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Turkey and the Palestinian Question
since al-Aqsa Intifada
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Bulent Aras*
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Turkey's Palestinian policy is something beyond of a mere foreign policy
behavior and reflects the movements of the fault lines in domestic politics,
societal balances and state-society relations. When these balances were
disrupted and tension in the state-society relations raised, Turkish foreign
policy distances itself from the Palestinian question. The state-society
relations in Turkey is not in peace with their own history and the tension
in these relations was reflected on certain foreign policy issues. The
Palestinian question has been a battleground that a number of different
identities struggled over it. The Palestinian question has been different
than other Middle Eastern problems and large segments of Turkish society
have kept in touch with Palestinian matters. The core of Palestinian question
for the Turks is the status of Jerusalem (Al-Quds) and who will control
the sacred places in the holy city. This has been one of the sensitive
foreign policy issues that Turkish society showed the utmost interest. In this article, I will analyze the Palestinian question in Turkish foreign
policy since Al-Aqsa intifada that emerged in October 2000. Ankara's foreign
policy toward the Middle East in the aftermath of the 28 February 1997
decisions have been hostage to relations with Israel in this region. The
28th February decisions were considered as the postmodern coup of the
military in Turkey and created an earthquake impact in domestic politics.
This soft coup also increased the bureaucratic control of foreign policy
and minimized the societal impact on it. It is not incidental that the
nationalist moment, the rise of human rights violations, disrespecting
rule of law and democratic institutions, and strenghtening of anti-EU
bloc coincided with the official policy's distancing from the Palestinian
question even at a time that tension in the occupied Palestinian lands
escalated to a dangerous extent and human sufferings reached to an unbearable
level. The September 11 attacks to the U.S. soil have consolidated the
current trends fostering the black and white perception of security issues
in the Middle East in the eyes of Turkish foreign policy makers. I argue
that this position is official Turkey's preference and there are alternative
policy lines offered at the societal level. The place of Palestinian question
in Turkish foreign policy will be analyzed within this framework that
incorporates a number of relevant factors to the discussion, in addition
to traditional foreign policy analysis. Identity and Foreign Policy Although the official identity was projected as a civic one, the burden
of the Ottoman imperial past and Kurdish rebellions in early periods of
the republic led to a shift to ethnic nationalism exclusively based on
Turkishness.(3) The early steps of the Kemalist long march toward westernization
were in conformity with creating an ethnic and homogenous national identity
at home. As Kýlýnç argued: "in the early Republican
era, there had not been seen identity crises. Contrarily, the foreign
policy extensions of the Turkish identity shows us that the westernization
and nationalism were the overlapping tendencies during the early Republican
period."(4) The 75 years of westernization process could not diminish
the material and mental differences between Turkey and Europe. Indeed,
the intrinsic enmity survived with the strengthening senses of Turkish
self and European other. The limited nature of Turkish westernization
comes to fore the limited scope of change, such as adoption of the Latin
script and family law changes. The new Turkish republic had a defensive character and it would not be
wrong to argue that this character is inherited from the Ottoman experience
of preserving the country in the last three centuries of the empire. Atatürk's
(the founder of modern Turkey) principle of "Peace at Home, Peace
in the World" has long been a dominant rallying cry, and foreign
policy makers have conducted foreign policies in an introverted and reluctant
manner. The paranoia, or Sevres Syndrome, which has a long history among
the Turkish people, is based on the notion that the country is surrounded
by enemies and constantly faces the danger of break-up or partition. This
distinctively Turkish view of the world still plays a vital role in shaping
the minds of Nationalist foreign policy makers. This explanation reminds
us of the Jutta Weldes' argument that: "insecurity is itself the
product of processes of identity construction in which the self and the
other, or multiple others, are constituted
they can all be seen as
resting on the assumption that identity and insecurity are produced in
a mutually constitutive process."(5) Thus, it is not appropriate to employ realist measures to explain Turkish
foreign policy behaviour. It has its own "rights and wrongs"
and is heavily value oriented. Namely, official identity defines the threats
based on its own culture of security. Foreign policies come to be extensions
of domestic politics and the "others" excluded during the construction
of the Kemalist identity provide negative input for foreign policy formulation,
making foreign policy hostage to considerations of the establishment identity.
In the end, ideological narrowing in domestic politics causes foreign
policies to be harsher, less sensitive to change and less flexible. Regional Dimension, the U.S. and Europe Turkish foreign and military policy could not catch the realities of
the post-Cold War and continue to play the U.S. outpost in the Middle
East taken its approval of the U.S. positions granted. Turkey was a loyal
ally of the Western bloc during the Cold War era. The relations between
the U.S. and Turkey were not free from frequent problems but Ankara never
had a privilege of being at odd with the American interests in the Middle
East. For example, during the Jupiter missile crisis, Turkish establishment
recognised that how a superpower can ignore the vital interests of a small
ally. Turkey's first serious encounter with the dominant elements of the
post-Cold War order was a similar experience since NATO did not guarantee
a joint action in case of Iraqi attack to the Turkish territories. However,
even under this condition, Turkey extended the utmost assistance to the
U.S. led coalition forces against Iraq. In the following period, there was an expectation that Turkish-American relations may face serious setbacks in result of the increasing sensitivities of human rights and democratisation issues in the U.S. foreign policy. The increasing role of ethnic lobbies and human right organisations led even to a congressional ban over delivery of the helicopters to Turkey in 1995. The congress made the release of the weapons conditional upon major developments in democratisation and human rights issues implying positive developments in Kurdish issue. However, the ban was lifted by the congress in 2000 and the continous top-level support to Turkey ranging from Pentagon to state department officials showed that there was no major breakthrough in bilateral relations.(6) Turkey's strategic importance was underlined by the state department's 1999 congressional presentation for foreign operations as follows:
A close look at the history of arms transfer to Turkey supports this
argument. The arms flow to Turkey increased in 1984 and this had nothing
to do with the Cold War since the Soviet Union was in a sharp decay.(8)
Noam Chomsky underlined this arms flow as a negative input to regional
order and stability resulting in an international clientelism and dependency
relations not much different than the Cold War era. He further added that
"in 1997, US military aid to Turkey was more than in the entire period
1950 to 1983."(9) One should add that 80 percent of the arms in Turkey
are of the U.S. origin. In this line of discussion, it is not possible
for Turkish establishment to support anti-Israeli policies, which would
be considered a major opposition to the U.S. interests in the Middle East.
The U.S. policy in the aftermath of the September 11 attacks has undergone
the influence of the hawks and turned to play aggressive hegemon in the
name of "war on terrorism." Increasing number of people in the
Middle East share the point of view that the U.S. policy makers tended
to destroy international law and international institutions in world scale
and the pretexts like "defending civilization" are no more valid
for finding receptive audiences. These policies would rather generate
more terrorism in the region. A headline on the front page of the New
York Times uncovered the understanding, which is gaining widespread acceptance
among the Western leaders and commentators. That is: "US Demands
Arab Countries Choose Sides."(10) The implication of this trend on
the Palestinian-Israeli conflict is to put the Palestinians into problematic
position, which is required to prove that they are in the "right"
side. In this line of logic, there was no questioning of the Israeli side,
since what is understood from terror is the one committed against the
U.S. and presumably to its proxies. In this context, the Turkish over-dependence
to the U.S. policies, which is fed by both material and ideational factors,
leaves no choice but to follow pro-U.S. and pro-Israeli policies that
would mean Turkish establishment's increasing detachment from its own
society and the regional realities. Despite the perceptions of its importance to the U.S., there is a historically
rooted suspicion about the European designs for Turkey. More important
for our discussion, Turkey's European Union membership also requires a
substantial change in Turkish foreign policy toward the Middle East. The
capitals of Ankara's neighbors will be among the main beneficiaries of
these prospective reflected changes. Indeed, Syrian deputy president,
Abdulhalim Haddam mentioned about this positive expectation during his
visit to Turkey in May 2001. He said that if Turkey has better and close
relations with the Arab countries, it may increase its leverage in the
negotiations with the European Union.(11) However, it is not possible
to argue that Arab countries and Organization of Islamic Countries (OIC)
are in a better position in supporting the Palestinians. The OIC failed
to take a united strong stand against Israel during its November 2000
meeting. This organization has been established in 1969 as a response
to Israeli attempts to damage al-Aqsa mosque. During the course of time,
the number of the member states increased and supposedly the OIC should
have increased its strength and capability to deal with the problems and
issues of the Muslim world. At present time, on the contrary, it is far
from defending Al-Quds from Israeli expansion and pictures the weakness
and disunity of the Muslim world in their vital issues.(12) Turkish establishment's foreign policy identity and their in-depth security
relations with the U.S. created an imaginary distance with the Palestinian
question. As a recent example, the leaders of Arab countries declared
to the U.S vice-president Dick Cheney during his Middle East tour in March
2002 that they can not bear the impact of two wars in case of the U.S.
attack to Iraq. The first war in their mind was the Palestinian-Israeli
war and they implied that an Iraqi operation may be acceptable if the
war in Palestine ends. However, Turkish prime minister made no reference
to the Palestinian issue and only expressed his concern over a possible
Kurdish state in case of Iraqi dissolution.(13) Turkish Policy since Al-Aqsa Intifada Turkish people's interests to the Palestinian question is not onesided
and there is a considerable attention to Turkish politics and foreign
policy in the Middle East. The Palestinian leader Yaser Arafat is a close
follower of Turkish politics and knows about Turkish society's sensitivity
of the Palestinian question. During an interview with a group of Turkish
journalists, Arafat said that: "I will accept the solution of the
Turkish people to the Palestinian question."(15) In this line, Turkish
security expert, Gencer Ozcan, argued that Turkey should be in the side
of the Palestinians and pointed out that Turkey is behind the French government
backing the Palestinians in their just struggle though French society
is even not close to Turkish society in supporting the Palestinians.(16)
Throughout the 1990s, fueled by the 28 February process, which served
as a civic façade for a soft military intervention, the main obstacle
to the further development of a state-society dialogue has been the state's
unwillingness to respond to the demands of the people. That is why state-society
relations in Turkey give an image of a dialogue of deaf and blind persons.
The state establishment preserves its suspicion of societal attempts and
frequently restricts their will and freedom of choice in a wide range
of issues. This is a natural result of having an apparatus of national
security state. For example, Turkey extended five hundred thousand dollars
to cover the losses of the Palestinians and this should be considered
as a decent attempt considering the recent severe economic crisis in Turkey.
However, state officials acted reluctantly to lift the legal barriers
to send private aid to the Palestinians despite the increasing demand.(17)
Hasmet Babaoglu, veteran journalist, rightly questioned the official indifference
to the escalating violence in occupied territories in March 2002.(18) The indifference was not only an issue in state circles but intellectuals
and media failed to respond adequately as well. Turkish people reached
to the timely analysis and knowledge of the violence in the occupied territories
from the European television channels and foreign reporters' articles
until the escalation of conflict in late March. It is worthy to note that
even this postmodern detachment could not prevent Turkish public to keep
their touch with the Palestinian cause. A poll conducted in October 2000
showed that 71 percent of Turkish society has an interest in Palestinian
affairs and 60 percent demand a more active Turkish role in behalf of
the Palestinian people.(19) Another one conducted in November 2000 showed
that 41 percent are in favour of delivering Jerusalem to Palestinian rule,
29 percent proposed autonomous administration, and only 2 percent favours
Israeli rule over the city.(20) A recent poll on the role of public opinion
in foreign policy showed that the Palestinians are in the fourth rank
in Turkish people's perception of friendship in international relations.
Turkish people's trust to the Palestinians is well above the trust to
the Israelis and the Americans.(21) There were widespread protests of Israeli expansion and violence in Palestinian
lands in March and April 2002. Different segments of Turkish society ranging
from political parties to gay communities joined their hands and hearts
for extending support to the Palestinians. In addition, the leaders of
three religious traditions-Islamic, Christian and Jewish-in Turkey jointly
released a declaration entitled "Istanbul call for peace" and
demanded immediate end to the violence, which can not be accepted by any
religious traditions.(22) The comments of Turkish President Ahmet Necdet
Sezer in the aftermath of the emergence of Al-Aqsa intifada that follow
clearly represented a response to the concern of Turkish society on this
issue: In contrary to the public sentiments, there are popular misperceptions
in Turkey's establishment media about the Palestinians and Arabs in general.
The most popular one is Arab's grabbing back of Ottoman-Turkish soldiers
in alliance with the British forces during World War I.(24) It is interesting
to note that this anti-Arab sentiment persists among establisment elite
and their self-dedicated media outlets. For example, Emin Colasan, in
the middle of the rising Israeli terror in the occupied territories questioned
the support to the Palestinians and further argued that Arabs are paying
the cost of grabbing back the Turks during WWI.(25) Thus, there was no
need to prevent the unjust cleansing of the Palestinian Arabs in their
historical lands. Second is Arafat's support and even his training of
the leftist terrorists operating in Turkey in 1970s. This idea is the
result of an ignorance about the non-controllable situation in Beqaa Valley
and Arafat's political strategies in those years. Third is alleged lack
of Arab support to Turkey in Cyprus question and a number of other vital
Turkish interests. This line of thought forgets the Turkish vote against
the Algeria's independence in the United Nations and the Arab planes carrying
aides to Turkey during 1974 Cyprus question. Turkish media in the aftermath of the Al-Aqsa intifada, highly mentioned
the inclusion of former president Suleyman Demirel to the special committee
to investigate the escalation of violence in the occupied territories,
which at the end prepared the Mitchell plan with virtually no impact on
the rising Israeli violence. Turkish contribution to this endeavor was
presented as the only probable contribution to the Palestinian cause.
Although only a limited number of columnist, the most prominent one was
of a sports reporter (Hasmet Babaoglu), underlined the serious crisis
emerged by the frequent rise of violence in occupied territories, an important
number of them only mentioned about Demirel's visit to the Palestinian
lands and also the letters sent by Turkish prime minister, Bulent Ecevit,
to the Palestinian and Israeli leaders to put an end to the violence.(26)
At the height of tension in March 2002, Turkish prime minister Bülent
Ecevit denounced Israeli occupation of the Palestinian areas as massacre.
However, in the immediate aftermath, he explained that the word "massacre"
was mistakenly used in his speech. This can hardly satisfy the domestic
constituency and international actors for an adequate Turkish contribution
to the solution of the question. Interestingly, at the same time, Turkey
signed almost a billion dollar worth weapon upgrade contract with Israeli
government that meant a net contribution to the Israeli economy, which
is in crisis following the Al-Aqsa Intifada. The September 11 attack to the U.S soil consolidated the black and white
perception of security matters in the eyes of the Turkey's foreign policy
and security elite. The world has been divided into two: those who are
in zone of peace and those who are in the zone of terrorism promoters.
The immediate impact of the September 11 in the Middle East has been strengthening
of the U.S. hegemony in the region. Turkey considers the worldwide seen
shot to the U.S. targets as an opportunity to explain what it is dealing
with in the almost last two decades, i.e. Kurdish separatism. Ankara kept
itself away from supporting any movement that is called independence struggle
since it may turn out to be used for the Kurdish insurgency in southeastern
Turkey. Policy entrepreneurs in Washington were quick enough to point
out the Palestinian intifada as a terror movement and this line of thought
provided a source of legitimacy to Turkish elite for distancing themselves
from the Palestinian matters. Conclusion The egocentric illusion of Turkish establishment, which thinks that they
can survive without adjusting their policies in accordance with the world
scale changes resulted in formulation of problematic foreign policy behaviors.
It is strange that they think they are doing right in a number of issues
that all else are wrong. The same illusion also misled them that they
can change or redirect world scale issues through home made initiatives.
The recent meeting of OIC and EU common forum in February 2002 is such
an example. One should question how such a meeting will serve for the
improvement of world system in tackling with the recruitment of the terrorism
while in a near geography Ankara's strategic partner pursues a planned
cleansing campaign against the Palestinians. For a long time, Turkish foreign policy was conducted without considering the anarchic order of international system and structural requirements of the regional policy. The historico-cultural tie between Turkey and the Middle East that goes back to early 16th century further complicates the situation. The foreign policy, first of all, has been detached from its societal roots, and been shaped by caution that pays utmost attention to save what already at hand, and daring that comes out of sub-consciousness of post-imperial state identity. Another important characteristic is the fact that official establishment's identity determines the national interest and foreign policy behavior and this situation makes foreign policy hostage to state elites' worldview and domestic political considerations. In this sense, when serious developments and changes occur in domestic policy or something incompatible with local balances happens, then foreign policy behavior sharpens and its ability to follow the regional and international balances diminishes. There is a direct relationship between Turkey's taking side with the Palestinians in their just struggle and the increasing respect for democracy and human rights, promotion of rule of law in the country, and fulfilling the requirements of integration to the European Union. Turkish establishment is not successful to follow these developments. Neither it succeeded to produce a political system that is shaped by societal demands, nor it wants to appropriate global norms and standards. * Bülent Aras is associate professor of international relations at Fatih University and editor of the Alternatives. NOTES | |||