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### Viewing cable 04ANKARA509, TURKISH REFUGEES IN IRAQ: BROAD CONSENSUS ON

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04ANKARA509 | 2004-01-27 08:48 | 2011-08-24 16:30 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Ankara

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    This record is a partial extract of the original cable. The full text of the original cable is not available.

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    UNCLAS SECTION 01 OF 08 ANKARA 000509

    SIPDIS

    SENSITIVE

    DEPT. FOR PRM, IO, EUR/SE AND NEA/NGA

    E.O. 12958: N/A
    TAGS: PREL PREF PHUM PTER TU IZ
    SUBJECT: TURKISH REFUGEES IN IRAQ: BROAD CONSENSUS ON
    CONTENT OF AGREEMENT REACHED BETWEEN TURKEY, IRAQ, US AND
    UNHCR

    REF: A. STATE 5739
         ¶B. 03 ANKARA 7213

    ¶1. (SBU) After three days of intense, hard-fought
    negotiations in Ankara January 20-22 between Turkish,
    Iraqi/CPA, US and UNHCR reps on a draft agreement for the
    repatriation of Turkish refugees from Iraq, the parties
    reached broad consensus on the content of an agreement.  A
    text reflecting that consensus was negotiated (text at para
    3) but was neither signed nor initialed, pending final
    approval from the negotiating parties.  The UNHCR and Iraqi
    reps were prepared to sign the document as is.  Turkey asked
    for a letter from the Secretary of State pledging the USG's
    support for the implementation of the agreement for its
    duration before Turkish reps would sign.  L and CPA General
    Counsel are currently reviewing the text in the context of
    the Turkish request.  The parties agreed that any required
    changes be circulated and agreed by fax, e-mail or diplomatic
    correspondence, and that signatures would be done by fax
    if/when final approvals are forthcoming.

    ¶2. (U) The Turkish side was represented by MFA Deputy
    Undersecretary Nabi Sensoy on Jan. 20 and by Director General
    for Multilateral Affairs Amb. Daryal Batibay Jan. 21-22, as
    well as Deputy DG for Multilateral Affairs Tunc Ugdul and
    Multilateral Affairs Deskoff Alp Ay.  The Iraqi/CPA
    delegation included Minister for Displacement and Migration
    Mohammed Jassim Khudayir al-Otbee, Ministry of Displacement
    staffer Mohammed Abdulaziz Hussein, CPA Senior Advisor to the
    Ministry of Displacement and Migration Jose Lamego and CPA
    Deputy Senior Advisor to the Ministry of Displacement and
    Migration Jennifer Johnson.  The UNHCR was represented by
    Assistant High Commissioner for Refugees Kamel Morjane (Jan.
    21 only), Europe Director Raymond Hall, Deputy Director of
    International Protection Wilbert van Hovell, Turkey Rep
    Gesche Karrenbrock, and Deputy Turkey Rep Steve Corliss.  The
    US delegation included Assistant Secretary for Population,
    Refugees and Migration Arthur Dewey, PRM Officer Andy Wyllie
    and Emboffs.

    ¶3. (SBU) The negotiated text under consideration reads as
    follows:

    VOLUNTARY REPATRIATION AGREEMENT

    The Government of Turkey, the Authorities in Iraq and the
    United Nations High Commissioner for Refugees (UNHCR)
    (hereinafter referred to as the &the Parties8),

    (a) Recognizing that the right of all citizens to leave and
    to return to their country is a basic human right enshrined,
    inter alia, in Article 13(2) of the 1948 Universal
    Declaration of Human Rights and Article 12 of the 1966
    International Covenant on Civil and Political Rights;

    (b) Recalling that the United Nations General Assembly
    Resolution 428 (V) of 14 December 1950, which adopted the
    Statute of UNHCR, ascribes to the High Commissioner the
    function of providing international protection to refugees
    and of seeking permanent solutions for the problems of
    refugees, inter alia, by promoting and facilitating their
    voluntary repatriation and re-integration in their country of
    origin;

    (c) Recognizing that voluntary repatriation, where feasible,
    constitutes the preferred durable solution for the problems
    of refugees, and that the attainment of this solution
    requires that refugees are able to return in conditions of
    safety and dignity;

    (d) Noting that Conclusions 18 (XXXI) and 40 (XXXVI) of the
    Executive Committee of the High Commissioner,s Programme
    constitute internationally accepted principles and standards
    governing the voluntary repatriation of refugees;

    (e) Noting with appreciation the stated willingness of the
    Government of Turkey to welcome back, in conditions of safety
    and dignity, all Turkish citizens present as refugees in
    Iraq, who wish to repatriate to and rebuild their lives in
    Turkey;

    (f) Agreeing on the closure of the relevant refugee camps in
    Iraq and in particular the Makhmour camp by finding
    appropriate durable solutions for the Turkish citizens
    present as refugees in Iraq who do not avail themselves of
    the voluntary return process;

    (g) Recognizing the need to define the specific procedures
    and modalities for the voluntary repatriation and
    reintegration of refugees from Turkey currently in Iraq with
    the assistance of UNHCR, as may be supported by other United
    Nations agencies and intergovernmental organizations, and
    where appropriate and with the consent of the relevant Party,
    by non-governmental organizations;

    Have agreed as follows:

    ARTICLE 1

    Definitions

    For the purpose of this Agreement,

    ¶1. The term &Authorities in Iraq8 shall, for the purpose of
    implementing this Agreement, comprise the Governing Council
    of Iraq and its successor(s), noting that the Authorities in
    Iraq will fully implement this Agreement in close
    coordination with the Coalition Provisional Authority during
    its mandate.

    ¶2. The term "refugee" shall mean any Turkish citizen, as
    defined in the Turkish Law on Nationality, who is living as a
    refugee in Iraq.

    ¶3. The term "returnee" shall mean any refugee as defined in
    paragraph 2 of this Article, who has voluntarily returned to
    Turkey pursuant to this Agreement.

    ARTICLE 2

    Establishment of a Voluntary Repatriation Commission

    A Voluntary Repatriation Commission is hereby established by
    the Parties.

    ARTICLE 3

    Composition of the Commission

    ¶1. The Commission shall comprise three members; each of the
    Parties shall designate a member. The delegation of Iraq will
    include a representative of the Coalition Provisional
    Authority throughout the duration of the Authority,s mandate.

    ¶2. Any Member of the Commission may be accompanied to its
    meetings by advisers.

    ¶3. Where a Member is unable to attend to any business of the
    Commission, that Member shall designate a substitute.

    ARTICLE 4

    Role and Function of the Commission

    The Commission shall consider and agree upon by consensus or
    advise the Parties on such matters or measures as may be
    necessary for the implementation of this agreement.

    ARTICLE 5

    Meetings of the Commission

    ¶1. Meetings of the Commission may be convened whenever
    necessary and at such venue as may be agreed upon.

    ¶2. The Commission shall adopt its own Rules of Procedure.

    ARTICLE 6

    Ad Hoc Arrangements/Liaison Officers

    The Parties shall designate Liaison Officers at their
    respective diplomatic Missions or, in the case of UNHCR,
    offices in Ankara, Baghdad and Geneva with powers to deal
    with unforeseen operational issues on an ad hoc basis.
    Liaison Officers will also be designated by the Coalition
    Provisional Authority throughout the duration of its mandate.

    ARTICLE 7

    Voluntary Character of Repatriation

    ¶1. The Parties hereby reaffirm that the repatriation of
    refugees relevant to Turkey shall only take place at their
    freely expressed wish based on their full knowledge of
    relevant facts.

    ¶2. The Authorities in Iraq shall ensure that the refugees can
    reach and express their decision without coercion,
    intimidation or threats from any persons who might be opposed
    to repatriation.  Any measures which may be necessary in this
    regard shall be taken in close consultation with UNHCR and in
    conformity with relevant standards of law.

    ARTICLE 8

    Freedom of Choice of Destination

    ¶1. The Government of Turkey agrees that the returnees shall
    be free in principle to return to, and settle in, their
    former places of residence or any other places of their
    choice within Turkey.  Exceptions to choice of settlement can
    be based on compelling reasons of security or administrative
    requirements in the interest of the individual concerned,
    such as the availability of public services, in which cases
    he/she shall be duly notified prior to return.

    ¶2.  Returnees will be entitled to assistance, as required,
    and their rights shall be respected in the framework of the
    Turkish law. Returnees shall benefit from the &Return to
    Villages and Rehabilitation Program8 to facilitate their
    settlement.

    ARTICLE 9

    Return in Safety and with Dignity

    ¶1. The Parties agree that the voluntary repatriation of
    refugees under this Agreement shall take place only when
    there exist conditions conducive to their return in safety
    and with dignity to places of final destination.

    ¶2. Whereas the Authorities in Iraq shall retain
    responsibility for the safety and security of the
    repatriating refugees while on the territory of Iraq,
    including in camps, transit facilities and during convoy
    movements en route to the designated border crossing points,
    the Government of Turkey shall be responsible for the safety
    and security of the returnees once within the territory of
    Turkey.

    ARTICLE 10

    Assurances upon Return

    ¶1. The Government of Turkey shall issue, in print as well as,
    when appropriate, through broadcast media, public messages to
    welcome and to encourage Turkish citizens present as refugees
    in Iraq to voluntarily repatriate in safety and dignity, and
    with the full enjoyment of their rights as citizens of the
    Republic of Turkey.

    ¶2. Refugees shall be notified, prior to return, whether or
    not they are subject to any pending criminal investigations,
    charges, or convictions in absentia with regard to any
    violation of Turkish laws. Any violation regarding the
    illegal exit from the country, shall be considered under the
    statute of limitation as stipulated in Article 102 of the
    Turkish Penal Code.

    ¶3. Refugees shall have full access to all legal remedies
    provided in accordance with Turkish law.

    ¶4. The Government of Turkey shall defer the commencement of
    military service by returnees for a period of 6 months upon
    their repatriation from Iraq.

    ¶5. The Government of Turkey shall ensure that returnees have
    access to land for settlement and use, in accordance with the
    relevant national laws.

    ¶6. The Government of Turkey shall facilitate, to the extent
    possible, the recovery and/or restitution to the returnees of
    land or other immovable or movable property which they left
    behind. Property records shall be freely accessible and
    available to all returnees.  The rights and benefits of this
    paragraph will also be applicable to the legal inheritors.

    ARTICLE 11

    Juridical Status and Equivalency

    The Government of Turkey shall accord legal recognition to
    births, marriages and deaths based on documentation certified
    by the recognized Iraqi authority or provided by UNHCR, and
    to adoptions, divorces and other changes of legal status as
    may be compatible with Turkish law. The Government of Turkey
    shall recognize to the extent feasible under existing
    regulations the equivalency of academic and vocational
    skills, diplomas and certificates obtained by the refugees
    while in Iraq.

    ARTICLE 12

    Citizenship

    To the extent children of refugees who are born in Iraq do
    not automatically possess Turkish citizenship, the Government
    of Turkey shall ensure that it be granted within a reasonable
    timeframe.

    ARTICLE 13

    UNHCR's Supervisory Role

    UNHCR's leading role in promoting, facilitating and
    coordinating voluntary repatriation of refugees as well as
    the monitoring of returnees in order to ensure that
    repatriation is voluntary and carried out in conditions of
    safety and dignity shall be fully respected by the other
    Parties.

    ARTICLE 14

    UNHCR Access to Refugees and Returnees

    ¶1. In order to be able to effectively carry out its
    international protection and assistance functions, UNHCR
    shall be granted free and unhindered access in Iraq to all
    refugees, and in Turkey to all returnees, wherever they may
    be located.  Likewise, all refugees and returnees shall be
    granted free and unhindered access to UNHCR.

    ¶2. The Government of Turkey shall, in particular, extend full
    cooperation to UNHCR to allow UNHCR to monitor the treatment
    of returning refugees in accordance with humanitarian and
    human rights standards, including the implementation of the
    commitments contained in this Agreement.

    ¶3. In order to enable UNHCR to carry out its monitoring
    functions in accordance with paragraph 1 and 2, the
    Government of Turkey shall inform UNHCR about every case of
    arrest, detention and legal proceedings involving returnees
    and grant UNHCR free access to returnees under arrest or in
    detention, in accordance with procedures under Turkish law.

    ¶4. The access provided to UNHCR under paragraph 1 shall, as
    appropriate, extend to inter-governmental organizations with
    which UNHCR may enter into agreements for the implementation
    of one or more components of the repatriation operation
    contemplated under this Agreement. The same applies for
    non-governmental organizations with the consent of the
    relevant Party.

    ARTICLE 15

    Information and Sensitization Campaign

    ¶1. UNHCR shall, in cooperation with the other Parties,
    organize a campaign to provide the refugees with objective
    and accurate information relevant to their repatriation to
    and reintegration in Turkey so that the refugees shall be
    able to make the decision to repatriate in full knowledge of
    the facts.  For this purpose, UNHCR shall be given free and
    unhindered access to areas from which the refugees originate,
    as well as, in accordance with Article 14, to any returnees
    living in the same areas.

    ¶2. The Parties shall, as appropriate, facilitate visits to
    Turkey and Iraq for the purposes of providing objective and
    transparent information, answering questions, communicating
    conditions of and upon repatriation, and inviting and
    welcoming the refugees back to Turkey.

    ¶3. The Government of Turkey shall take all necessary
    measures, with a view to creating conditions conducive to the
    reintegration of returnees in safety and dignity.

    ARTICLE 16

    Registration, Re-admission and Documentation

    ¶1. Pursuant to its mandated responsibility to ensure the
    voluntary character of the decision to return, UNHCR shall,
    in consultation with the other Parties, devise the most
    appropriate means for the interview and registration by UNHCR
    of those refugees who wish to repatriate.

    ¶2. UNHCR shall share all relevant registration data,
    including the intended place of return, with the Government
    of Turkey so as to enable where needed the establishment of
    proper reception and assistance arrangements.

    ¶3. The Parties acknowledge the importance of organizing an
    efficient voluntary repatriation process.  To this end, the
    Government of Turkey shall respond within four weeks with
    respect to each group not exceeding 250 returnees, including
    the required notification under Article 10 (2).

    ¶4. Duly completed UNHCR Voluntary Repatriation Forms (VRFs),
    the content of which shall be mutually agreed upon by the
    Parties, shall be recognized as valid identity documents in
    Iraq and Turkey and as travel documents for the purpose of
    the refugees' return to their final destinations in Turkey.

    ¶5. For the purpose of receiving and identifying the
    returnees, an interview will be conducted at the border by
    the relevant Turkish authorities.

    ¶6. The Government of Turkey shall ensure that returnees
    receive, in a timely manner, identity documents normally
    accorded to Turkish citizens.

    ARTICLE 17

    Preservation of Family Unity

    ¶1. In accordance with the principle of family unity, UNHCR,
    in cooperation with the other Parties, shall make every
    effort to avoid the involuntary separation of families.
    Where such efforts fail, a mechanism shall be established for
    their reunification in Turkey.

    ¶2. In order to preserve the unity of the family, non-Turkish
    spouses and/or children of repatriating refugees shall be
    allowed to enter and remain in Turkey and receive an
    appropriate legal status. The principle established herein
    shall also apply to non-Turkish spouses as well as children
    of deceased Turkish refugees who may wish to enter and remain
    in Turkey to preserve family links.

    ARTICLE 18

    Special Measures for Vulnerable Groups

    The Parties shall take special measures to ensure that
    vulnerable groups receive adequate protection, assistance and
    care throughout the repatriation and reintegration process.
    This is particularly relevant for single women, minors, the
    elderly and the handicapped.

    ARTICLE 19

    Designated Border Crossing Points

    The Parties shall agree on border crossing points for
    organized voluntary repatriation movements.

    ARTICLE 20

    Immigration, Customs and Health Formalities

    ¶1. To ensure the expeditious return of refugees and their
    belongings, the Authorities in Iraq and the Government of
    Turkey shall expedite their respective immigration, customs
    and health formalities carried out at border crossing points.

    ¶2. Refugees shall be entitled to bring with them, free from
    import duties, their personal effects. Refugee families shall
    be entitled to bring with them, free from import duties,
    their household effects. Other items will be governed by
    Turkish law and regulations.

    ¶3. In view of health regulations, livestock shall not be
    allowed to enter into Turkey.

    ARTICLE 21

    Movement and Security of UNHCR Staff and Resources

    ¶1.    The Authorities in Iraq and the Government of Turkey
    shall facilitate the movement of staff and personnel of UNHCR
    and of its approved implementing partners, as well as
    vehicles, relief goods and equipment used in the operation
    into, within and out of Iraq and Turkey. In particular, they
    shall authorize UNHCR to issue two-way cross-border travel
    authorizations, the format of which shall be mutually agreed
    upon by the Parties and UNHCR, to such staff and personnel
    for the duration of the repatriation operation.

    ¶2.  UNHCR shall duly inform the other parties of their staff
    involved in the operation at any one time, and notify them of
    changes as appropriate.

    ¶3. The Authorities in Iraq and the Government of Turkey shall
    take all feasible steps with a view to protecting the
    security and safety of UNHCR staff and all other personnel
    engaged in the repatriation operation provided for under this
    Agreement.  Security measures shall not compromise the
    principle of free and unhindered access to refugees and
    returnees, respectively, including the confidential nature of
    UNHCR,s monitoring contacts with them, as well as the purely
    humanitarian and non-political nature of UNHCR,s operations
    or the perception thereof.

    ARTICLE 22

    Re-integration Assistance

    The Government of Turkey shall facilitate the sustainable
    economic and social re-integration of repatriating refugees
    through the implementation of the &Return to Villages and
    Rehabilitation Program8 and other assistance measures as
    necessary.

    ARTICLE 23

    Relief Goods, Materials and Equipment

    ¶1. The High Commissioner shall use his best endeavours to
    obtain the resources required from the international
    community to carry out the repatriation operation and, if
    necessary, to provide re-integration support in addition to
    the re-integration programme of the Government of Turkey.

    ¶2. The Authorities in Iraq and the Government of Turkey shall
    exempt from the relevant taxes, duties and levies all relief
    goods, materials, equipment and means of transport destined
    for use in the repatriation and reintegration operation. They
    shall expedite the clearance and handling of such resources.
    Entrance of means of transport into Turkey will be within the
    framework of the provisional import regime of Turkey.

    ¶3. The Authorities in Iraq and the Government of Turkey
    hereby authorize UNHCR to use UN communications equipment,
    frequencies and networks and shall, whenever operational
    requirements make this necessary, facilitate the allocation
    of other frequencies. The relevant written authorizations for
    equipment, frequencies and cross-border networks shall be
    issued to UNHCR.

    ARTICLE 24

    UNHCR Field Offices

    UNHCR may, whenever required for the purpose of a more
    effective discharge of its responsibilities under this
    Agreement, establish Field Offices at locations to be agreed
    with the Party concerned.

    ARTICLE 25

    Continued Validity of other Agreements

    This Agreement shall not affect the validity of any existing
    agreements, arrangements or mechanisms of cooperation between
    the Parties.  To the extent necessary or applicable, such
    agreements, arrangements or mechanisms may be relied upon and
    applied as if they formed part of this Agreement to assist in
    the pursuit of the objectives of this Agreement, namely the
    voluntary repatriation and reintegration of refugees.

    ARTICLE 26

    Resolution of Disputes

    Any question arising out of the interpretation or application
    of this Agreement, or for which no provision is expressly
    made herein, shall be resolved amicably through consultations
    between the Parties.

    ARTICLE 27

    Entry into Force

    This Agreement shall enter into force upon approval by the
    Parties in accordance with their respective procedures, and
    notification thereof through diplomatic channels.

    ARTICLE 28

    Amendment

    This Agreement may be amended by mutual agreement in writing
    between the Parties.

    ARTICLE 29

    Review

    Towards the end of the duration of this Agreement, the
    Parties will evaluate progress achieved and work for setting,
    by consensus, a timeframe for achieving durable solutions for
    the Turkish citizens remaining in Iraq as refugees, and thus
    also allowing for the closure of the relevant camps in Iraq,
    and in particular the Makhmour camp.

    ARTICLE 30

    Termination

    This Agreement shall remain in force for one year unless
    extended by mutual agreement between the Parties.

    In witness thereof, the authorized representatives of the
    Parties have hereby signed this Agreement.

    DONE at , this day of . 2004, in three originals, in the
    English language, which will be the authoritative version for
    interpretation purposes.

    For the Government of Turkey
    Mr. Daryal Batibay
    Ambassador
    Director General for Multilateral Political Affairs
    Ministry of Foreign Affairs

    For the Authorities in Iraq
    Mr. Mohammed Jassim Khudayir
    Minister of Displacement and Migration

    For the United Nations High Commissioner for Refugees
    Mr. Raymond Hall
    Director of the Regional Bureau for Europe

    End negotiated text.

    ¶4. (U) Assistant Secretary Dewey has cleared this message.
    DEUTSCH

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