TURKMENISTANI LABOR MIGRATION TO TURKEY

UNCLAS SECTION 01 OF 04 ASHGABAT 000545 SIPDIS SENSITIVE SIPDIS STATE FOR SCA/CEN (PERRY) E.O. 12958: N/A TAGS: PGOV PHUM PINR TU TX SUBJECT: TURKMENISTANI LABOR MIGRATION TO TURKEY SUPPORTS PROSTITUTION AND TRAFFICKING REF: 05 ASHGABAT 479 ASHGABAT 00000545 001.3 OF 004 SUMMARY -------------- ¶1. (SBU) DRIVEN BY LOCAL UNEMPLOYMENT AND POVERTY, THOUSANDS OF TURKMENISTAN'S CITIZENS TRAVEL TO TURKEY TO WORK ILLEGALLY AS UNSKILLED LABORERS. ANECDOTAL EVIDENCE COLLECTED FROM LABOR MIGRANTS SUGGESTS THAT, HAVING ARRIVED IN TURKEY, MOST MIGRANTS OVERSTAY THEIR TOURIST VISAS TO EARN INCOMES ROUGHLY TEN TIMES GREATER THAN THOSE AVAILABLE AT HOME. OTHERS HAVE FALLEN INTO TRAFFICKING TRAPS SET FOR THEM BY THEIR OWN COUNTRYMEN. MIGRANT WORKERS' ILLEGAL STATUS, A LACK OF LOCAL CONNECTIONS, AND MISPLACED TRUST IN THEIR FELLOW COUNTRYMEN MAKE NEW ARRIVALS IN TURKEY SUSCEPTIBLE FOR EXPLOITATION BY THE CRIMINAL ELEMENT. LABOR MIGRANTS REPORT THAT THE GOTX HAS RECOGNIZED THE SERIOUSNESS OF TURKMENISTANI CRIME IN TURKEY AND IS NOW TRYING TO FIGHT IT IN COOPERATION WITH TURKISH AUTHORITIES, ALTHOUGH THE GOTX HAS MADE NO OFFICIAL ANNOUNCEMENTS REGARDING THIS EFFORT. THE GOTX ALSO ATTEMPTS TO LIMIT TRAVEL TO TURKEY THROUGH VARIOUS UNOFFICIAL EXIT REGULATIONS, BUT THE GOTX IS UNLIKELY TO STOP LABOR MIGRATION UNTIL IT ADDRESSES THE POOR EMPLOYMENT OPPORTUNITIES AND LIVING STANDARDS THAT CAUSE IT. ADMITTING PROBLEMS, HOWEVER, IS POLITICALLY UNACCEPTABLE IN TURKMENISTAN, AND POSSIBLY CAREER-ENDING. END SUMMARY. TURKEY - A PRIME DESTINATION -------------- ¶2. (SBU) TURKEY CONTINUES TO BE THE DESTINATION OF CHOICE FOR TURKMENISTANI MIGRANTS BECAUSE OF LOW AIRFARE ($135 ROUNDTRIP),A SIMPLIFIED VISA REGIME, HIGH LABOR DEMAND IN ISTANBUL, AND CHEAP GOODS. IN THE LAST FEW YEARS, WIDESPREAD UNEMPLOYMENT AND DETERIORATING SOCIAL CONDITIONS IN TURKMENISTAN'S TOWNS AND VILLAGES HAVE CONTRIBUTED TO THE MIGRATION OF THOUSANDS OF TURKMENISTAN'S CITIZENS TO TURKEY TO FIND BETTER-PAYING JOBS. OTHER JOBLESS TURKMENISTANIS HAVE BECOME "PRIVATE ENTREPRENEURS" WHO TRAVEL TO TURKEY TO BUY TURKISH GOODS AND RESELL THEM IN TURKMENISTAN'S MARKETS. A POLICE OFFICER FROM THE LEBAP PROVINCE ADMINISTRATIVE CENTER TURKMENABAT TOLD POLASST'S RELATIVES THAT OVER 11,000 CITY RESIDENTS HAD LEFT THE CITY TO LOOK FOR JOBS ABROAD. FINDING JOBS THROUGH "SIRKETS" -------------- ¶4. (SBU) POLASST TRAVELED TO ISTANBUL MARCH 23-26 AND OBTAINED A RELIABLE PICTURE OF THE CITY'S TURKMENISTANI LABOR MARKET THROUGH RELATIVES WORKING THERE. LABOR MIGRANTS FROM TURKMENISTAN PRIMARILY FIND JOBS THROUGH SO CALLED "SIRKETS" (TURKISH FOR COMPANY) -- EMPLOYMENT AGENCIES THAT MATCH JOB-SEEKERS WITH FAMILIES LOOKING FOR A HOUSEMAID OR WITH TEXTILE FACTORIES AND OTHER ENTERPRISES NEEDING UNSKILLED WORKERS. RELATIVES OR ACQUAINTANCES USUALLY MEET LABOR MIGRANTS AT THE AIRPORT AND INTRODUCE THEM TO A SIRKET. THE SIRKET PROVIDES CLIENTS WITH LODGING DURING THE JOB SEARCH PERIOD AND CHARGES A FEE FOR ITS SERVICES BASED ON A PERCENTAGE OF THE JOB SEEKER'S FIRST MONTH'S PAY. MOST MIGRANTS STAY IN ISTANBUL, ALTHOUGH SOMETIMES SIRKETS OFFER JOBS OUTSIDE ISTANBUL. HOUSEMAIDS AND UNSKILLED LABORERS GENERALLY FIND JOBS STARTING AT $350-400 PER MONTH AND TRY TO MOVE UP TO BETTER-PAYING JOBS ONCE THEY LEARN TURKISH. (NOTE. IN CONTRAST, THE AVERAGE MONTHLY WAGE IN TURKMENISTAN IS $40-60 PER MONTH. END NOTE.) ACCORDING TO POLASST'S RELATIVES, THE MAJORITY OF LABOR MIGRANTS OVERSTAY THEIR TOURIST VISAS AND BECOME ILLEGAL RESIDENTS. ¶5. (SBU) JOB SEEKERS ARRIVING IN ISTANBUL WITHOUT LOCAL CONNECTIONS OFTEN FALL PREY TO TURKMENISTANI MIDDLEMEN, WHO MAY HAVE TIES TO SIRKETS OR EMPLOYERS. NEWCOMERS ARE OFTEN HAPPY TO SEE THEIR FELLOW COUNTRYMEN AND GLADLY ACCEPT PROPOSALS TO HELP FIND A JOB FOR A USUAL FEE OF ASHGABAT 00000545 002.3 OF 004 $100. MIDDLEMEN, FOR THEIR FEE, EITHER TAKE THE NEWCOMERS TO A SIRKET FOR ADDITIONAL FEE-FOR-SERVICE ASSISTANCE, OR MAY HOST THE NEWCOMER THEMSELVES AND TRY TO DIRECTLY CONNECT THEM WITH EMPLOYERS. PROSTITUTION: SEX COMMUTERS -------------- ¶6. (SBU) A TURKMENISTANI AIDS SPECIALIST RESEARCHING TURKMENISTAN'S SEX INDUSTRY TOLD POLOFF IN FEBRUARY THAT SOME OF THE COUNTRY'S PROSTITUTES REGULARLY 'COMMUTE' TO TURKEY ON TOURIST VISAS AND DO NOT OVERSTAY THEIR VISAS, WHICH ALLOWS FOR THE REPEATED 'LEGAL' TRAVEL. (NOTE: ACCORDING TO THE TURKISH EMBASSY IN ASHGABAT, SINGLE TURKMENISTANI WOMEN MAY ONLY ENTER TURKEY AS PERSONAL GUESTS OF TURKISH CITIZENS, AND NOT ON TOURIST VISAS. DURING VISA INTERVIEWS, HOWEVER, CONOFF HAS REGULARLY NOTICED THAT SINGLE TURKMENISTANI WOMEN APPLYING FOR U.S. TOURIST VISAS OFTEN HAVE TURKISH TOURIST VISAS IN THEIR PASSPORTS. END NOTE.) A SEX WORKER'S LABOR CONDITIONS AND JOB SEARCH DIFFER FROM THAT OF REGULAR LABOR MIGRANTS, AS DOES THEIR WAGE, WHICH IS SEVERAL TIMES HIGHER THAN THAT OF REGULAR HOUSEMAIDS. FRIENDS ALREADY WORKING IN THE TURKISH SEX TRADE OR IN THE HOSPITALITY INDUSTRY NORMALLY INVITE NEW TURKMENISTANI SEX WORKERS TO THE COUNTRY. ACCORDING TO POLASST'S CONTACTS, YOUNG TURKMENISTANI WOMEN WHO COME TO WORK AT NON-SEX JOBS SOMETIMES DECIDE TO CHANGE THEIR 'PROFESSION' ONCE IN TURKEY TO PROSTITUTION. TRAFFICKERS OFFER EMPLOYMENT BUT TAKE MUCH MORE -------------- -- ¶7. (SBU) ACCORDING TO POLASST'S LOCAL CONTACTS, ALONG WITH WELL-INTENTIONED RELATIVES AND ACQUAINTANCES AND THE ANGLING MIDDLEMEN, MUCH MORE DANGEROUS TURKMENISTANI TRAFFICKERS ALSO TROLL FOR NEWCOMERS AT THE ISTANBUL AIRPORT. THE TRAFFICKERS CLAIM GOOD CONTACTS WITH BARS, HOTELS, FACTORIES, SIRKETS, AND SOMETIMES EVEN WITH THE POLICE, AND THEY LOOK FOR MEN AND WOMEN ALIKE. USUALLY, A TRAFFICKER OFFERS TO HELP A LABOR MIGRANT FIND A JOB AND, IN ORDER TO DO SO, REQUESTS A CERTAIN AMOUNT OF MONEY AND THE MIGRANT'S PASSPORT. NEWCOMERS USUALLY TRUST THEIR COUNTRYMEN AND HAND OVER THEIR DOCUMENTS. MEN END UP WORKING IN FACTORIES ONLY QUICKLY TO LEARN THEY WON'T BE PAID AND WILL HAVE TO 'WORK-OFF' THEIR PASSPORTS TO GET THEM BACK. ALISHER, 22 YEARS OLD AND FROM TURKMENABAT, WAS ONE OF THESE TRAFFICKED WORKERS. HE PAID A MIDDLEMAN NAMED REJIK (SEE PARAGRAPH 12) TO GET A JOB AT A TEXTILE FACTORY, WHERE HE WORKED FOR TWO MONTHS WITHOUT BEING PAID AND WITHOUT GETTING HIS PASSPORT RETURNED. ALISHER FEARED GOING TO TURKMENISTAN'S ISTANBUL CONSULATE TO GET A NEW PASSPORT BECAUSE HE HAD OVERSTAYED HIS TOURIST VISA AND WASN'T SURE THE CONSULATE VISIT WOULD BE OF ANY HELP. STILL WITHOUT HIS PASSPORT BUT FREE FROM REJIK'S TRAP, ALISHER NOW WORKS AS A DELIVERY BOY AT AN ISTANBUL RESTAURANT. ¶8. (SBU) THERE IS ALSO EVIDENCE, BOTH ANECDOTAL AND ACTUAL, THAT YOUNG WOMEN WHO WILLINGLY AGREE TO PROSTITUTION WITH THE HOPES OF EARNING SIGNIFICANT INCOMES BECOME VICTIMS OF TRAFFICKING. SOME WOMEN COMING TO WORK AT NON-SEX JOBS REPORTEDLY ARE DECEIVED AND TRAFFICKED INTO THE SEX BUSINESS. AS WITH MEN, ONCE IN THE TRAP THESE WOMEN ARE NOT PAID AND ARE BLACKMAILED INTO 'WORKING-OFF' THEIR PASSPORTS. MEMBERS OF THE TURKMENISTANI COMMUNITY IN ISTANBUL APPEAR AWARE OF THESE SCHEMES. POLASST'S RELATIVES TOLD STORIES OF TRAFFICKED TURKMENISTANI PROSTITUTES AND OF A MAN NAMED MURAD FROM TURKMENABAT WHO WAS, "INVOLVED IN DIRTY EMPLOYMENT DEALINGS IN ISTANBUL." POLASST'S RELATIVES SAID THEY KNEW NOT TO LOOK FOR A JOB THROUGH MURAD, DESPITE HIS GOOD CONNECTIONS TO SIRKETS AND POTENTIAL EMPLOYERS, BECAUSE HE WAS ALSO KNOWN FOR "FOOLING PEOPLE AND SELLING THEM."(NOTE: ACCORDING TO POST'S INFORMATION, ALL OF TURKMENISTAN'S REGISTERED TRAFFICKING CASES (UNDER 10 TOTAL) WERE TRAFFICKED TO TURKEY. END NOTE.) TURKMEN LAW ENFORCEMENT ACTIVE IN ISTANBUL? ASHGABAT 00000545 003.3 OF 004 -------------- ¶9. (SBU) SEVERAL OF POLASST'S RELATIVES IN ISTANBUL RECOUNTED THE FEBRUARY ARREST OF A LARGE ORGANIZED CRIME GROUP COMPRISED MOSTLY OF TURKMENISTANIS FROM TURKMENABAT. LED BY A GANG CHIEF NAMED MUHAMMET (ALSO FROM TURKMENABAT),THE GANG'S PRIMARY ACTIVITY WAS TRAFFICKING TURKMENISTANI MEN AND WOMEN. ACCORDING TO POLASST'S RELATIVES, TURKISH LAW ENFORCEMENT AGENTS, POSSIBLY ASSISTED BY THEIR COUNTERPARTS FROM TURKMENISTAN, ARRESTED ABOUT 15 MEMBERS OF THE GANG. ALONG WITH GUNS AND DRUGS, THE TURKISH POLICE REPORTEDLY CONFISCATED 34 PASSPORTS BELONGING TO TURKMENISTANI CITIZENS BELIEVED TO HAVE BEEN TRAFFICKED BY THE GANG. ¶10. (SBU) THE TURKMENISTANI LABOR MIGRANTS INTERVIEWED BY POLASST IN ISTANBUL BELIEVED TURKMENISTANI LAW ENFORCEMENT AGENTS WERE ACTIVELY ENGAGED IN INVESTIGATIONS, DEPORTATIONS AND PROSECUTIONS OF TURKMENISTANI CRIMINALS WANTED IN THEIR HOME COUNTRY, AS WELL AS CRIMINAL GROUPS AND PROSTITUTES WORKING IN ISTANBUL. LABOR MIGRANTS CLAIM PLAIN-CLOTHES LAW ENFORCEMENT AGENTS FROM TURKMENISTAN WORKED AT THE ISTANBUL AIRPORT TO DETECT TRAFFICKERS RECRUITING POTENTIAL VICTIMS NEWLY ARRIVED FROM TURKMENISTAN. ¶11. (SBU) ACCORDING TO ALISHER (SEE PARAGRAPH 7),THIS WAS THE METHOD USED BY TURKMENISTANI AGENTS IN EARLY 2006 FOR DETECTING AND ARRESTING REJIK, THE TRAFFICKER WHO HAD TRAFFICKED HIM. POLASST'S CONTACTS DID NOT KNOW IF REJIK WAS PROSECUTED IN TURKEY OR DEPORTED TO TURKMENISTAN FOR PROSECUTION. GOTX ATTEMPTS TO REGULATE LABOR MIGRATION -------------- ¶12. (SBU) THE GOTX HAS TRIED TO PREVENT LABOR MIGRATION TO TURKEY WITH UNOFFICIAL REGULATIONS APPARENTLY AIMED AT REDUCING TURKMENISTANI CRIME AND PROSTITUTION IN TURKEY. THE STATE SERVICE FOR THE REGISTRATION OF FOREIGN CITIZENS, ALSO KNOWN AS THE MIGRATION SERVICE, INTRODUCED IN 2004 AN UNOFFICIAL REQUIREMENT FOR ALL CITIZENS TRAVELING TO TURKEY TO CARRY AT LEAST $500 TO PREVENT "YOUNG WOMEN WHO DISHONOR TURKMENISTAN AND WHO MIGHT BECOME VICTIMS OF TRAFFICKING" FROM TRAVELING (REFTEL). WHEN TRAVELING TO ISTANBUL IN MARCH, POLASST HAD TO SHOW PROOF OF MEETING THIS UNOFFICIAL REQUIREMENT, SUGGESTING IT IS STILL IN FORCE. ¶13. (SBU) ANOTHER UNPUBLICIZED RULE THAT IS WIDELY BELIEVED TO BE IN FORCE, AND WHICH HAS EXISTED FOR SEVERAL YEARS, IS THAT WOMEN UNDER THE AGE OF 35 ARE NOT ALLOWED TO LEAVE THE COUNTRY WITHOUT PERMISSION FROM THEIR PARENT(S). EVEN WITH PERMISSION, HOWEVER, A YOUNG WOMAN'S TRAVEL CAN BE DENIED. THE MIGRATION SERVICE DENIED PERMISSION TO POLASST'S YOUNG FEMALE RELATIVE IN DECEMBER 2005 TO TRAVEL TO TURKEY, EVEN THOUGH SHE WAS TRAVELING WITH HER MOTHER. LATER, THE WOMAN MANAGED TO TRAVEL TO ISTANBUL VIA IRAN. ACCORDING TO THE DECEMBER 2005 MIGRATION LAW, THE GOTX ALSO MAY PREVENT ITS CITIZENS FROM TRAVELING ABROAD IF THE GOTX BELIEVES THE TRAVELER MAY FALL VICTIM TO TRAFFICKING. (NOTE: THIS PROVISION IS WIDELY VIEWED AS YET ANOTHER MEANS FOR THE GOTX TO PREVENT FOREIGN TRAVEL IN GENERAL, AND NOT AS A BENEVOLENT WAY TO COMBAT TRAFFICKING. END NOTE.) ¶14. (SBU) THE MIGRATION SERVICE REPORTEDLY PUTS CITIZENS RETURNING FROM TURKEY WHO HAVE OVERSTAYED THEIR ONE-MONTH TOURIST VISA ON A 'BLACK LIST' OF PEOPLE WHO ARE NOT PERMITTED TO TRAVEL TO TURKEY FOR A CERTAIN PERIOD OF TIME. A SIMILAR LIST ALLEGEDLY EXISTS FOR THOSE DEPORTED FROM TURKEY, ESPECIALLY THOSE ACCUSED OF WORKING AS PROSTITUTES. FOR THOSE ON THIS LIST THE TRAVEL RESTRICTIONS ARE LONGER IN DURATION, AND THE MIGRATION SERVICE MAKES A PHOTOGRAPHIC RECORD OF THE OFFENDERS ON RETURN AT THE AIRPORT. THE MIGRATION SERVICE SOMETIMES TAKES PROSTITUTES TO A MEDICAL FACILITY FOR HIV/AIDS AND SEXUALLY TRANSMITTED DISEASES EXAMINATIONS. ASHGABAT 00000545 004.3 OF 004 COMMENT -------------- ¶15. (SBU) OBSERVATIONS FROM LABOR MIGRANTS IN ISTANBUL SUGGEST THAT TURKMENISTAN'S LAW ENFORCEMENT MAY BE COOPERATING WITH TURKISH COUNTERPARTS TO INTERDICT TURKMENISTANI CRIMINAL GANGS AND PROSTITUTION IN TURKEY, ALTHOUGH THE GOTX PREDICTABLY HAS NOT PUBLICLY ACKNOWLEDGED THIS WORK. ADMITTING THE TABOO OF LABOR MIGRATION, LET ALONE THAT OF ITS ATTENDANT DARK SIDE OF TIP, CRIME, AND PROSTITUTION, WOULD DETRACT FROM THE IMAGE OF TURKMENISTAN AS A PROSPEROUS, UTOPIAN STATE, WHICH THE GOTX TRIES HARD TO MANUFACTURE AND PRESERVE. ¶16. (SBU) TURKMENISTANI LABOR MIGRATION TO TURKEY AND ELSEWHERE WILL CONTINUE AND COULD BECOME A SERIOUS SOCIAL AND HUMANITARIAN PROBLEM UNLESS JOB OPPORTUNITIES AND LIVING STANDARDS SIGNIFICANTLY IMPROVE INSIDE TURKMENISTAN. RESTRICTIVE TRAVEL MEASURES WILL NOT STEM THE FLOW OF PEOPLE LOOKING TO IMPROVE THEIR FAMILIES' LIVELIHOODS. MEANWHILE, ACKNOWLEDGING THE PROBLEM AND CARRYING OUT A PUBLIC AWARENESS CAMPAIGN WOULD BE THE MOST FITTING REMEDY. UNFORTUNATELY, THE GOTX DOES NOT ADMIT THAT SOCIO-ECONOMIC PROBLEMS EXIST. A BOLD MINISTER WHO RISKS THE DIRECT APPROACH WOULD MOST LIKELY EARN A "GO DIRECTLY TO JAIL" CARD FROM THE PRESIDENT. END COMMENT. BRUSH