IOM Central Asia Operational Strategy

Transcription

1 IOM Central Asia Operational Strategy IOM KAZAKHSTAN / МОМ КАЗАХСТАН 6, Saryarka ave./ пр. Сарыарка, 6 6a Maxim Zverev str./ ул. М. Зверева 6a Astana, / Астана, Almaty, / Алматы, Tel/ Тел / 46 / 47 / 48 Tel: ; ; Fax / факс: Fax / Факс: ; iomastana@iom.int iomalmaty@iom.int

2 Table of Contents IOM's Mission AND 12-POINT STRATEGY FOCUS... 3 IOM's Strategic Focus INTRODUCTION... 5 IOM's core competencies Critical migration challenges in the region Integrated approach in Central Asia Context... 8 Political context Economic context Social context Environmental context MIGRATION TRENDS GENERAL & STRATEGIC PARTNERSHIPS WITH OTHER ORGANIZATIONS THEMATIC AREAS Migration & Development 2. Migration Assistance: Combating Trafficking in Persons and Assisted Voluntary Return (AVR) 3. Migration Management: Immigration, Irregular Migration, Technical Cooperation and Border Management 4. Emergency response and community stabilization CROSS-CUTTING THEMES Governance Migrant rights Civil society development Gender Health EVALUATION & MONITORING MECHANISMS

3 IOM Central Asia Operational Strategy IOM s MISSION AND 12-POINT STRATEGIC FOCUS IOM is committed to the principle that humane and orderly migration benefits migrants and society. As the leading international organization for migration, IOM acts with its partners in the international community to: Assist in meeting the growing operational challenges of migration management. Advance understanding of migration issues. Encourage social and economic development through migration. Uphold the human dignity and well-being of migrants. IOM works to help ensure the orderly and humane management of migration, to promote international cooperation on migration issues, to assist in the search for practical solutions to migration problems and to provide humanitarian assistance to migrants in need, including refugees and internally displaced people. IOM s 12 Point Strategic Focus 1. To provide secure, reliable, flexible and cost-effective services for persons who require international migration assistance. 2. To enhance the humane and orderly management of migration and the effective respect for the human rights of migrants in accordance with international law. 3. To offer expert advice, research, technical cooperation and operational assistance to States, intergovernmental and non-governmental organizations and other stakeholders, in order to build national capacities and facilitate international, regional and bilateral cooperation on migration matters. 4. To contribute to the economic and social development of States through research, dialogue, design and implementation of migration-related programmes aimed at maximizing migration s benefits. 5. To support States, migrants and communities in addressing the challenges of irregular migration, including through research and analysis into root causes, sharing information and spreading best practices, as well as facilitating development-focused solutions. 6. To be a primary reference point for migration information, research, best practices, data collection, compatibility and sharing. 3

4 7. To promote, facilitate and support regional and global debate and dialogue on migration, including through the International Dialogue on Migration, so as to advance understanding of the opportunities and challenges it presents, the identification and development of effective policies for addressing those challenges and to identify comprehensive approaches and measures for advancing international cooperation. 8. To assist States to facilitate the integration of migrants in their new environment and to engage diasporas including as development partners. 9. To participate in coordinated humanitarian responses in the context of inter-agency arrangements in this field and to provide migration services in other emergency or post-crisis situations as appropriate and as relates to the needs of individuals, thereby contributing to their protection. 10. To undertake programmes which facilitate the voluntary return and reintegration of refugees, displaced persons, migrants and other individuals in need of international migration services, in cooperation with other relevant international organizations as appropriate, and taking into account the needs and concerns of local communities. 11. To assist States in the development and delivery of programmes, studies and technical expertise on combating migrant smuggling and trafficking in persons, in particular women and children, in a manner consistent with international law. 12. To support the efforts of States in the area of labour migration, in particular short term movements, and other types of circular migration. IOM Today An intergovernmental organization established in 1951, IOM is committed to the principle that humane and orderly migration benefits migrants and society. 155 Members, 11 States holding observer status and IOM offices in over 100 countries; More than 480 field locations More than 8,400 staff working on more than 2,600 projects An estimated USD 1.3 billion total expenditure in

5 INTRODUCTION The strategic vision of IOM Central Asia is to maximize the potential for migration to contribute to development and economic growth in Central Asia. To achieve this vision and fulfill IOM s mandate to promote humane and orderly migration management, the following objectives have been defined: To improve understanding of migration among governments, communities and employers. To help establish efficient migration management systems and address issues surrounding irregular migration. To promote and protect the rights of migrants. To contribute to poverty reduction in Central Asia among migrants, home communities and host communities. To help create an enabling environment for decent labour, equal employment and educational opportunities and implementation of best practices. To support community stabilization and migrant integration in conflict-prone areas. To provide assistance to people on the move. To address the many issues associated with human trafficking, including prevention of trafficking and protection of victims. IOM S CORE COMPETENCIES IOM, the leading international agency with the ability to draw together relevant stakeholders, aims to advance the understanding of migration issues, encourage social and economic development through migration and uphold the human dignity and well-being of mobile populations. Facilitating migration management since its establishment in 1951, IOM s experiences have resulted in accumulated expertise in key areas. Such areas include: providing resettlement and repatriation assistance to expatriates and internally or externally displaced people during and after conflict situations; spearheading counter-trafficking initiatives and providing training and technical assistance in border management, identification systems and travel documentation assistance. IOM has thus developed deep and diverse expertise in migration management and the area has become a comparative advantage of the organization. IOM, over the last 60 years, has extensive experience of the complex dynamics of migration and has developed a holistic understanding not only of the phenomenon of migration, but also of the constantly changing contexts in which 5

6 migration takes place. IOM s network of co-operating partners covers a wide range of stakeholders including local and national governments, INGOs and NGOs, regional bodies, donors, media and the private sector. IOM has the ability to tackle the migration challenges of the 21st century and will continue to be in the forefront of facilitating humane and orderly migration management. CRITICAL MIGRATION CHALLENGES IN THE REGION Central Asia faces several critical issues in migration management. These issues reflect economic, political and social tensions that exist throughout the region. Crucial migration issues to be addressed in Central Asia include: Insufficient inter-state dialogue on migration issues and difficulties in harmonizing international, regional and national migration processes. Inadequate national and regional migration policies and an underdeveloped legislative framework. Poor data collection, management and sharing, leading to inadequate understanding of the actual scope of migration and irregular migration. Underdeveloped capacity to deal with migration challenges. There is a need for more understanding of migration issues among state agencies as well as building capacity to deal with migration challenges and manage borders.. Inadequate legal and social framework to protect migrants, particularly their human rights. Widespread labour and sexual exploitation of migrants. Lack for optimizing remittances: in a context where a high proportion of many Central Asian countries GDP comes from migrants working abroad. Governments lack the capacity to mainstream migration into the development agenda. The political uncertainty and disaster-prone geography that characterizes Central Asia requires community stabilization and disaster risk reduction. INTEGRATED APPROACH IN CENTRAL ASIA The five countries of Central Asia Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan and Uzbekistan are closely linked in terms of history and culture. Migration issues in these countries are therefore also linked and share strong commonalities. In an effort to address these issues, and to support economic and sociopolitical co-operation among the five Central Asia states, IOM has recently adopted an area-based approach to the five 6

7 countries of Central Asia under its CA Regional coordination office in Astana, Kazakhstan. To ensure coherence and long-term sustainable solutions, IOM has implemented a unified management approach to the Central Asian countries. This approach has allowed IOM to increase the capacities of individual IOM missions in terms of fundraising, operability, accountability, transparency and professionalism. It also helps the CA Regional Coordination Office to manage and oversee programmes enabling IOM to increase its capacity in Central Asia while decreasing operational costs. In Central Asia, IOM s integrated approach has created a strong competitive advantage. This advantage arises from three factors. First, IOM s unified management system increases its capacity in the region while decreasing operational costs, allowing efficient management and helping to ensure maximum impact. Second, IOM has a strong focus on teamwork. Not only do IOM missions within Central Asia work closely together on regional projects, but there is also close co-operation with IOM missions outside the immediate cluster area (i.e Russia and others). Finally, IOM s long-standing presence in the region has allowed it to develop wide expertise. IOM has extensive knowledge about the programmatic, geo-political, cultural and socio-economic dynamics of Central Asia. IOM s regional programming promotes improved co-ordination and coherence on crossborder issues and leverages the competitive advantage of IOM s field presence in all five Central Asian countries. In addition, IOM s regional programming allows it to engage in close and coordinated co-operation with a variety of governments, international organizations and civil society organizations. This co-ordination has led to a strong track record of delivering results. 7

8 CONTEXT POLITICAL CONTEXT The Central Asian states Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan and Uzbekistan were created following the breakup of the Soviet Union in The states experienced widely divergent transitions to democracy: Kazakhstan, Uzbekistan and Turkmenistan remained relatively stable whereas the situation in Kyrgyzstan has deteriorated and Tajikistan experienced long-term instability following the end of its civil war in The Ferghana Valley remains a source of instability within the region. This valley is a large, fertile and densely-populated region divided between Kyrgyzstan, Tajikistan and Uzbekistan. Potential conflict among ethnic, religious and political fractions in this region has roots in poverty, division of water resources and ethnic tensions. If conflict does occur then population movements and mixed migration flows are likely to become an issue and protection of migrant rights may become more difficult. Regional instability is also an important part of Central Asian political dynamics. The ongoing conflict in Afghanistan affects Central Asia in several ways. Irregular migrants from Afghanistan often pass through Central Asian countries, as do narcotics trafficking routes Moreover, extremist forces in Afghanistan have the potential to affect political and security developments in Tajikistan, Kyrgyzstan and Uzbekistan. Another crisis generator, with potentially major impact on the Central Asian countries, is the possible further destabilization of Afghanistan following the reduction/withdrawal of the ISAF forces expected to take place during 2014 as well as the presidential and provincial elections in Afghanistan currently scheduled for the spring of The elections in Uzbekistan and Turkey (2014) and Kyrgyzstan's accession to EuroAsian integration in 2015 will be additional important factors affecting geopolitics in the region. Those processes/events are expected to trigger gradual as well as rapid security and socioeconomic changes in Afghanistan resulting in increased mixed migration outflows. While the majority of the projected refugees, in case of security deterioration, are expected to head towards Pakistan and possibly Iran. Significant displacement of Afghans or other country nationals is also expected across the borders of CA states. Most affected countries in the region will be Tajikistan, and Kyrgyzstan, while Uzbekistan, Turkmenistan and Kazakhstan will also feel the impact. Significant governance challenges continue to exist in Central Asia. Corruption is widespread and patronage systems dominate the allocation of local resources. Elections are often deemed to be faulty and ethnic minorities are at times excluded from local and national governments. Political cooperation between, and among, Central Asian states on migration issues remain insufficient. In the area of counter-trafficking all five Central Asian states have signed the UN Protocol to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children. However, Kazakhstan and the Russian Federation have not signed several key conventions on the rights of migrant workers, including the UN International 8

9 Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families (1990), and ILO Migrant Workers Convention No. 143 (supplementary provisions). National laws and implementation mechanisms are not coordinated and several countries are not acting in accordance with their international obligations. In the area of labour migration States do not act in a streamlined fashion, have limited capacity and the legislative framework needs significant improvement. "The Almaty Process": Regional Consultative Process for Central Asia The Almaty Process on Refugee Protection and International Migration was initiated in 2011 by the Government of Kazakhstan, IOM and UNHCR. The first Regional Conference on Refugee Protection and International Migration was held in Almaty in March 2011, which resulted in the unanimous adoption of the Almaty Declaration. The Almaty Declaration acknowledged the continued need to address the multiple challenges resulting from complex migration dynamics and mixed migratory movements in Central Asia and the wider region, in a cooperative and coordinated manner. Since 2011, the Central Asian States of the Republic of Kazakhstan, the Kyrgyz Republic, the Republic of Tajikistan and Turkmenistan have made significant strides towards translating the recommendations of the Almaty Declaration into action. A set of actionoriented recommendations served as a basis for the development of a Regional Cooperation Framework/ Regional Action Plan, which was endorsed on 7 September 2012 by the Central Asian States. On 5 June 2013, participating States in the second Ministerial Conference on Refugee Protection and International Migration: The Almaty Process reaffirmed their commitment to address the challenges resulting from asylum and migration movements in Central Asia and the wider region through regional dialogue, practical cooperation, the establishment of appropriate national legal frameworks to ensure the human rights of migrants, access to international protection for those in need, and durable solutions for refugees. The Almaty Process includes the following Member States (7): Kazakhstan, Kyrgyzstan, Tajikistan, Afghanistan, Azerbaijan, Turkey and Turkmenistan. Iran and Pakistan holds Observer Status. 9

10 Modus Operandi As outlined in the Communiqué, endorsed at the 2013 Conference, the Almaty Process is a platform for dialogue and cooperation on migration and international protection, for the development and implementation of initiatives to manage migration, while ensuring human rights and international protection. The Process promotes the exchange of good practices and the harmonization of policies on migration and refugee protection at the regional level in dealing with topics, as those were defined in the Almaty Process Operating Modalities and Communiqué, not limited to: o o o o o o o o o o o o o Irregular migration Immigration, border management and security Human trafficking and migrant smuggling Human rights of migrants Asylum and Refugees Migration and Climate Change Humanitarian Emergencies and Emergency preparedness Labour migration Migration and development Migration and Health Gender and Migration Migration Policy and Research Mixed migration or mixed movement The operationalization of the Almaty Process will enhance the medium and long-term national and regional capacities to manage asylum and migration flows. The modus operandi of the Almaty Process is outlined in the Operating Modalities endorsed at the 2013 Conference. The Operating Modalities set out the objectives of the Almaty Process, outline the membership, the terms of reference of the Chairperson and of the Support Unit, the participation of observers and the frequency of meetings. 1 The Almaty Process is a State-driven, inter-governmental process. The Member States participate on an equal basis. The Chair rotates between Member States on a bi-annual basis. The Support Unit is staffed by IOM and UNHCR, and provides administrative and technical support to the Chair. It acts at the directives of the Chair and does not represent the interests of particular Member States. The implementation of the Almaty Process is based on the following assumptions: Central Asian Governments are ready to support and actively engage in establishing coordinated regional interaction in the areas of refugee protection and international migration; Cooperation, coordination and information flow between IOM, UNHCR and the Chair is timely and accurate; 1 See Operating Modalities, available at 10

11 The continuity and quality of planned activities will not be impacted by the rotation of Government officials from participating States; Chairmanship The Republic of Kazakhstan was elected as the first Chair of the Almaty Process on 5 June The Chair and National Coordinator was nominated in October 2013 as Mr. Absattarov, Vice-Minister, Ministry of Labour and Social Protection of the Population, of the Republic of Kazakhstan. An Action Plan for the Chair follows the Terms of Reference of the Chairperson as these are defined in the Operating Modalities of the Almaty Process. ECONOMIC CONTEXT The collapse of the former Soviet Union led to increased poverty and a decline in living standards across Central Asia. During the 1990s GDP per capita fell and only now is regaining the level it had reached at the fall of the Soviet Union. The transition to a market economy was challenging and was complicated by high unemployment and the collapse of the manufacturing industry. In recent years, GDP growth in Kazakhstan, Uzbekistan and Turkmenistan has occurred in large part because of possessing natural oil and gas reserves. Nonetheless, despite the existence of such resources in some countries, all Central Asian States still face major challenges in developing their economic base. Exports have slowed, due primarily to the global economic crisis, and in some countries growth has been stagnant, partially because of a decline in aluminum and cotton prices. The IMF has ranked both the Kyrgyz Republic and Tajikistan among the top 26 countries most at risk from the global recession. Poverty remains a serious issue in Central Asia. In 2009, the percentage of population living on less than two dollars a day was 50 per cent or greater of the general population, in every Central Asian country except Kazakhstan. Poverty has a particularly strong effect on the most vulnerable and marginalized groups, that is, women, children and the elderly. High poverty and employment rates both act as push factors for migrants in Central Asia. A weak business environment compounds poverty issues in Central Asia. Foreign direct investment remains low in many Central Asian countries, though certain countries have received a boost due to investment in natural resources such as oil and gas, the business environment remains difficult in all Central Asian countries and corruption is a significant problem. As indicated in the 2012 Transparency International Corruption Index the countries in CA region still score high in corruption with Uzbekistan and Turkmenistan ranking 170 out of 176, Tajikistan ranking 157, Kyrgyzstan ranking 154 and Kazakhstan ranking 133 out of 176. The high level of migration between Central Asian countries and the Russian Federation is a significant economic issue. In 2013, remittances represented a high share of GDP; among the top 10 ECA recipients of remittances are Tajikistan, with 48,1 per cent of GDP ($4.1 11

12 billion), and Kyrgyzstan with 31.4 per cent of GDP ($2.3 billion) 2. Tajikistan is more dependent on remittances than any other country in the world. It is estimated that half of working-age males are abroad, most of them in Russia. Kyrgyzstan s economic dependence on remittances is also strong. A remittance-based growth strategy remains weak, especially in the context of Central Asia as labour migration from Central Asia and the resulting remittance flows are a rather new phenomenon in the region. So far, most Central Asian countries have neither coherent policies on migration nor an integrated strategy on harnessing remittances as a tool for financing development. Designing adequate policies requires a realistic picture of the on-going migration processes and an objective assessment of the levels of stocks and flows of international migrants, the volume of remittances and their impact at the macro-economic and household level as well as the social impact of international migration. Some countries in the Asian region have long experience with the management of labour migration and remittance flows and have found ways to better harness remittance flows as a tool for development. Exchange of experience and information, and South-South-Cooperation with other Asian countries could strengthen capacities in Central Asian countries to design policies on international migration and development which would lead to a more efficient use of remittances. SOCIAL CONTEXT The social context in Central Asia has proven particularly difficult for the most vulnerable and marginalized groups, including minorities, women, children, the elderly and those who suffer from illnesses. A high proportion of people in Central Asia suffer from poor living conditions and little access to social services. Equally, the problems of irregular migration are quickly growing. Poverty has a severe impact on marginalized groups. For example, issues facing poor women include: education enrolment rates; access to reproductive health; gender disparities in wage levels and lack of representation in government and authority structures. Women migrants face special issues including: access to housing; lack of professional training; and access to psychological support. In addition, women may be less able to access informal networks that can supply information about labour opportunities. Similarly, the issue of child exploitation in Central Asia deserves attention, since children are especially vulnerable to exploitation and suffer greatly from its consequences. Migration does not affect only women who engage in migration, but also their dependents whoa are left behind. Migration of males has consequences for social structures in sending countries. In Central Asia, labour migration of males has created a significant number of female-headed households. These households are more vulnerable to poverty and to social exclusion. Abandonment of families is a growing problem men engage in labour migration but do not return home, thus leaving their wives and children in poverty and hardship. The migration of women deserves special attention, since female migrants are often more vulnerable due to the nature of the work they perform abroad and because of the larger impact on the children left behind and gender dynamics when the mother 2 The World Bank Migration and Remittance Flows in Europe and Central Asia: Recent Trends and Outlook , p.15&16 12

13 migrates. At the same time, migration of women turns them into the breadwinners and that has been pointed out as a tool for empowerment and allowing a shift in traditional gender roles. Conditions surrounding modern migration often fuel health inequities and may expose migrants to increased health risks and negative health outcomes. In this context, migration has become a key social determinant of migrants' health. According to the 4th WHO Global Report, Central Asian countries face a serious epidemic of TB drug resistance and have some of the highest rates of MDR-TB in the world (WHO, 2010). Resurgence of TB in the Central Asian countries clearly illustrates the role of social, economic and political factors in the spread of TB. Migration, breakdown of health care system, lack of medical professionals and budget cuts are leading to an increase in TB mortality and drug resistance. Studies on TB among Tajik (IOM, 2009) and Uzbek migrant workers in Kazakhstan (Project HOPE, 2008) document the link between labour exploitation and increased risk of TB. Seasonal migration patterns in CA countries cause treatment interruption and increase the chances of drug resistant TB. Diagnostic delays may lead to more serious illnesses for the patient and to increased infectivity within the community. Returned migrant workers to the community with undiagnosed pulmonary tuberculosis pose the greatest source of transmission and in settings where TB is endemic, may result in more than 20 secondary infections (IOM, 2009). The increased levels of female migration in the region coupled with low awareness on reproductive health, family planning, sexually transmitted infections (STIs), HIV and lack of access for migrants to preventive programmes and health care services in host countries, is a cause of prevalence of sexually transmitted infections, and cases of unwanted pregnancy among female migrants. Inadequate migration legislation and policy in host countries make difficult access of children of migrant workers to free immunization programme recommended by WHO and UNICEF. Minorities face difficulties in Central Asia. In the densely-populated Ferghana Valley, high levels of xenophobia toward ethnic minorities are prevalent and inter-ethnic tensions are strong. The issue of ethnic representation has been difficult for several Central Asian governments. This difficult context acts as a push factor for migrants and also contributes to political instability. 13

14 ENVIRONMENTAL CONTEXT Climate change has already had a significant impact on Central Asia. One of the most dramatic consequences of climate change has been the increasing desertification, demonstrated by the shrinking of the Aral Sea as well as the rivers Amu Darya and Syr Darya. Widespread salinization, inefficient water management practices, land degradation, desertification and increasing aridity will be the consequences of climate change in Central Asia. Central Asia has already experienced high degrees of environmental migration. In 1996, about 100,000 people were displaced due to severe environmental degradation in the Aral Sea. The problems in this region continued through the 1990s and early 2000s. Environmental push factors combine with poverty and ineffective governance to add to the vulnerability of local populations and the tendency to migrate. A large proportion of the region s population is living in areas at high risk of increased water stress due to climate change. Population growth in hot spots in each Central Asian country indicates that almost all of the population in the region is living in areas at risk of climate change impact. The impact is almost entirely due to increased water stress as a result of reduced rainfall and runoff. This difficult environmental situation, combined with economic, social and political pressures, is likely to lead to increased migration. 14

15 MIGRATION TRENDS Across Central Asia, people are engaged in a variety of movement temporary, long term and permanent. A significant proportion of the population engages in seasonal migration to either the Russian Federation or Kazakhstan. Others are long-term or permanent migrants. Kazakhstan acts as a sending, a transit and a receiving country: it receives migrants from other Central Asian countries, but it also sends migrants to the Russian Federation. Moreover, in Central Asia all countries experience a high level of unregulated internal migration. While a large proportion of migrants in Central Asia are driven by labour factors, the nature of migration is mixed and Central Asia also receives small numbers of refugees and asylum seekers from Afghanistan and Eastern China. Due to their (often irregular) status, migrants often face various kinds of human rights abuses such as discrimination, denial of access to basic education, social and health services and decent working conditions. Furthermore, corruption among law enforcement officials, poverty, exploitation and separation from their communities all contribute to marginalization and high vulnerability of the migrant population. Key migration trends include: According to new estimates of the UN Population Division 16.5 million migrants live in Eastern Europe and Central Asia (ECA) region in 2013, an increase by 2.2 percent compared to 2010; most ECA migrants are in the Ukraine (5.1 million), in Kazakhstan (3.5million) and in Turkey (1.9million) 3 Large-scale labour migration. Up to 27 percent of the population of Uzbekistan, 18 percent of the population of Tajikistan and 14 percent of the population of Kyrgyzstan are migrant workers. Most migrant workers are men, and over 50 percent do menial work. According to 1989 census more than 95 percent of the population of Kazakhstan, Uzbekistan, Tajikistan, Kyrgyzstan and Turkmenistan were living in Central Asia. However, in 2013 according to the Russian Federal Migration Service more than 9million people from the five republics, close to 14 percent of their combined population, were in Russia(1.2m from Tajikistan, 0.6m from Kazakhstan, 0.6m from Kyrgyzstan, 3m from Uzbekistan, etc) 4 It is estimated that over the next ten to fifteen years, Russia s economy will be unable to remain competitive without labour migrants; it is also expected that Kazakhstan, due to its robust economic development in the CA region but its comparable small population, will need to attract more migrant workers. Russia and Kazakhstan are among the top five receiving countries for migrant workers on the South-South migration pathway, with an estimated 2,64million 3 The World Bank Migration and Remittance Flows: Recent Trends and Outlook, , p.15 4 Federal Migration Service (FMS), 2013 (Financial Times Nationalism on the march, November , p.7) 15

16 moving from Central Asia over Kazakhstan to Russia 5. According to the UN estimated data 24,6 million international migrants were present on the CIS territory in 2010 (11,5% of the total number of international migrants in the world). Provided that 90% of international migrants are citizens of the former USSR republics who change the states of residence within the region. 6 The Russian Federation and the Republic of Kazakhstan are the main countries of destination for migrants in the CIS, while the main countries of origin are Central Asian states (Republic of Uzbekistan, Turkmenistan, Republic of Tajikistan, Kyrgyz Republic), as well as the Republic of Armenia, the Republic of Belarus and the Republic of Moldova. 7 Significant human trafficking issues. Internationally, most human trafficking takes place in Kazakhstan, the Russian Federation, Turkey and the United Arab Emirates but routes exist in China, Ukraine, the Middle East and South East Asia. A high degree of internal human trafficking also exists between Central Asian countries and within the countries themselves. The vast majority of trafficked victims are migrant workers. Change in migration patterns due to political instability. Political instability exists in some Central Asian countries, and is particularly noticeable in the Ferghana Valley. This, combined with tribal and ethnic tensions, changes migration patterns. High degree of internal migration has been observed in all CA states. Data about internal migration is difficult to obtain, especially given the generally weak capacity of Central Asian governments in monitoring and managing migration. Movement away from seasonal migration. Historically, migration in Central Asia had a strongly seasonal nature. However, as a result of the economic crisis, seasonal employment is no longer easily available. Increased migration for family reasons. Migrants move, not only for economic or political reasons, but also to unify with their families and communities. Such family-based migration has been increasing in recent years. Increased ecological migration. Over the last 20 years, Central Asian countries experienced higher-than-average changes in average temperatures and it is 5 IOM World Migration Report, 2013, p UN 2013 data. UN data is available at the link: Trendsin international migrant stock: migrants by destination and origin [Trends in the number of international migrants: Migrants by countries of destination and the outcome]. Department of Economic and Social Affairs of the UN. Population Division. The database of the UN, POP/DB/MIG/Stock/Rev.2012, July According to the data of migration service and other government agencies in 2011 Russia and Kazakhstan became the leaders by the number of foreign workers brought into the economy from the other countries. These two states had the highest size of the average monthly nominal wages (by the average annual rates of national currencies to the dollar, they amounted to 796 and 642 USD respectively). The Interstate Statistical Committee of The Commonwealth of Independent States. The Commonwealth of Independent States , The statistical Agency under President of the Republic of Tajikistan. Labour market in the Republic of Tajikistan,

17 predicted that the effects of climate change will be severe in this region. National environmental authorities predict an increase in natural disasters such as floods, landslides and mudslides. In addition, several man-made ecological disasters, such as toxic waste from uranium mining, occurred in Central Asia during the Soviet regime. These factors increase both internal and external migration in the region. GENERAL & STRATEGIC PARTNERSHIPS WITH OTHER ORGANIZATIONS IOM has strategic partnerships with a variety of partners including governments, intergovernmental organizations, international organizations, NGOs and the private sector. IOM works closely with governments and other partners in the international community to address today s many and complex mixed migration challenges. In Central Asia, IOM has formed working relationships with all governments. It is represented through field offices in each country and engages in extensive co-operation with the government on a variety of projects. IOM has a long-standing working relationship with the United Nations at several levels. IOM s overall relationship with the UN is founded on three principles a/ IOM s observer status in the UN General Assembly, obtained in 1992; b/ IOM s inclusion by the General Assembly as a standing invitee in the Inter-Agency Standing Committee mechanism and c/ IOM-UN Co-operation agreement, which provides a formal basis for closer collaboration between the two organizations. In addition, IOM has global co-operation agreements with the majority of UN agencies. In practical terms, the increasing operational collaboration that has evolved over the past decade between IOM and a broadening range of UN agencies has also resulted in the inclusion of IOM in UN operations, including UN Country Teams, UN Development Assistance Framework, and UN-organized Humanitarian Cluster System. In Central Asia, IOM has a strategic cooperation with several UN agencies, including UNDP, UNHCR, and UN Women. Long-standing cooperation also exists between IOM and other international and regional organizations. IOM has a global relationship with the World Bank, and this relationship is reflected in World Bank funding of IOM s Central Asian projects. Strong collaboration also exists, on both the strategic and operational level, with UNDP, UNHCR and OSCE, in areas of common interest in bilateral cooperation as on migration data, migrants rights, border management, counter-trafficking, mixed migration flows and regional consultative processes. Globally, IOM offices in Vienna, Geneva, Brussels, Washington DC and New York ensure close co-ordination with a variety of international organizations. On a more regional level, IOM has strategic long-term relationships with the Eurasian Economic Community (EurAsEC), the Commonwealth of Independent States (CIS), the Collective Security Treaty Organization (CSTO) and Conference on Interaction and Confidence- Building Measures in Asia (CICA). IOM works with these regional organizations both through specific agreements and co-operative working groups, and activities focus on harmonization of legislation, inter-state policy dialogues and migration statistics. 17

18 IOM cooperates with a large network of civil society organizations (NGOs) in CA in a variety of contexts: NGOs can be project partners, service providers or project executors, beneficiaries of IOM technical assistance, grant recipients or service recipients. IOM and NGOs act as equal partners or complement each others activities. In Central Asia, IOM has developed long-standing relationships with many local NGOs and has constructed a network of partners to allow maximum cooperation and coordination of IOM implemented projects/. IOM currently works with more than 100 NGOs in the region. The private sector has a significant and valuable role to play in realizing the positive benefits of migration and minimizing its costs. IOM seeks to forge partnerships with private sector actors focused on areas and subjects of mutual interest and shared values with full respect for each other s resources, expertise, knowledge and skills. Areas of collaboration can involve information exchanges, in-kind support and direct financial support of projects.. THEMATIC AREAS IOM Central Asia has adopted a functional matrix approach. It is divided both by thematic areas and geographical sections. Activities in thematic areas occur throughout CA countries, and are managed by teams that span geographic areas. IOM Central Asia works within five operational areas: 1. Migration & Development 2. Migration Assistance: Combating Trafficking in Persons and Assisted Voluntary Return (AVR) 3. Migration Management: Immigration, Irregular Migration, Technical Cooperation and Border Management 4. Operational Movements 18

19 5. Emergency response and community stabilization Certain issues are cross-cutting, and are incorporated into every thematic area, such as: Governance, Migrants Rights, Health, Civil Society development, and Gender. MIGRATION & DEVELOPMENT ISSUES Migration and development is a key priority for IOM Central Asia, especially given the scale of labour migration in the region. Challenges in the area of migration and development include: Central Asian states have acceded to few international treaties which protect migrant workers. Kazakhstan and the Russian Federation are not parties to several key conventions on the rights of migrant workers, including the UN International Convention on the Protection of the Rights of All Migrant Workers and Members of Their Families, ILO Migrant Workers Convention No. 143 (supplementary provisions). National and regional legislation is currently insufficient. Lack of bilateral and multilateral mechanisms to support orderly migration between countries, as well as lack of inter-state co-operation. Lack of national capacity to understand and benefit from the potential of migration. Lack of efficient schemes to enhance state - private sector cooperation. The Customs Union between Kazakhstan, the Russian Federation and Belarus, 19

20 associated with EURASEC, creates both opportunities and challenges for migrants. WHY IOM Within the framework of its mandate, IOM has a large role to play in supporting the efforts of states to manage labour migration, in particular short term movements and circular migration. IOM supports states, migrants and communities in addressing the challenges of irregular migration, both through research and analysis of root causes and through sharing information and spreading best practices. Over the last years IOM is an integral part of the High Level Dialogue for Migration(HLD). The second HLD in New York, October 2013, took stock of progress since the first HLD in 2006 and marked a significant evolution in the global debate on migration and development. Progress is evident since 2006 in global interest in migration, in understanding of its intrinsic link to human, economic and social development in today s mobile world and of the centrality of the need for protection of the human rights of migrants to realize the full development potential of migration. Great emphasis is placed on cooperation at the national, inter-ministerial level; bilaterally in particular between countries of origin and destination of migrants; regionally in particular through the Regional Consultative Processes (RCPs) as well as in more formal regional integration mechanisms; and globally, in particular through the Global forum on Migration and Development. Engagement of and cooperation with non-state actors, such as CSOs, employers, diasporas and migrants themselves are also stressed as essential to whole of government and whole of society cooperation and coherence. The imperative of addressing the perception of migrants and migration and of integrating migration in national development planning and in the post-2015 UN development agenda on the basis of sound evidence are key points of attention and calls for action. Finally, the need to reduce the costs of migration, including unethical recruitment costs and the abuses wrought by trafficking in persons and migrant smuggling, as well as to protect and assist the most vulnerable, in particular migrants caught in crises, are identified as concrete next steps on which there is great convergence on the need for action and political will to act. IOM s International Recruitment Integrity System (IRIS) initiative to address abuses in the recruitment of migrant workers and Migration Crisis Operational Framework (MCOF) to address the situation of migrants in crises are two areas of particular interest in long term programming. IOM s history, as well as its mandate, confirms that the organization is well-positioned to address labour migration issues in Central Asia. In Central Asia, IOM has a wellestablished presence and a proactive approach toward emerging migration issues. It has demonstrated good relationships with stakeholders at all levels, from policy makers to national governments to civil society to the private sector. In addition, it has proven ability to generate necessary expertise in a timely manner. These strengths enable IOM to run a complex, multi-faceted programme to address labour migration challenges on all 20

21 levels. PRIORITIES To promote the socio-economic developments of migrants, their families, their host communities and their sending communities. To promote inter-state and regional dialogue and harmonization of policies between labour receiving and sending countries. To assist governments, private sector and society in recognizing and understanding the contributions of migrant workers. To work with governments to regularize labour migration. To promote and protect the rights of migrant workers. To mainstream migration into the development agenda at local, national and regional levels To promote migrants rights and empowerment through education (in particular women s and children) To assist migrant workers throughout the migration cycle. WHAT WE WILL ACHIEVE Support will be provided to labour migration policy and legislation to encourage regional harmonization and dialogue. Capacity to implement migration policy and to institute migration legislation will be built among government and civil society partners. Migrants and their families access to services such as access to health care, social services and vocational training will be improved. Direct assistance will be provided to migrant workers and their families. Rights of migrant workers and their families will be promoted. Migrants, local communities and diasporas will receive support in developing different options to optimize the use of remittances. 21

22 HOW WE WILL ACHIEVE IT IOM will continue to work with a variety of stakeholders at the regional, national and local grassroots level to achieve its objectives. IOM will work with government and regional stakeholders in Central Asia. The organization has worked with government ministries to help develop strategic documents and road maps, and this assistance has created a foundation for future co-operation. On a regional level, IOM has engaged in a long-term strategic partnership with EURASEC to provide assistance in unification of labour migration legislation and drafting of model laws. This long-term partnership will help to foster regional dialogue on labour migration. In Central Asia, IOM has a strong network of civil society and NGO partners. IOM has worked with these local organizations for many years and has developed sustainable, longterm relationships. These civil society organizations are crucial in helping the IOM to provide direct assistance to migrant workers and their families. In addition, IOM works closely with NGOs and local partners to develop information campaigns to help the wider community recognize the importance of migrants and their contributions to the community. A direct relationship also exists between IOM and migrants. IOM promotes this relationship in many ways: through hotlines, IOM provides advice to migrants and potential migrant workers; through NGO partners, IOM provides a variety of services including health, legal aid and protection of rights; through Migrant Support Centres, IOM provides information, counselling and advice; and through informational campaigns the IOM reaches out to the broad community of migrant workers. IOM works with diaspora communities in Central Asia and the Russian Federation. In this geographical area, IOM will involve diasporas in the promotion and protection of migrant rights through both informational campaigns and the provision of legal support. Likewise, IOM will support national governments in developing programmes to encourage remittances from migrant workers and to optimize the use of these remittances into the development of local communities. Special attention will be also given to the improvement of government programs directed to the diaspora s engagement in the development of both sending and receiving countries. These activities will be further enhanced through the implementation of the "Almaty Process" by building national and regional capacities. 22

23 MIGRATION ASSISTANCE: (I) COMBATTING TRAFFICKING IN PERSONS (II) ASSISTED VOLUNTARY RETURN (AVR) (I) COMBATTING TRAFFICKING IN PERSONS: ISSUES Human trafficking is a serious challenge for Central Asia, and IOM plays a leading role in addressing the many aspects of trafficking. Specific issues include: Scale of trafficking and exploitation. Human trafficking is a huge challenge for Central Asia, and it is estimated that over one million people annually are either at risk or are victims of trafficking and exploitation inside the CA countries and among their citizens abroad. It is estimated that almost 91 per cent of cases of human trafficking involve labour exploitation, 62 per cent of cases occur within the boundaries of a state 8. Roughly 69 per cent of victims of human trafficking are men. Migrant rights. Labour exploitation is a large and growing issue in Central Asia. Exploitation of migrant rights is common, and victims can be deprived of basic rights such as the right to earn a wage and the right to free movement. Lack of government capacity to control global trafficking in persons. While all CA governments have signed the UN Convention on Trafficking, the states engage in little, if any, co-operation with each other to address trafficking issues. In addition, internal government capacity to control human trafficking tend to be weak, and there may be weak or non-existent legal prosecution of trafficking cases. 8 IOM CA, The Scale of Human Trafficking in Central Asia,

24 WHY IOM IOM s mandate specifies the importance of promoting humane migration. Building on its individual commitment and global presence, IOM strengthens the capacities of its partners in government and civil society and sets operational standards to achieve sustainable results, consistent with international law, that will: a/ provide protection and empower trafficked women, men, girls and boys; b/ raise awareness and understanding of the issue; and c/ bring justice to trafficked persons. IOM has been working on the problem of human trafficking in Central Asia since IOM was the first organization to raise this pressing issue and direct the attention of CA governments to the illegal exportation of their citizens abroad for the purposes of sexual and labour exploitation. Over the last ten years, IOM, in support of the international drive to fight human trafficking, has implemented numerous projects aimed at the prevention of human trafficking, protection of victims of trafficking, prosecution of recruiters and traffickers and development of regional co-operation among the countries of Central Asia. In 2010, the Regional Center for Migration and Refugee Issues (RCMRI) and IOM presented a research on scales of human trafficking in Central Asia. The research concluded that human trafficking in CA remains one of the main cause of human rights violation. According to the research, citizens of Uzbekistan, Tajikistan, Turkmenistan and Kyrgyzstan are mostly prone to risks of external trafficking while Kazakhstan is the only country in CA where there are more risks of internal trafficking than external. For the last eleven years ( ) IOM provided assistance to 7,119 victims of trafficking in Central Asia; of them 2,661 males and 4,458 females were assisted. PRIORITIES Promote respect for human rights, raise awareness and understanding to the issues of trafficking and exploitation. Promoting the physical, mental and social well-being of the individual and his or her community. Establishing sustainability through institutional capacity building of governments and civil society. WHAT WE WILL ACHIEVE IOM will buildup strong partnerships with the government and civil society to fight against the exploitation of migrants in all its forms especially sever human rights violations, while guaranteeing high operational standards. Protection will be provided to trafficked men, women and children. The issues of 24

25 trafficking and exploitation will be raised and explained to the public to ensure understanding and awareness. National legal prosecution mechanisms will be put into practice and justice will be brought to trafficked persons. Prevention will be guaranteed through information campaigns, through mass media and other communicative methods, in both source and destination countries to educate the general public about trafficking in persons; encourage people to report suspected cases, and equip vulnerable population with the information necessary to better protect themselves from the recruitment tactics of traffickers. HOW WE WILL ACHIEVE IT IOM will continue to strengthen regional co-operation and develop coordinated actions in the fight against trafficking and exploitation. It will use its partnerships with the government and other partners to improve the legislative framework regulating labour migration and fighting human trafficking. A central part of achieving goals in the area of combating trafficking in human beings involves collecting adequate information. IOM will conduct studies and develop methodological guidelines to obtain a broader and more detailed set of data about trafficking and exploitation, including deriving quantitative data on the scale of human trafficking. IOM will continue to implement programs in partnership with NGOs to raise further awareness of the public about the negative consequences of irregular labour migration, labour exploitation and human trafficking. Current programs of safe repatriation, rehabilitation and reintegration of victims of human trafficking will be continued and further developed. IOM works with crisis centers, shelters for victims, children s shelters and hotlines, and supports infrastructure for victims and groups at risk. Informational, legal, psychosocial and other types of assistance form a key part of IOM Central Asia s Trafficking & Exploitation activities. IOM will continue to organize targeted programs to strengthen the capacity of migration services, law enforcement agencies and the judiciary. These programs will focus on improving professional training, material and technical resources to facilitate detection and resolution of crimes associated with human trafficking. The development of the capacity to prosecute perpetrators of human trafficking crimes is another area of focus for IOM. Also, IOM will organize capacity building programs for NGOs in Central Asian countries working in the area of combating human trafficking and offering assistance to victims, including effective interactions among NGOs with state entities and local communities. The "Almaty Process" will have an essential role in engaging member states to collectively address the problems of human trafficking and through dialogue, exchange 25

26 of information and regional cooperation facilitate the development of effective trainings, awareness-raising campaigns and more comprehensive and coherent policies. (II) ASSISTED VOLUNTARY RETURN (AVR) ISSUES The AVR and Operational Management programme is driven by a high degree of forced migration in the Central Asian region. Issues include: Providing operational assistance to various categories of migrants, including internally displaced persons, asylum seekers, stranded migrants, refugees and victims of human trafficking and smuggling. Coordinating operational assistance among states with different regulations and migration priorities. Providing pre-departure consular assistance to migrants so that they can receive travel, visa and immigration documents. WHY IOM Since 1951 IOM is playing an important role in migrant assistance around the world. Four IOM Missions in Central Asia: IOM Kazakhstan, IOM Kyrgyzstan, IOM Tajikistan and IOM Turkmenistan are involved in arranging humane, safe, orderly and cost effective movement of migrants, refugees and other persons of concern to the countries of their destinations. IOM Missions in Central Asia work closely with Governments, the United 26

27 High Commissioner for Refugees (UNHCR) and non-government organizations. UNHCR is the main referring agency for resettlement cases, although, under some circumstances, countries may refer individuals and families directly to IOM for resettlement. Assisted Voluntary Return is an area of expertise that IOM has developed over more than 25 years of experience and is offered by IOM to migrants. It aims at orderly, humane and cost-effective return and reintegration of migrants who are unable or unwilling to remain in host countries and wish to return voluntarily to their countries of origin. IOM offices in Central Asia are providing arrival and reintegration assistance to returnees under AVR programs conducted by IOM Missions in Belgium, Finland, Netherlands, Norway, Portugal, Sweden, Switzerland, Turkey and the United Kingdom. Returnees receive financial assistance for medical treatment and other rehabilitation activities, as well as reintegration grants allocated by the governments of the countries from where the migrant returns to start up their businesses or pursue studies, as per individual needs (reintegration assistance). PRIORITIES Provide assistance to receiving states in implementing migrant and refugee programmes. Support the rights of migrants who are admitted into the operational movement programme. Work with other organizations, including strategic partners such as UNHCR and ICRC to implement operational movement programmes. Conduct health assessments of migrants entering into relocation programmes. Provide migrants with pre- and post-departure assistance. WHAT WE WILL ACHIEVE States will continue to be assisted in processing migrants subject to admission programmes. Packages of resettlement services will continue to be provided for admitted migrants in accordance with existing legislation and procedures. Authorized pre-consular services will continue to be provided on behalf of States as designated by the immigration authorities of these states. Assistance will continue to be provided for voluntary return and reintegration of migrants to, from and through Central Asia. 27

28 Migrants in need will be provided with visa and consular assistance. Migrants in resettlement programmes will receive health assessments. HOW WE WILL ACHIEVE IT IOM, with long experience in migrant assistance, has developed expertise in the many aspects of resettlement. IOM staff is skilled in conducting migrant assistance, and local IOM offices have practical, long-standing relationships with designated medical practitioners, other IOM offices, consular offices of participating governments and major airline carriers. The assistance IOM provides to migrants in the pre-departure stage is significant. In close co-ordination with migration authorities in both sending and receiving countries, IOM organizes pre-departure consular assistance, travel documents and cultural orientation. In addition, IOM provides any necessary technical, logistical and procedural assistance to migrants. Assisted Voluntary Return is another facet of IOM s activities in migrant assistance. IOM assists with voluntary return of stranded migrants to and from the Central Asian republics. Voluntary return is done only at the written consent of the migrants who cannot be subject to deportation. Voluntary return can be facilitated only to homeland destinations. In all of its migrant assistance activities, IOM works closely with sending and receiving countries as well as the migrants themselves. MIGRATION MANAGEMENT: IMMIGRATION, IRREGULAR MIGRATION, TECHNICAL COOPERATION and BORDER MANAGEMENT 28

29 ISSUES Immigration, irregular migration, Technical co-operation and border management play a large role in the wider migration management agenda in Central Asia. Specific issues include: Ineffective legislative and policy base for migration management exacerbated by limited knowledge base of migration and border authorities on contemporary border systems and procedures, due to Central Asia s history: borders were implemented in the region only after the fall of the Soviet Union. Migrant rights. Labour exploitation is a large and growing issue in Central Asia. Exploitation of migrant rights is common, and victims can be deprived of basic rights such as the right to earn a wage and the right to free movement. Inadequate ability of governments to effectively administer and manage migration processes at operational level as well as persistence of corruption. Unreliable and fragmented migration information and data systems, both at national and regional levels. Non-visa regimes among most of the countries of the region are not supported with relevant capacities of national governments to accurately document, enumerate, develop and manage migration processes. Lack of cross-border cooperation as well as exchange of information and migration data between the countries. Weaknesses in border controls allow drug trafficking from Afghanistan to flow through the region towards Russia and further to Europe, increasing the threats associated with organized crime networks and violent extremist groups. Poor infrastructure at many border crossing points. WHY IOM The link between migration and border management is strong since international migration, by definition, involves crossing state borders. To ensure that migration occurs in a humane and orderly fashion, IOM maintains a strong focus on helping states to manage their borders. IOM is mandated to assist its Member States in the development and delivery of technical expertise on combating migrant smuggling and trafficking in persons, in particular women and children. It is committed to fulfilling its mandate in a manner consistent with international law and to support states, migrants and communities in addressing the challenges of irregular migration. In IOM s 12 points of strategic focus, technical co-operation or operational assistance becomes of fundamental importance when addressing migration management. IOM is committed, as an 29

30 organization, to developing and rendering to states expertise in technical and operational aspects of migration and border management. IOM has been running technical co-operation programmes in Central Asian countries since 1996, assisting the governments and border authorities in particular in addressing operational challenges. IOM s operational expertise and technical focus in this field, both in the region and globally, enables the provision of support to governments in a timely manner. IOM s strong technical focus is of primary relevance to IOM s modus operandi. PRIORITIES Needs Assessment and Policy Recommendations Analysis and improvement of legislative framework related to border control and migration management ; Comprehensive assessments of border management and control systems, including border checkpoint infrastructure and procedures, professional staff capacity, and inter-agency coordination ; Evaluation and modernization of existing passport and visa issuance systems to meet international standards, including establishing automated passport production and issuance systems; Assessment of issuance procedures and secure handling of identity and other travel documents ; Establishment and refurbishment of training facilities for Border Guard Services. Infrastructure Support Procurement of border control equipment and installation of IOM s customized border management information systems (PIRS), allowing improved data collection and analysis, as well as more effective border controls at BCPs; Reconstruction and structural improvements to border crossing points at airports, road and rail crossings for enhanced document inspection and border control ; Construction and renovation of specialized, dedicated training centres for border guards and other border services; Provisions of border surveillance equipment to curb irregular movements of people across the border, and smuggling of illicit goods. 30

31 Professional Capacity Building Development and delivery of specialized training courses on various aspects of border control and migration management for border services ; Organization of cross-border seminars and joint trainings to deepen cooperation and operational links related to border control and migration management throughout the region, including with Afghanistan; Customized training on humanitarian border control and management during emergency situations and humanitarian crisis; Fostering and promoting inter-governmental dialogue on migration management at the international and regional level. WHAT WE WILL ACHIEVE Improve the policy, legislation and administrative structures for migration and border management by promoting and protecting migrants rights, while ensuring sovereign rights of states to protect their borders; Strengthen government capacities to deal with labour migration, human and drug trafficking, smuggling, transnational crime and terrorism; Upgrade border and migration information systems, supported by proper procedures and technical capacity to securely issue and handle identity and travel documents. HOW WE WILL ACHIEVE IT IOM will continue to help Central Asian governments and targeted stakeholder groups develop their capacities in key areas of concern through expertise advise and trainings, equipment and infrastructure improvement. Main Activities will include assistance in the development and upgrading of manuals on border procedures, assessment of passport and visa systems, border crossing points and training services and construction and refurbishment of training facilities, border crossing points and training facilities. Research and advocacy will play an important role in the Technical Co-operation and Border Management programme area. IOM will conduct research and publish papers on the topics of border management, irregular migration, smuggling and readmission in order to continue supporting the on-going dialogue for a sound migration governance system in CA. IOM will further advocate for the introduction of best practices into Central Asian migration and border management systems, and promotion of intra-service, inter- 31

32 agency coordination and cooperation, both at national and regional levels. EMERGENCY RESPONSE and COMMUNITY STABILIZATION ISSUES Central Asia is primarily a natural disasters prone region. However, a mix of environmental and political challenges creates the necessity to address migration-related aspects of natural disasters or man-made crises. Specific issues include: The upcoming withdrawal of the International Assistance Security Forces (ISAF) from Afghanistan in 2014, which according to some expert forecasts, could trigger massive population movements within Central Asia and beyond. The expansion of the Eurasian Economic Integration have led three post-soviet countries (Russia, Belarus and Kazakhstan) joining the Customs Union and eliminating borders for cargo movement within the union. Customs Union also provide certain liberties in terms of movement of human capital within its boundaries, therefore allowing migrant workers opportunities within the vast geographical territory of the Union. Kyrgyzstan agreed to join the Customs Union and Tajikistan is in advanced stage of negotiations to join in the near future. The future aim of the Union is full integration in the form of a Eurasian Economic Space. Migration stock from relevant countries counts in the millions. Political instability in several countries creates the increased likelihood of violent conflict. This instability is heightened by insurgencies. Religious radicalization has increased in Central Asia. Inadequate systems of managing natural resources cause shortages, and this in 32

33 turn stimulates conflict. Governments lack the capacity or the willpower to address sources of conflict and to stabilize vulnerable communities. Poor socio-economic conditions, widespread corruption, tension between ethnic groups and little access to services trigger conflicts. PRIORITIES IOM s priorities for emergency response and community stabilization are: To encourage disaster risk reduction activities which will minimize environmental risk and associated emergency migration. To improve national capacities to prevent, mitigate and respond to natural or man-made emergencies. To be fully involved in preparedness activities and in the humanitarian cluster system and to actively work with other organizations to provide assistance to migrants and refugees in case of a humanitarian emergency. To support stabilization by developing and implementing measures to improve social cohesion between different ethnic groups, including information counseling and referral services. To improve socio-economic opportunities for populations who are vulnerable to conflict including stateless people, minority ethnic groups and youth. WHAT WE WILL ACHIEVE IOM Central Asia will build its emergency and post-conflict programme to include community stabilization and disaster risk reduction activities. Its specific goals are as follows: IOM will prepare for humanitarian emergencies, and in the case of such an emergency, will participate in the Shelter, Protection, Early Recovery and Camp Co-ordination and Management clusters. Social cohesion among different ethnic groups will be improved by establishing tolerance and conflict resolution programmes. Socio-economic opportunities for vulnerable populations will be provided by implementing vocational training and income generation activities. 33

34 Information and employment counseling and referral services will be established to address the root causes of conflict and reduce the likelihood that the population will participate in conflict. Disaster risk reduction will be encouraged, specifically through trainings of local authorities and distributing information among the wider population. HOW WE WILL ACHIEVE IT Sustainable development will fostered by making migration a choice. IOM is engaged in building resilience of countries and communities affected by natural and man-made disasters in Central Asia. This includes supporting the governments and communities in dealing with causes and consequences of possible mass internal or cross-border flows of people triggered by a crisis. In November 2012, IOM s 155 Member States approved by consensus through a resolution of the IOM Council the Migration Crisis Operational Framework (MCOF). The MCOF combines IOM humanitarian activities and migration management services bringing IOM s expertise into a stronger partnership with the Central Asian countries and international partners/stakeholders, to ensure collective ability to assess and build better capacity to manage migration during crisis. Fundamentals of the IOM Migration Crisis Operational Framework (MCOF) 34

35 MCOF combines IOM humanitarian activities and migration manageme MCOF is based on International humanitarian and human rights law and humanitarian principles MCOF complements existing international systems as specifically, it is designed to fit in with the Cluster Approach of the Inter-Agency Standing Committee and the international refugee protection regime. IOM Emergency Response Capacity in Central Asia Before, During, After The Migration Crisis Operational Framework (MCOF), approved by member states, brings expertise of IOM to the countries not only on the emergency response phase, but also on pre-crisis preparedness and post crisis recovery phases ( Before, During and After ): Disaster Risk Management - capacity building at all levels is the heart of DRM. Capacity development of national and local authorities is a long term engagement and IOM CA brings its expertise to the countries, while development actors play a crucial role in securing political support and long term donor engagement. Disaster Risk Reduction and Community Stabilization to ensure sustainability and empowerment, IOM s interventions includes awareness raising, development and distribution of educational and informational materials, needs assessments and trainings for concerned local and central government authorities, including simulation exercises, development of community disaster preparedness and action plans. Climate Change Adaptation IOM s climate change adaptation program aims to address the effects of changing climate on vulnerable population. The approach is community oriented and focuses on empowering local actors and affected populations as the primary responders, while supporting the efforts to strengthen the interaction with responsible holders and develop their capacities. Humanitarian Emergencies and Staffing Capacity - IOM CA has staff of 77 including Emergency Operations focal points and logistics staff in all five countries in the region whose mobilization is subject to coordination between the country offices only. In addition, IOM provided trainings and can mobilize up to 2,000 persons from its civil society and government stakeholders network to set-up emergency response operations in any location across the Central Asia region. Additionally, IOM has a pool of qualified emergency management experts in the other regions of the world which can be mobilized within 24 to 72 hours immediately. 35

36 Sectorial specialization - Since 2005, IOM CA has been the Global Cluster Lead for Camp Coordination and Camp Management in natural disasters including setup and management of Emergency Shelters, evacuation assistance, distribution of non food items (NFIs), information management and monitoring; mental health, psychosocial rehabilitation and medical evacuation; return and reintegration of displaced population. Also, IOM actively contributes to the Logistics, Emergency Shelter, Protection, Health and Early Recovery Clusters. Emergency supplies - IOM currently does not have stockpiles of emergency items in Central Asia. However, IOM has all necessary capacities to arrange, in a most effective and expedited manner, the logistics for any emergency supplies in case of small to large scale displacements as a result of natural disasters. Emergency partners in Central Asia: States, NGOs and public organizations, international agencies such as: United Nations High Commissioner for Refugees (UNHCR), Office for the Coordination of Humanitarian Assistance (OCHA), United Nations Development Program (UNDP), United National Regional center for Preventive Diplomacy (UNRCCA), and European Commission Humanitarian Aid and Civil Protection (ECHO). Cooperation Modalities: a) IOM is part of Inter-Agency Standing Committee (ISAC) process, a primary mechanism for inter-agency coordination of humanitarian assistance; b) within the Inter-Agency Cluster System IOM is given a role of the Coordinator in management of emergency shelters during natural disasters; c) IOM has a direct access to CERF UN Central Emergency Response Fund; d) in 2011 IOM established a Migration Emergency Funding Mechanism for bridging the gap between the start-up of emergency operations and the subsequent receipt of donor funding. IOM Central Asia also works on the integration of cross-cutting issues such as gender roles, children and other vulnerable groups, health and migrants rights into DRR and EPR activities. 36

37 CROSS-CUTTING THEMES GOVERNANCE Governance issues are widespread throughout Central Asia. Most Central Asian countries have only limited experience with democracy, and the new states have low levels of accountability and transparency. Corruption is a significant problem, with most Central Asian countries falling among the 25 most corrupt countries in the world, according to Transparency International. Civil society is relatively weak in Central Asia and generally few administrative reforms and modernization has taken place. In order to combat corruption and improve the quality of governance in Central Asia, IOM Central Asia has identified governance as a cross-cutting theme and will address this issue in all programmatic areas. MIGRANT RIGHTS Over sixty per cent of migrants from Central Asia work without complete documentation, and their irregular status puts them at risk of being victims of human rights abuses. More than sixty per cent of employment agreements in receiving countries are brokered without a contract, leaving migrants highly vulnerable to abuse both in their place of work and in wider society. Forty four per cent of all migrants live in adverse conditions at their workplace, and over half are not paid according to their agreements with their employers. Human rights violations are particularly evident in the field of child labour. Confirmed reports on slave child labour in tobacco and cotton plantations have also been confirmed throughout Central Asia. Outside work, migrants are vulnerable to corruption among the police department and the justice system, as well as to extortion by landlords and humiliation by community members. IOM Central Asia works in every programmatic area on protecting and promoting the human rights of migrants, who are especially vulnerable to abuse. 37

38 CIVIL SOCIETY DEVELOPMENT Civil society in Central Asia is relatively weak. NGOs can play a significant role in all areas of migration, particularly in advocacy and in provision of services to migrants. IOM works, throughout all of its programme areas to increase the capacity of civil societies. IOM has developed a network of partner NGOs, with whom the organization has long-term, sustainable relationships, and in which IOM has invested significantly. Capacity-building activities have been conducted with these NGOs, and future activities and projects are planned. It is anticipated that IOM s current activities with its NGO network will allow local NGOs to take on an increasingly larger role in advocating for the rights of migrants and establishing counter-trafficking and assistance to migrant services. GENDER Women are particularly vulnerable throughout the migration process. Women who migrate are less likely to have access to services including health, legal, professional and educational areas. They are also less likely to be protected through informal networks. In addition, labour migration among males increases the proportion of women-headed households and the proportion of dependent wives in Central Asia. The increase in women-headed households is likely to be accompanied by an increase in poverty and social exclusion. The increase in dependent wives causes increased vulnerability for women and their children. Such changes may have important consequences for social structures in Central Asia. IOM s programmes are gender-mainstreamed, and include components designed to improve the situation of women migrants, women victims of trafficking and exploitation and also women in the families of migrant workers. HEALTH Conditions surrounding modern migration often fuel health inequities and may expose migrants to increased health risks and negative health outcomes: restrictive migration policies cause an increasing number of migrants to travel in a clandestine and risky manner using irregular means of transportation; labour and economic downturns and anti-migrant sentiments lead many migrants to occupy the lower social strata of society which give them limited access to health care, education, and safe and dignified working and living conditions. In this context, migration has become a key social determinant of the health of migrants. According to the 4th WHO Global Report, Central Asian countries face a serious epidemic of TB drug resistance and have some of the highest rates of MDR-TB in the world (WHO, 2010). Resurgence of TB in the Central Asian countries clearly illustrates the role of social, economic and political factors in the spread of TB. Migration, the breakdown of the health 38

39 care system, lack of the medical professionals and budget cuts are leading to an increase in TB mortality and drug resistance. Studies on TB among Tajik (IOM, 2009) and Uzbek migrant workers in Kazakhstan (Project HOPE, 2008) document the link between labour exploitation and increased risk of TB. Seasonal migration patterns in CA countries cause treatment interruption and increase the chances of drug resistant TB. Diagnostic delays may lead to more serious illnesses for the patient and to increased infectivity within the community. Returned migrant workers to the community with undiagnosed pulmonary tuberculosis pose the greatest source of transmission and in settings where TB is endemic, may result in more than 20 secondary infections (IOM, 2009). The increased levels of female migration in the region coupled with low awareness on reproductive health, family planning, sexually transmitted infections (STIs), HIV and lack of access for migrants to preventive programmes and health care services in host countries, is cause the prevalence of the sexually transmitted infections, and unwanted pregnancy among female migrants. Inadequate migration legislation and policy in the host countries make difficult access of the children of migrant workers to free immunization programme recommended by the WHO and UNICEF. Throughout its programmatic areas, IOM and its partners, including governments and NGOs advocate migrants rights to health and improve migrants access to health services. 39