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.


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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