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European Commission EuropeAid Cooperation Offi ce Financed by the European Commission - MEDA Programme Cooperation project on the social integration of immigrants, migration, and the movement of persons Lami Bertan Tokuzlu Migration Law in Turkey Analytic and Synthetic Notes 2007/01 - Legal module © 2007 European University Institute, RSCAS. All rights reserved. No part of this paper may be used, distributed, or reproduced by any means without prior permission of the Robert Schuman Centre for Advanced Studies. If published online, single download and print for non commercial teaching or personal use is permitted. In quotations, please acknowledge the source. For queries and information, please contact <[email protected]> CARIM In November 1995, the European and Mediterranean Ministries of Foreign Affairs met in Barcelona in order to establish the basis of a new partnership, which is described in the Barcelona Declaration. The main goal is to transform the Mediterranean region in a peaceful and prosperous area, and to progressively establish a Euro- Mediterranean free-market zone. The Barcelona process includes three main sub-processes: a dialogue on political and security issues aiming to create stability and to promote democracy and human rights in the region; a dialogue on financial and economic cooperation intended to increase partners' welfare and to create a free- market zone; dialogue on social, cultural and human issues improving mutual understanding and strengthening civil society links. The Valencia Ministerial Meeting in April 2002, went a step further by outlining a ‘Regional cooperation programme in the field of justice, in combating drugs, organised crime and terrorism as well as cooperation in the treatment of issues relating to social integration of migrants, migration and movement of people’ (referred to in the document as the JHA-Regional MEDA programme). This programme has been adopted by the European Commission on the 16/12/2002 (PE/2002/2521). The ‘Cooperation project on the social integration of immigrants, migration and the movement of persons’ (EuroMed Migration) is a MEDA regional initiative launched by the European Commission (EuropeAid Cooperation Office) in February 2004 as part of the above programme. It aims at creating an instrument for observing, analysing and forecasting the migratory movements, their causes and their impact, in Europe and in the Mediterranean partners. The Euro-Mediterranean Consortium for Applied Research on International Migration (CARIM) has been set up in order to implement the EuroMed Migration project. The Consortium is composed of a coordinating unit established at the Robert Schuman Centre for Advanced Studies of the European University Institute (Florence), and a network of thirty scientific correspondents based in Mediterranean partner countries. External experts from the north and the south also contribute to its activities. The CARIM carries out the following activities: - Mediterranean migration database - Studies and research - Training Results of the above activities are made available for public consultation through the website of the project: www.carim.org For more information: Euro-Mediterranean Consortium for Applied Research on International Migration Robert Schuman Centre for Advanced Studies-EUI Villa Malafrasca Via Boccaccio, 151 50133 Firenze (FI) Italy Tel: +39 055 46 85 878 Fax: + 39 055 46 85 755 Email: [email protected] Robert Schuman Centre for Advanced Studies The Robert Schuman Centre for Advanced Studies (RSCAS) was founded at the European University Institute to develop inter-disciplinary and comparative research and to promote work on the major issues facing the process of integration and European society. Research at the Centre is organised around a set of core themes, each of which is home to a number of research programmes and projects. The results of the Centre's research are disseminated in the form of academic publications, working and policy papers, and research reports. Details of this and other research can be found at: http://www.eui.eu/RSCAS/Research/ The EUI and the RSCAS are not responsible for the opinion expressed by the author(s). CARIM Euro-Mediterranean Consortium for Applied Research on International Migration Analytic and Synthetic Notes – Legal Module CARIM-AS 2007/1 Lami Bertan Tokuzlu Bilgi University, Faculty of Law, Istanbul, Turkey Migration Law in Turkey Introduction Turkey has always been a transit and target country as well as a source country for migrants. The legal provisions regulating migration developed over time and have been shaped by three major developments following the creation of the Republic of Turkey in 1923. The first development facing the new Turkish state was how to deal with the influx of Turkish migrants from the former Ottoman Empire wishing to return to their homeland to avoid the rising wave of nationalism in former Ottoman territories. In 1923 the Peace Treaty of Lausanne marked the end of the Greco–Turkish War and a Protocol dealt with the exchange of populations between the two countries.1 This was followed by the 1934 Law on Settlement which was designed to encourage the return of people of Turkish descent or Turkish culture to Asia Minor.2 Both instruments remain in force today. The second major factor to impact on Turkish migration law was the outward migration of Turkish workers to European countries starting in the early 1960s. The Republic of Turkey concluded several bilateral treaties on the status of emigrants such as social security treaties, followed by a number of arrangements in Turkish domestic law to coordinate and facilitate the maintenance of the cultural, economic and legal ties of Turkish migrants with their homeland. The issue became more complicated when destination countries rejected dual citizenship and forced migrants to resume their Turkish citizenship.3 Turkish legislators were obliged to establish a new status giving former Turkish nationals and their children rights almost equivalent to those of Turkish citizens. These legal arrangements have become more comprehensive over time as the number of target countries increased parallel to Turkey’s integration with in foreign markets after the 1980s. This area has become so tightly regulated that the Turkish government even passed decrees to compensate Turkish workers abroad whose salaries were left unpaid by foreign employers.4 The third and most recent development to have an impact on Turkish migration law has been the process of accession to the European Union (EU). The intensive legislative process which took place within the EU after the signing of the Treaty of Amsterdam introduced a new dimension to the responsibilities of the Republic of Turkey as a candidate state. The Accession Partnership for Turkey was prepared by the European Commission, adopted on 8 March 2001,5 and subsequently revised on 26 March 2003.6 It sets out objectives for migration and asylum policy concerning Turkey’s accession to the European Union: • to pursue alignment of visa legislation and practice with the acquis • to adopt and implement the acquis and best practices on migration (admission, readmission, expulsion) with a view to preventing illegal immigration • to continue alignment with the acquis and best practices for border management in preparation of full implementation of the Schengen acquis 1 League of Nations Treaty Series (LNTS), vol.28, 1924, p. 53 2 Law on Settlement, No. 2510 of 14 June 1934, Official Journal No. 2733 of 21 June 1934. 3 See for instance, The Convention on the Reduction of Cases of Multiple Nationality and on Military Obligations in Cases of Multiple Nationality, CETS No.: 043, entery into force 28 March 1968 http://conventions.coe.int 4 See Council of Ministers Decree No. 85/10210 of 20 December 1985 Conbcerning Institutions Commissioned for Transfering the Allowences That are Allocated to Service Providing Enterprises Abroad and the Fund for Assistance to Workers Who Encounter Financial Difficulties While Working in Such Enterprises. 5 Council Decision of 8 March 2001 on the principles, priorities, intermediate objectives and conditions contained in the Accession Partnership with the Republic of Turkey (2001/235/EC) OJ L 85/13 24/03/2001. 6 Council Decision of 19 May 2003 on the Principles, Prorities, Intermediate Objectives and Conditions in the Acession Partnership with the Republic of Turkey, 2003/398/EC (OJ L145) 12/06/2003. Analytical and Synthetic Notes – Legal Module CARIM-AS 2007/1 • to start alignment of the acquis in the field of asylum including lifting the geographical limitation to the 1951 Geneva Convention, strengthen the system for hearing and determining applications for asylum, and developing accommodation facilities and social support for asylum-seekers and refugees. Following the adoption of the revised Accession Partnership, Turkey published its National Programme for the Adoption of the Acquis7 providing a detailed list of undertakings on asylum and migration issues including a comprehensive legislative reform. For instance, the adoption of the Law on Aliens by 1 January 2005 and the Law on Asylum by the end of 2005 was planned within this framework. Some of the ambitious plans in the National Programme had to be revised later in a more detailed document called the Action Plan for Asylum and Migration8 which came into force in March 2005. The Plan is still an ambitious document for Turkey and contains a description of existing legal practice and mid-term and long-term goals including the
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