Local-level refugee integration within a context of multi-level governance: Turkey in comparative perspective

Refugee integration is a multi-level governance (MLG) issue in which municipalities play a central yet constrained role. This article asks under what conditions the downward shift of responsibility for refugee integration to municipalities yields local capacity. It argues that the answer lies in the interaction between the vertical dimension of multi-level governance, which is the distribution of mandates, authority and resources across levels of government, and its horizontal dimension, namely the involvement of non-state actors. The argument is developed through a structured comparison of three Mediterranean cases. Drawing on a qualitative most-similar case design, the study situates Turkey within a Mediterranean governance spectrum ranging from highly centralized systems to more decentralized models. While all three countries experienced significant post-2015 refugee arrivals and rely on municipalities as frontline actors, they differ in decentralization, engagement with international agreements, and the involvement of non-state actors. The article argues that responsibilities for refugee integration have increasingly shifted downward to municipalities without a corresponding transfer of authority or resources. By distinguishing the vertical and horizontal dimensions of MLG, the study demonstrates how similar regional pressures generate divergent municipal capacities.