. However, while the Turkish Council of Ministers still needs to approve secondary legislation, for the moment SuTPs can only apply for work permits if they have been granted a residence permit. According to official data only about 7,000 Syrian refugees have been able to get a work permit which is why the vast majority of SuTPs works in the informal sector and in low-skill jobs. Among the most common activities are seasonal agricultural work, construction, manufacturing or textiles and waste picking or sorting. HUMAID finds the releases of a growing number of reports showing that SuTPs work under exploitative conditions in the informal economy absolutely alarming. Some of the serious shortcomings include long hours, unsafe conditions, irregular payment and low wages. Given the net minimum wage in Turkey of TL /month for the period of July 1st to December 1st, according to several surveys, refugees in Gaziantep, for instance, are not paid even half of the minimum wage. (World Bank, 2015: 6-7) 5

7 II. Objective The European Commission (hereinafter referred to as EC) has provided funding to the Facility for Refugees in Turkey Project (hereinafter referred to as the Facility Project) dispersing 3 billion for humanitarian and development projects through the end of the year and beginning of next unto their discretion. Our objective is to continue the effective integration of Syrian refugees into Turkish society before the end of 2017 through means of migration management tools and framework. HUMAID projects that it will be able to reach its organizational objectives by the start of 2017 with an estimated 1.5 billion of the EC s budget in addition to a contractor's fee contingent on objective achievement. HUMAID will do this by outlining a framework that will help the government establish concrete procedures and relationships that will in turn improve the refugee situation by large. HUMAID will provide the Turkish government with the tools that will help better organize and delegate the incoming economic and non-material resources for the management of migrants within Turkey. HUMAID will work the Turkish Ministry of the Interior to further develop the cooperation framework to ensure longterm success of the migration management objectives. HUMAID will oversee the work of the Facility Project and help curate the influx of funding by making sure it is done effectively and does not stray from the mission, also providing Turkey more than an advisory position. HUMAID will assist Turkish authorities in managing many of the EC s initiatives for refugee support taking into account the current hectic domestic environment.the framework will enable the Turkish society to benefit economically and culturally from the refugee flow, to respect international standards concerning refugee rights all while pursuing an organizational approach of long-term capacity. 6

8 III. Deliverables Migration management is a part of HUMAID s mission and vision. In order to identify the best methods to employ in a migration management situation, we identified successes from past crises in order to support our objective. Further, migration management research findings and the analysis of the status quo are used to form policy recommendations. Turkey s role in the refugee crisis has invited domestic priorities to flirt with the nation s role in the international arena which has proven to be both beneficial but also distracting. Although ambitious, arranging a task force comprised of several capable organizations to attract aid is far more effective than attempting to manage it unilaterally. Therefore HUMAID is dedicated to overseeing the work of the Facility Project in conjunction with the Ministry of the Interior, and the General Directorate of Migration Management, by employing communication theories and observations drawn from past refugee relief operations. HUMAID endorses the implementation of the Temporary Protection Regulation which can be considered as a first step from immediate humanitarian action towards building up the resilience of the displaced population in the long term. Nonetheless our analysis demonstrates that there is a continued need for integrated strategies to ensure the integration of SuTPs. HUMAID therefore presents three concrete policy recommendations that aim for better coordination between the government and non-governmental actors (1), capacity building to improve services provided to refugees, particularly in urban areas, that will foster their access to the labor market (2) and conflict prevention, especially in the Southern province of Hatay (3). 7

9 Policy Recommendations 1. To strengthen cooperation between Turkish government and non-governmental agents This recommendation encourages Turkey to engage rather than isolate and use HUMAID as a diplomacy tool. Cohesive and coordinated lines of communication are of the utmost importance for ensuring efficiency of a project of such large scale. Those involved in handling the Hungarian refugee crisis of the late 1950 s employed several tactics that proved very effective in resolving the influx of Hungarians that were entering Austria by way of strategic external and internal communication. In Vienna, a committee was immediately set up comprising the Austrian Interior Minister Oskar Helmer and his staff, UNHCR, the Intergovernmental Committee for European Migration (ICEM), and the League of Red Cross Societies (LRCS), as well as a number of local and international NGOs (UNHCR, 2006). Relief and resettlement scenarios proved to be better managed with coordinating agencies working closely with one another and with those providing the funding. However, the distribution of other materials although important, is not as effective a tool. A 2015 Overseas Development Institute study, strongly advocates for more attention to be given to the benefits of monetary assistance. It mentions cash transfers as better suited for the type of humanitarian effort at hand because they help to make scarce resources go further, and can facilitate increases in opportunities created by the global expansion of financial services. Currently, the Facility for Refugees in Turkey is encharged with the distribution of funding received from the EU budget and EU Member States. The Facility has a Steering Committee delegating funding however Turkey is only present in an advisory capacity. It is 8

10 advised that Turkey be more involved considering it is hosting the most refugees. It would be the role of HUMAID to represent Turkey s interest in meetings with stakeholders and those organizstions entrusted with utilizing the aid. Imitating the International Organization for Migration (IOM) s decentralized structure will help the Turkish government in conjunction with its partners deliver pragmatic support characterized by tools and knowledge from several different sectors while alleviating the risk for ineffective resource management. 2. To continue pursuing the improvements of the Turkish non-camp approach Evidence from different host countries around the globe shows that a non-camp approach such as the Turkish one is likely to result in economic benefits for the respective host country (UNHCR, 2014). Experience shows that refugees who are granted freedom of movement and protection can be expected to become socially and economically self-reliant much faster than refugees that are directed into camps. Therefore, they are more likely to contribute to the host country s economy and also to undertake a successful return process once their home country is safe again (World Bank, 2015: 5). Consequently, HUMAID urges the Turkish government to further develop its non-camp approach and to refrain from setting up parallel delivery channels. HUMAID regards the integration of support for refugees into general government service provision for all citizens as more cost effective and sustainable and recommends to build up the administrative and infrastructural capacities to manage the challenges for hosting communities across the country. While HUMAID actively argues for integrating refugees into the national system, substantial inputs are needed to support the government s efforts to strengthen the capacity of education, 9

11 health, employment, social welfare and justice systems to support the large number of refugees. As the development of resilience strategies, especially concerning education, housing, livelihoods and social cohesion will be crucial components of a long-term integration plan, HUMAID plans on assisting the government when it comes to collaborating with international organizations and activating the private sector. In order to mitigate the risks of SuTPs and local community members competing for jobs, especially in the low-wage sector, this paper advocates for effective controls of small and medium sized businesses to ensure that the official net minimum wage (TL 1,300 per month) as of January 1st, 2016 is paid to all workers, regardless of their origin (Library of Congress, 2016). The concept of equal pay for equal work has to be applied in order to prevent wage dumping and the exploitation of SuTPs, as well as to prohibit the Turkish low-wage sector to take advantage of the oversupply of poorly qualified workers. At the same time, the Turkish government should adopt measures to exploit the tremendous potential that lies in Syrian investments and the foundations of new businesses. As a Brookings and USAK report from 2013 shows, in Gaziantep, Mersin and Hatay alone, 122 Syrian owned businesses with an estimated initial capital of TL 39 million invested were registered (Brookings and USAK, 2013). HUMAID strongly encourages the Ministry of Interior to allocate parts of the granted EU funds to micro loans for Syrian entrepreneurs to provide financial incentives for start-ups and microenterprises such as restaurants and cafes. On the one hand, this kind of policy should be designed to stimulate growth and create new jobs for refugees and locals alike, on the other hand, there is no doubt that stereotypes can be overcome and misunderstandings can be avoided through a mutually beneficial cross-cultural dialogue. 10

12 3. To promote methods to help mitigate tensions with refugees in Southern provinces Since the beginning of the influx of Syrian refugees sectarian tensions have been observed in Turkey s Southern provinces, particularly in Hatay province. Due to its complex demographic - including Turks, Kurds, Circassians, Armenians, Arabs, Christians, Sunni and also Alawite Arabs - as well as for historical reasons - Hatay was a part of Syria until further sectarian escalation is likely ( Ahmadoun, 2014: 3). With approximately 1.5 million Arab Alawites represent the largest Arab minority living on Turkish territory close to the Southern border. As they perceive the firm Turkish stance against the Assad regime and Turkish support for armed opposition groups as a sectarian choice with the ultimate goal to empower the Sunni majority in Syria, this paper strongly advises the Turkish government not to lose sight of the difficult situation in Hatay. Considering the fact that, depending on the location, regardless of the ethnic and religious tension, between 40% and 100% of Turkish workers who are newly unemployed, blame the presence of SuTPs and increased competition in the labor market (ORSAM, 2015), HUMAID advises the Turkish Ministry of Interior to take immediate action to tackle this problem. As tensions seem to intensify particularly due to decreasing wage levels and employment opportunities HUMAID would like to repeat its call for measures to provide growth, stimulate the creation of new jobs and businesses and, most importantly, ensure that the net minimum wage is paid equally to nationals and SuTPs. Apart from that, we recommend cooperation with local organizations and the civil society in order to develop strategies to foster mutual understanding. Concrete measures could include workshops on conflict prevention strategies for community leaders, and information events for jobless locals and SuTPs as well as investments 11

13 in infrastructure such as school buildings or sports facilities to provide safe spaces for the younger generations of locals and SuTPs to meet and engage in cross-cultural communication. IV. A Framework for Moving Forward The UNHCR has been working with the U.S. Department of State through a Framework for Cooperation which helps them advance shared objectives. This document details the shared objectives and priorities, biennial budget, and improved accountability and monitoring. We are proposing an adoption of this framework for the monitoring of quality and progress of HUMAID s work with the Turkish Ministry of the Interior and the Facility for Refugees in Turkey. This new framework should be developed jointly in order to encompass the ideals and priorities of all participants. Furthermore, although it is non-binding it will serve as a document of reference throughout the endurance of the implementations and resettlement process. Below is an outline following a similar format to that used by the UNHCR. A. Introduction B. Shared Objectives and Priorities HUMAID and the Turkish Ministry of the Interior are dedicated to alleviating the migrant crisis within the context of efficient and human oriented services, while keeping in mind the tenets of homeland security and humanitarian sustainability. HUMAID and Turkish Ministry of the Interior will work together to achieve, by the end of 2017: I. Continued application of provided support to NGOs that manage camps for internally displaced Syrians within Syria, near the Turkish border, where they provide humanitarian assistance such as clean water, sanitation, education, and emergency kits to tens of thousands of Syrians in need. 12

14 II. Advancing solutions for refugees, particularly on local integration, and especially for those in protracted situations (PRM-UNHCR Framework for Cooperation for ). III. Inclusion of displaced populations into development frameworks (PRM-UNHCR Framework for Cooperation for ). IV. Reaffirm commitment to ensuring temporary protection, upholding the principle of non refoulement, and providing optimal humanitarian assistance. This collaboration sets out concrete measurable actions for implementing management tools for the Facility Project in Turkey through C. Budgets HUMAID recognizes the need for reliable funding and tacit budgeting. HUMAID and the Turkish Ministry of the Interior will work together to help identify recipients of funding and will aim to reduce its funding shortfall. The primary source of funding for the first round of collaboration has been identified as the provided 3 billion for humanitarian and development projects through the end of the year and beginning of next from the EC. HUMAID can reach its organizational objectives by the start of 2017 with an estimated 1.5 billion of the EC s budget in addition to a contractor's fee contingent on objective success. D. Improved Accountability, Coordination and Monitoring In order to be more responsive and accountable to the mission of all parties involved, HUMAID will create, staff, and monitor committees to manage different categories of aid disbursement. Compartmentalizing in this way will ameliorate the process of following up on transactions, and the execution of services such as health, food, and other basic means of assistance. With 13

15 members committed to specific issues instead of trying to manage all at once will facilitate quality assurance on such a large scale project. Ensuring continued progress in addressing gaps in the accountability framework, enterprise risk management, results-based management, and financial and program controls has been identified as a main priority (PRM-UNHCR Framework for Cooperation for ). In addition, data will be collected and help provide reports that will be distributed to all program participants. E. Bilateral Consultations and Reporting HUMAID and the Turkish Ministry of the Interior will hold progress discussions four times a year. Delegates from each aid committee will meet every two months as this will ensure quality assurance and preservation of the commitment and accountability outlined in this document and in the contract between HUMAID and the Turkish Ministry of the Interior. V. Conclusion The Syrian refugee crisis is an unprecedented case thus making it difficult for Turkey to legally and financially manage it. It is an irrefutable need for global governance burden sharing and with the herein proposed partnership, effective actors will be enabled to satisfy reform objectives. HUMAID s campaign is proof of our commitment to preserving the views and ideas of the Turkish government in regards to this issue and working to align them with HUMAID s objectives. HUMAID is dedicated to the pursuit of durable solutions for the millions of refugees. This proposed relationship is intended to ameliorate existing efforts and encourage sustainable migration management practices. # # # 14

16 Bibliography AFAD (Disaster and Emergency Management Presidency) (2013). Syrian Refugees in Turkey 2013: Field Survey Results. Report, AFAD, Ankara. Retrieved December 1, 2016 from TR/ syrian-refugees-in-turkey-2013_print_ _eng.pdf. Ahmadoun, S. (2014, November). Turkey s Policy toward Syrian Refugees. Domestic Repercussions and the Need for International Support. Stiftung Wissenschaft und Politik. Retrieved November 29, 2016 from Brookings Institution and USAK (International Strategic Research Organization) (2013). Turkey and Syrian Refugees: The Limits of Hospitality. Report, Brookings and USAK, Washington, DC, Ankara. Retrieved December 4, 2016 from les/reports/2013/11/18-syria-turkey-refugees/ turkey-and-syrian-refugees_the-limits-of-hospitality-(2014).pdf. Colville, R. (2006, October). Fiftieth Anniversary of the Hungarian uprising and refugee crisis. UNHCR News and Stories. France. Retrieved November 20, 2016 from ng-refugee-crisis.html 15

17 The European Commission. Managing the Refugee Crisis: The Facility for Refugees in Turkey. The European Commission, Retrieved November 30, 2016 from: Haberturk (2015, September 18). Numan Kurtulmuş: Türkiye'de kayıtlı 2 milyon 225 bin 147 Suriyeli var. Retrieved December 4, 2016 from bin-147-suriyeli-var İçduygu, A. (2015, April). Syrian Refugees in Turkey: The Long Road Ahead. Migration Policy Institute. Retrieved November 13, 2016 from Library of Congress (2016, January 7). Turkey: New Minimum Wage. Retrieved December 4, 2016 from ORSAM (Center for Middle Eastern Strategic Studies) (2015) Effect of the Syrian Refugees on Turkey. Report No. 195, ORSAM, Ankara. Retrieved December 4, 2016 from am.org.tr/en/enuploads/article/files/201518_ rapor195ing.pdf. UNHCR (2014). Policy on Alternatives to Camps. Report, UNHCR. Retrieved November 28, 2016 from html. 16

18 U.S. Department of State Framework for Cooperation between the United States Department of State s Bureau of Population, Refugees and Migration and the Office of the United Nations High Commissioner for Refugees. Retrieved December 2, 2016 from World Bank ( 2015, December). Turkey s Response to the Syrian Refugee Crisis and the Road Ahead. Retrieved November 30, 2016 from x394822b-public-final-turkeysresponsetosyrianrefugees-eng pdf # # # 17