İKV Uzman Yardımcısı Deniz Bal tarafından kaleme alınan "Between Borders and Belonging: Migrant Integration in the EU and Türkiye" başlıklı İngilizce politika notu, İKV Politika Notu serisinden yayımlandı.

Between Borders and Belonging: Migrant Integration in the EU and Türkiye

Deniz Bal, IKV Junior Researcher

Migration constitutes a fundamental reality of the contemporary world. Escalating crises, economic instability, and climate-related challenges continue to drive migration flows globally. States have not always been adequately equipped or effective in addressing the complexities associated with this phenomenon. Migration presents a multifaceted challenge, impacting national security, labour markets, and cultural cohesion.

While the issue may be further classified into specific dimensions, a critical question remains: to what extent have governments invested in integrating migrants? In many cases, state authorities and public segments tend to attribute national hardships to migrant populations. However, such narratives often oversimplify the situation, disregarding the fact that migrants are frequently uninvolved in the root causes of these problems. As accessible targets, migrants are often subjected to blame, irrespective of their actual impact.

This article aims to examine the integration policies of the European Union and Türkiye. Although the characteristics of their respective migrant populations differ, both have received substantial numbers of migrants annually and face similar challenges in policy formulation and implementation.

EU’s Integration Policy

The attractiveness of European countries to migrants has not been uniform. It has varied depending on time and each country’s social and economic circumstances. Therefore, multiple factors have driven migration flows into Europe. On the one hand, unequal development and political instability; on the other hand, demographic and economic changes within Europe have contributed to demand-driven migration.[1] Migration patterns also differ across European countries. These differences reflect their distinct histories: countries like Switzerland, Belgium, and France have a pre-war and post-WWII continuity in migration; others, such as the United Kingdom, Sweden, Germany, Austria, and the Netherlands, experienced significant migration following WWII; while countries like Italy, Spain, Portugal, Greece, and Ireland have more recently transitioned from emigration to immigration destinations. [2] Today, nearly all European countries serve as major points of attraction for migrants.

Alongside its migration and asylum policy, the EU has implemented a migrant integration policy dating back to 2004. Following the adoption of the Tampere Programme in 1999, the EU initiated cooperation on the integration of third-country nationals. [3] In 2004, the Common Basic Principles for Immigrant Integration Policy were established, providing a solid foundation for a comprehensive approach to integration. These principles guide EU Member States in the development of effective integration strategies and facilitate multilevel cooperation among EU, national, regional, and local authorities. Furthermore, they provide a basis for the assessment of EU instruments aimed at enhancing future integration policies. A total of eleven principles has been established:[4]

1. Integration is a dynamic, two-way process of mutual accommodation by all immigrants and residents of Member States.
2. Integration implies respect for the basic values of the European Union. 
3. Employment is a key part of the integration process and is central to the participation of immigrants, to the contributions immigrants make to the host society, and to making such contributions visible.
4. Basic knowledge of the host society’s language, history, and institutions is indispensable to integration; enabling immigrants to acquire this basic knowledge is essential to successful integration.
5. Efforts in education are critical to preparing immigrants, and particularly their descendants, to be more successful and more active participants in society.
6. Access for immigrants to institutions, as well as to public and private goods and services, on a basis equal to that of national citizens and in a non-discriminatory way, is a critical foundation for better integration.
7. Frequent interaction between immigrants and Member State citizens is a fundamental mechanism for integration. The promotion of shared forums, intercultural dialogue, education concerning immigrants and their cultural backgrounds, and the enhancement of urban living conditions serve to strengthen engagement and mutual understanding between immigrants and Member State nationals.
8. The practice of diverse cultures and religions is guaranteed under the Charter of Fundamental Rights and must be safeguarded, unless practices conflict with other inviolable European rights or with national law.
9. The participation of immigrants in the democratic process and in the formulation of integration policies and measures, especially at the local level, supports their integration. 
10. Mainstreaming integration policies and measures in all relevant policy portfolios and levels of government and public services is an important consideration in public policy formation and implementation.
11. Developing clear goals, indicators and evaluation mechanisms are necessary to adjust policy, evaluate progress on integration and to make the exchange of information more effective. 

It is important to emphasize that the two-way process of integration places responsibility on both state institutions and the public. [5] Migrants are also expected to make efforts to integrate and respect EU norms and culture. Although the Tampere Programme envisioned a pluralist, rights-based model, it was never fully implemented. Over time, this model was weakened by legal and policy instruments that turned integration into a means of preserving Member States' sovereignty over immigration.[6]

While these principles are set at the EU level, Member States maintain control over their integration policies. Although various national models and programmes once coexisted, it is now argued that these models have become less distinguishable:[7]

• Multicultural model: Focuses on respecting and protecting cultural diversity, aiming to preserve the identity of immigrant populations (e.g., the Netherlands and Sweden).
• Assimilationism model (republican/universalistic): Prioritises equality among citizens, requiring immigrants to fully assimilate into dominant national values (e.g., France).
• Separation or Exclusionist model: Characterised by restrictive immigration laws and a goal of preserving the temporary status of migrants (e.g., Germany, Austria, and Flanders in Belgium).

While member states implemented their own rules, in 2005 the Common Agenda for Integration was introduced, and it assisted in applying the Common Basic Principles, the EU policy has been further formulated by the 2009 Stockholm Programme and the Europe 2020 Strategy. Followingly, in 2011, the European agenda for the integration of non-EU migrants and the Commission Staff Working Paper: EU initiatives supporting the integration of third-country nationals were prepared. In 2016, the Action Plan on the integration of third-country nationals was adopted by the European Commission to present a comprehensive framework for supporting Member States in terms of enhancing and empowering their integration policies and it defines the Commission’s concrete measures on implementation.[8]

Under the Action Plan 2016, the Commission set several policy priorities: pre-departure/pre-arrival measures, education, labour market integration and access to vocational training, access to basic services, active participation and social inclusion. To support implementation, the Commission also provided tools such as policy coordination and funding. Additionally, there are parts where the Member States should take responsibility for integrating the migrant population. [9]

Furthermore, the Action Plan on Integration and Inclusion 2021-2027 was adopted in 2020 which aims to help the Member States in terms of improving and empowering their integration policies. For that reason, it provides what the Commission will do and emboldens Member States to do more.[10] The Action Plan is based on certain principles and values: inclusive policies for all and work for everyone, integration as a two-way process, targeted support, early action and long-term investment, multi-stakeholder partnership.[11]

In March 2025, the Commission released its progress tracker on the latest Action Plan that shows the current situation:[12]

Table 1. Actions in Key Areas of Integration:

Resource: European Commission.

Table 2. Actions Supporting Effective Integration and Inclusion in All Sectoral Areas

Resource: European Commission.

Lastly, in 2024, the Pact on Asylum and Migration was introduced by the Commission. As part of the Pact, the Reception Conditions Directive contributes to guaranteeing people's rights by setting harmonised standards across the EU, ensuring adequate living conditions for asylum seekers, and strengthening safeguards, guarantees, and integration processes.[13]

Despite appearing constructive, the approach to integration remains controversial and departs from Tampere’s rights-based model, as the Commission prioritizes economic gains and the assimilative integration of desirable third-country nationals into the EU labour market over the promotion of equal rights for immigrants.[14] There is also criticism about EU integration policy; it seems that it supports the strategic selection of the most socio-economically and culturally desirable migrants.[15]

Türkiye’s Policy on Migrant Integration

Türkiye -unlike the EU- does not have a long history of migration. The Syrian refugee crisis was a turning point in terms of Türkiye’s confrontation with the migration issue. Despite current issues, at the beginning, Türkiye chose to apply a welcoming approach. However, due to issues such as economic crisis and other political challenges, the migrant population has become an easy target for politicians who seeking to attract voters. Due to Türkiye’s geographical concerns, it decided to place a reservation on the 1951 Geneva Convention (accepting only Europeans fleeing persecution as refugees). As a result, Syrian refugees are classified as ‘asylum-seekers’ under temporary protection.[16] Both the public and the Turkish government have considered the time of Syrian refugees in Türkiye as something temporary. This situation has been reflected in Türkiye’s integration policies, which are mostly criticised as not being solid.

Table 3. International Conventions and Ratification Status-Türkiye[17]

Resource:IOM.

*Even though the Convention relating to the Status of Stateless Persons was not signed, it still influenced various provisions of Turkish Citizenship Law No. 5901.

Migrant integration had not been on the agenda until 2011. After the arrival of Syrian migrants, the Presidency of Migration Management-then called the Directorate General of Migration Management (Göç İdaresi Başkanlığı-Göç İdaresi Genel Müdürlüğü)- preferred to use the term ‘social cohesion’ (sosyal uyum) instead of ‘integration’, as they believed the term ‘integration’ might be perceived as assimilation.[18] According to the Presidency of Migration Management cohesion definition comes from the Article 96 of Foreigners and International Protection Law: cohesion refers to activities that provide foreigners with the knowledge and skills that will enable them to act independently, without the assistance of third parties, in all areas of social life in Türkiye, in the country to which they are resettled, or in their own country upon return.[19]

There are several cohesion activities has been conducted under the Presidency of Migration Management: Local Cohesion Meetings, Between Us Conversations, Neighbourhood Cohesion Meetings, Social Cohesion Workshop, Local Women’s Meetings, Cohesion in the Economy and Meetings with the Business World, Local Press Meetings, Social Cohesion Meeting for International Students and Academics, Public Institutions and NGOs Harmonization Meetings, Coming Together with Community Leaders, Child Protection Trainings, Interview Techniques Trainings, Psychological Resilience and Motivation Training, Peer Bullying, Xenophobia, and Emotional Safety Training, Social Cohesion Activities in Schools for Children, Health Literacy Trainings, Information Sessions for Children, Information Sessions for International Students, Information Sessions for Village/Neighbourhood Headmen (muhtars), Information Sessions for Women and Information Session for Persons with Disabilities.[20]

Cohesion is regulated by the 6458 Foreigners and International Protection Law. Accordingly, Türkiye prepared a Cohesion Strategy Document and the National Action Plan 2018-2023 was one of the steps that government took to facilitate migrant integration. The plan is expected to be implemented, monitored and evaluated under common norms such as an integrated approach, participation, openness and transparency, effectiveness and efficiency, and non-discrimination. [21]

Table 4. Cohesion Strategy Document and National Action Plan 2018-2023-Strategic Priorities

Towards Greater Inclusion of Migrants: What Can Be Done?

In this part Türkiye’s recent strategy will be compared with EU’s latest strategy on migrant inclusion. Thus, it will include suggestions in accordance with the EU Action Plan on Integration and Inclusion.[22] It should be highlighted that Türkiye’s recent strategy covers the years 2018-2023 and currently there is no new strategy for current and upcoming years.

Education

Türkiye’s social cohesion strategy includes strengthening efforts to enhance migrants’ access to education, sustaining their regular attention, supporting access to higher education and developing non-formal education programs. However, as the EU’s list is more detailed, it will provide more opportunities to increase efforts in education.

• Migrant children should be enabled to attend high-quality and inclusive early education care.
• Teachers should be provided with the essential skills, resources, and support needed to effectively handle multicultural and multilingual classrooms, ensuring positive outcomes for both migrant and native students.
• Collaborative learning communities involving schools, health and social services, and parents are established through a multi-stakeholder approach.
• Qualifications earned abroad should be recognised quickly and with greater ease.
• A greater number of migrants should take part in comprehensive language training and civic orientation programs that begin upon arrival and continue throughout their integration process.

Employment and Skills

In Türkiye’s strategy the goals are more generic. It focuses on analysing the employment of migrants, the identification of migrants’ qualifications and the protection of labour rights. It would be better to include detailed goals.

• There should be enhanced collaboration among key labour market stakeholders and migrants at the EU, national, and local levels.
• Migrant entrepreneurs, including social entrepreneurs, should benefit from increased support through easier access to financing, training, and advisory services.
• A higher number of migrant women should be engaged in the labour market.
• The assessment of migrants’ skills becomes more efficient and quicker; upskilling and reskilling are continuously promoted, including through recognition of non-formal and informal learning.
• More migrants should take part in high-quality Vocational Education and Training programs.

Health

Türkiye’s strategy includes easy access to health services, ensuring that health services are sensitive to migrants’ needs and effective in monitoring and evaluating. However, there is no information on whether the migrants have equal access to citizens. Additionally, migrant women’s health issues are not specifically focused.

• Migrants and citizens with a migrant background should be informed about their rights and have equal access to regular healthcare services, including mental health care, under national laws and practices.
• The specific challenges faced by migrant women, such as prenatal and postnatal healthcare, are fully considered when facilitating their access to health services.

Housing

There is no targeted strategy in terms of housing in Türkiye’s strategy.

• Migrants and citizens with a migrant background should have access to adequate and affordable housing, including social housing.
• Local and regional authorities should benefit from a broad set of tools and best practices to combat discrimination in the housing market.
• Innovative housing solutions that promote inclusion and prevent segregation should be widely implemented.

Apart from comparing with the EU’s strategy:

• Gender equality should be prioritised. The needs of migrant women differ from the needs of migrant men.
• Institutional capacity should be increased, and sufficient resources should be provided by the government.