Turkey: Background and U.S. Relations
Jim Zanotti
Specialist in Middle Eastern Affairs
December 20, 2013
Congressional Research Service
7-5700
www.crs.gov
R41368


Turkey: Background and U.S. Relations

Summary
Several Turkish domestic and foreign policy issues have significant relevance for U.S. interests,
and Congress plays an active role in shaping and overseeing U.S. relations with Turkey. This
report provides background information on Turkey and discusses possible policy options for
Members of Congress and the Obama Administration. U.S. relations with Turkey—a longtime
North Atlantic Treaty Organization (NATO) ally—have evolved over time. Turkey’s economic
dynamism and geopolitical importance have increased its influence regionally and globally.
Although Turkey still depends on the United States and other NATO allies for political and
strategic support, its increased economic and military self-reliance since the Cold War allows
Turkey relatively greater opportunity for an assertive role in foreign policy. Greater Turkish
independence of action and continuing political transformation appear to have been mutually
reinforcing—with both led for more than a decade by Prime Minister Recep Tayyip Erdogan and
the Islamist-rooted Justice and Development Party (AKP). However, it remains unclear how
Turkey might reconcile majoritarian views favoring Turkish nationalism and Sunni Muslim
values with secular governance and protection of individual freedoms and minority rights,
including with regard to Turkey’s Kurdish citizens.
The record of U.S.-Turkey cooperation during the Obama Administration has been mixed. To
some extent it mirrors the complexities that past U.S. administrations faced with Turkey in
reconciling bilateral alignment on general foreign policy objectives with substantive points of
disagreement involving countries such as Greece, Cyprus, Armenia, and Iraq. Patterns in the
U.S.-Turkey bilateral relationship indicate that both countries seek to minimize damage resulting
from disagreements. However, these patterns also suggest that periodic fluctuations in how the
two countries’ interests converge may persist. It is unclear how this dynamic might affect the
extent to which future U.S. approaches to regional issues involve Turkey, or might affect the
countries’ efforts to increase closeness in other facets of their political and economic relationship.
Congress has shown considerable interest in the following issues:
• U.S.-Turkey cooperation and consultation in the Middle East regarding major
regional security issues involving Syria, Iraq, Iran, and Afghanistan;
• Difficulties in Turkey’s relations with Israel, prospects of their improvement, and
how those might affect U.S.-Turkey relations;
• A possible deal between Turkey and a Chinese government-owned company to
co-produce a Turkish air and missile defense system, which could have
implications for U.S.-Turkey defense cooperation and for Turkey’s political and
military profile within NATO;
• A potential congressional resolution or presidential statement that could
recognize World War I-era actions by the Ottoman Empire (Turkey’s predecessor
state) against hundreds of thousands of Armenians as genocide; and
• Domestic developments in Turkey in light of major protests in June 2013,
possible power struggles among key individuals and groups amid still unfolding
corruption cases, and upcoming elections in 2014 and 2015.
Many U.S. policymakers also are interested in the rights of minority Christian communities
within Turkey; the currently stalemated prospects of Turkish accession to the European Union
(EU); promoting increased trade with Turkey; and Turkey’s role in the Cyprus dispute.
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Turkey: Background and U.S. Relations

Contents
Introduction and Issues for Congress ............................................................................................... 1
U.S.-Turkey Relations ..................................................................................................................... 5
Overview ................................................................................................................................... 5
Cooperation and Challenges in the Middle East and NATO ..................................................... 6
Impact of Public Opinion, Debate, and Reaction ...................................................................... 8
Bilateral and NATO Defense Cooperation ................................................................................ 9
Overview ............................................................................................................................. 9
Afghanistan ....................................................................................................................... 11
China-Turkey Air and Missile Defense Cooperation? ...................................................... 12
Country Overview ......................................................................................................................... 14
Recent History ......................................................................................................................... 14
Domestic Politics ..................................................................................................................... 15
June 2013 Protests ............................................................................................................. 16
Civil Society and Media Freedom ..................................................................................... 17
Fethullah Gulen Movement and AKP: From Common Cause to Tension?....................... 18
The Kurdish Issue .................................................................................................................... 19
Economy .................................................................................................................................. 21
Overview of Macroeconomic Factors and Trade .............................................................. 21
Energy Issues ..................................................................................................................... 23
Key Foreign Policy Issues ............................................................................................................. 25
Israel ........................................................................................................................................ 25
Syria ......................................................................................................................................... 27
Iraq ........................................................................................................................................... 30
Iran ........................................................................................................................................... 31
Possible U.S. Policy Options and Areas of Concern ..................................................................... 33
Influencing Regional Change and Promoting Stability ........................................................... 33
Arms Sales and Military/Security Assistance .......................................................................... 34
Possible “Armenian Genocide Resolution” ............................................................................. 36
Bilateral Trade Promotion ....................................................................................................... 37
Conclusion ..................................................................................................................................... 39

Figures
Figure 1. Turkey and Its Neighbors ................................................................................................. 4
Figure 2. Map of U.S. and NATO Military Presence in Turkey .................................................... 11
Figure 3. Major Pipelines Traversing Turkey and Possible Nuclear Power Plants ........................ 24

Tables
Table 1. Parties in Turkey’s Parliament ......................................................................................... 16
Table 2. U.S. Merchandise Trade with Turkey .............................................................................. 23
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Table 3. Significant U.S.-Origin Arms Transfers or Possible Arms Transfers to Turkey .............. 34
Table 4. Recent U.S. Foreign Assistance to Turkey ....................................................................... 36

Appendixes
Appendix A. Profiles of Key Figures in Turkey ............................................................................ 40
Appendix B. List of Selected Turkish-Related Organizations in the United States ....................... 43
Appendix C. Historical Context ..................................................................................................... 45
Appendix D. Various Religious and Social Groups in Turkey ...................................................... 46
Appendix E. Additional Foreign Policy Issues .............................................................................. 51
Appendix F. Congressional Committee Reports of Armenian Genocide-Related Proposed
Resolutions ................................................................................................................................. 55

Contacts
Author Contact Information........................................................................................................... 55

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Introduction and Issues for Congress
As global challenges to U.S. interests have changed over time, U.S. relations with Turkey—an
important North Atlantic Treaty
Organization (NATO) ally since the Cold
Turkey in Brief
War era—have evolved. Congress plays an
Population:
75,627,384 (2012 est.)
active role in shaping and overseeing U.S.
Area:
783,562 sq km (302,535 sq.
relations with Turkey. Several Turkish
mi., slightly larger than
domestic and foreign policy issues have
Texas)
significant relevance for U.S. interests.
Most Populous Cities:
Istanbul 13.85 mil., Ankara
4.97 mil., Izmir 4.01 mil.,
Gauging how U.S. and Turkish interests
Bursa 2.69 mil., Adana 2.13
coincide has become increasingly
mil. (2012 est.)
complicated. Political transition and unrest
Ethnic Groups:
Turks 70%-75%; Kurds 18%;
in the Middle East since 2011 appear to
Other minorities 7%-12%
have contributed to the following dynamic
(2008 est.)
between the two countries:
Religion:
Muslim 99.8% (Sunni 75%-
88%, Alevi 12%-25%),
• Turkish leaders seem to perceive a
Others (mainly Christian
need for U.S. help to defend its
and Jewish) 0.2%
borders and backstop regional
Literacy:
87% (male 95%, female 80%)
stability, given threats and potential
(2004 est.)
threats from various states and non-
% of Population 14 or
24.9% (2012 est.)
state actors; and
Younger:
• The United States may be more
GDP Per Capita:
$10,504 ($15,066 at
dependent on its alliance with
purchasing power parity)
(2012 est.)
Turkey to forward U.S. interests in
the region following the end of the
Real GDP Growth:
3.5% (2013 est.)
U.S. military mission in Iraq and
Inflation:
7.6% (2013 est.)
other possible future reductions in
Unemployment:
9.3% (2013 est.)
its Middle East footprint.
Budget Deficit:
1.6% (2013 est.)
These factors have led to frequent high-
Public Debt as % of
level U.S.-Turkey consultation on
36.0% (2013 est.)
GDP:
developments in Syria, Iraq, and the
External Debt as % of
broader region. The two countries may
44.4% (2013 est.)
GDP:
agree on a general vision of using political
Current Account
and economic linkages—backed by some
7.4% (2013 est.)
Deficit as % of GDP:
level of security—to achieve and improve
regional stability and encourage free
Sources: Turkish Statistical Institute; Economist Intelligence
Unit; Central Intelligence Agency, The World Factbook.
markets and democratic mechanisms.
However, it appears that they periodically
differ regarding how to achieve this vision, such as when questions arise about which third-party
actors—Israel, the Asad regime, Iraq’s government, Kurdish groups, Al Qaeda affiliates,
Palestinian factions, Iran, Russia, and China—should be tolerated, involved, bolstered, or
opposed. Priorities and threat perceptions may differ in part due to the United States’s
geographical remoteness from the region, contrasted with Turkey’s proximity.
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Members of Congress have expressed considerable interest regarding Turkey with respect to the
following issues and questions:
Addressing Regional Change in the Greater Middle East: Will Turkey’s policies
and actions be reconcilable with U.S. interests in countries such as Syria, Iraq,
Egypt, Tunisia, Libya, and Afghanistan with regard to various actors and desired
outcomes, particularly if they directly implicate Turkish security concerns or
involve Turkish territory, military bases, and/or personnel? To what extent is
Turkey willing and able to curb the influence of actors such as Iran that have
historically opposed U.S. regional influence?
Israel and the U.S.-Turkey Relationship: What are prospects for future Turkey-
Israel relations? How might these relations affect U.S. efforts at regional security
coordination? If Turkey-Israel tensions persist, should they affect congressional
views generally on Turkey’s status as a U.S. ally?
Turkey’s Relationships with China and Other Non-NATO Countries: How do and
should Turkey’s non-NATO relationships, especially its apparent intention—
announced in September 2013—to partner with a Chinese government-owned
company in developing an air and missile defense system, affect its political and
military profile within the alliance?
Armenian Genocide Resolution: What are the arguments for and against a
potential U.S. congressional resolution or presidential statement characterizing
World War I-era deaths of hundreds of thousands of Armenians through actions
of the Ottoman Empire (Turkey’s predecessor state) authorities as genocide?
How would such a resolution or statement affect U.S.-Turkey relations and
defense cooperation?
Rights of Non-Muslim Minority Religions: What is Congress’s proper role in
promoting the rights of established Christian and Jewish communities within
Turkey?
Many U.S. policymakers also are interested in the currently stalemated prospects of Turkish
accession to the European Union (EU); promoting increased trade with Turkey; and Turkey’s role
in the decades-long dispute between ethnic Greek and ethnic Turkish populations regarding
control of Cyprus.
Domestic developments in Turkey gained greater international attention in June 2013 when
protests of a construction project near Istanbul’s main square grew into more than two weeks of
generalized demonstrations criticizing the still-popular rule of Prime Minister Recep Tayyip
Erdogan and his Justice and Development Party (known by its Turkish acronym, AKP). The
authorities’ assertive actions to quell the demonstrations have been widely criticized, along with
Erdogan’s apparent acceptance and perhaps encouragement of political polarization in likely
anticipation of crucial 2014 and 2015 elections. Corruption cases that broke publicly on
December 17, 2013, could impact Turkey’s domestic trajectory because of allegations of criminal
misconduct that the cases reportedly bring against prominent people with ties to Erdogan—
including businessmen, bankers, a mayor of a prominent Istanbul district, and family members of
high-ranking government ministers.1 The cases may also heighten reported tensions between

1 “Turkey PM Erdogan condemns ‘dirty’ corruption probe,” BBC News, December 18, 2013.
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Turkey: Background and U.S. Relations

Erdogan and the Fethullah Gulen movement, a prominent civil society group (see “Civil Society
and Media Freedom”).2 The prosecutor leading the investigation is reportedly sympathetic to the
movement, and Erdogan has reportedly labeled the crackdown a “dirty operation.”3 The
government has reportedly dismissed or reassigned several high-ranking police officials in
Istanbul and Ankara since December 17.
As a result of the June 2013 protests, U.S. and EU officials and observers have perhaps become
more attuned to concerns regarding civil liberties and checks and balances in Turkey, partly
because of their potential to affect Turkey’s economic viability and regional political role.
However, it is unclear to what extent non-Turkish actors will play a significant role in resolving
unanswered questions regarding Turkey’s commitment to democracy, its secular-religious
balance, and its Kurdish question.
According to the Turkish Coalition of America, a non-governmental organization that promotes
positive Turkish-American relations, as of December 2013, there are at least 144 Members (138
of whom are voting Members) of Congress in the Congressional Caucus (including four Senators)
on Turkey and Turkish Americans.4

2 See, e.g., Henri Barkey, “Gul may be winner in Turkey’s ‘mother of all battles,’” Al-Monitor Turkey Pulse, December
18, 2013.
3 “Turkey PM Erdogan condemns ‘dirty’ corruption probe,” op. cit. One media article states, “As Mr. Erdogan has tried
to contain the fallout, he is blaming domestic conspirators and foreign meddlers, just as he did during last summer’s
protests,” Tim Arango, et al., “Growing Corruption Inquiry Hits Close to Turkish Leader,” New York Times, December
19, 2013.
4 See http://www.tc-america.org/in-congress/caucus.htm.
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Figure 1. Turkey and Its Neighbors

Source: CRS Graphics.

CRS-4

Turkey: Background and U.S. Relations

U.S.-Turkey Relations
Overview
The United States and Turkey have enjoyed a decades-long alliance. The calculations that led the
United States to invest heavily in Turkey’s defense and its military and economic development
during the Cold War have evolved as the dynamics within both countries and the regional and
global environments have changed. Another change has been Turkey’s decreased dependence on
U.S. material support and its increased assertiveness as a foreign policy actor, particularly in the
Middle East and within international institutions such as the United Nations and the G-20, where
it is scheduled to assume the yearly rotating presidency in 2015. One conceptualization of
Turkey’s importance to U.S. interests identifies it—along with India, Brazil, and Indonesia—as a
“global swing state” with the ability to have a sizeable impact on international order, depending
on how it engages with the United States and the rest of the world.5
At the outset of the Obama Administration, U.S. officials made clear their intent to emphasize the
importance of a multifaceted strategic relationship with Turkey. In April 2009, President Obama,
speaking of a “model partnership,” visited Turkey during his first presidential trip abroad and
addressed its Parliament in Ankara. He said that “Turkey is a critical ally…. And Turkey and the
United States must stand together—and work together—to overcome the challenges of our time.”
The record of U.S.-Turkey cooperation since then has been mixed. To some extent it mirrors the
complexities that past U.S. administrations faced with Turkey in reconciling bilateral alignment
on general foreign policy objectives with substantive points of disagreement involving countries
such as Greece, Cyprus, Armenia, and Iraq.6 For example, with regard to Iraq, Turkey cooperated
with the United States in the 1991 Gulf War and following the U.S.-led 2003 Iraq invasion, but
the Turkish parliamentary decision in 2003 not to allow U.S. forces to use its territory to open a
northern front significantly affected U.S.-Turkey relations. The decision showed the United States
that it could no longer rely primarily on past legacies of cooperation and close ties with the
Turkish military.7
Given Turkey’s increasing relevance as a Middle Eastern actor, U.S. officials seem to have
viewed Turkey as well-positioned to be a facilitator of U.S. interests in the region as the United
States has begun winding down its troop presences in Iraq and Afghanistan. Turkish Prime
Minister Recep Tayyip Erdogan and Foreign Minister Ahmet Davutoglu appear to have
encouraged this approach by articulating a vision through which they have indicated that Turkey
could help maintain regional stability while also promoting greater political and trade
liberalization in neighboring countries. This vision—aspects of which Davutoglu has expressed at
times through phrases such as “strategic depth” or “zero problems with neighbors”—draws upon
Turkey’s historical, cultural, and religious knowledge of and ties with other regional actors, as

5 Daniel M. Kliman and Richard Fontaine, Global Swing States: Brazil, India, Indonesia, Turkey, and the Future of
International Order
, German Marshall Fund of the United States and Center for a New American Security, November
2012.
6 For more background, see “Key Foreign Policy Issues” and Appendix E.
7 For further information, see archived CRS Report R41761, Turkey-U.S. Defense Cooperation: Prospects and
Challenges
, by Jim Zanotti.
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well as its soft power appeal as a Muslim-majority democracy with a robust and dynamic
economy.8
Cooperation and Challenges in the Middle East and NATO
Turkey’s regional political influence and expertise has been a key consideration in active U.S.-
Turkey efforts to coordinate policy on a wide range of important and complicated issues, and is
likely to continue to figure into U.S. regional calculations going forward. Nevertheless, some
events during the Obama Administration appear to show that Turkey’s ability to shape events may
be less than imagined or suggested—as in the case of its unsuccessful efforts to mediate an end or
reduction of civil conflict in both Libya and Syria.9 Also, as Turkey has increased its links to the
region, its heightened sensitivity to Middle Eastern public opinion, threats near its borders, and
dependence on neighboring countries’ energy sources have complicated its efforts to transcend
the region’s political, ethnic, and sectarian divides. In 2010, Turkey’s fallout with Israel over the
Gaza flotilla incident10 and its vote (in concert with Brazil) against U.N. Security Council
sanctions on Iran put it at odds with the United States on two key regional U.S. priorities.
Subsequent efforts to focus U.S.-Turkey regional cooperation on the post-conflict rehabilitation
of Iraq and political transition in Arab countries beset by turmoil since 2010-2011 have been
challenged by Turkey’s geographic proximity to conflict areas and apparent interest in working
with other actors espousing an overtly Sunni Muslim perspective. The idea of Turkey as a
“model” or example for Arab countries to follow, though still significantly popular according to
polling, appears to have less currency now.11 This may be in part because Islamist movements
that Erdogan and Davutoglu appeared to favor lost control of Egypt’s government to the military
in July 2013, and gradually lost control of the Syrian opposition to more extreme Islamist groups.
Turkey’s internal political controversies—particularly the June 2013 protests and reactions to it
by Turkish authorities, as portrayed in regional and international media—may have also reduced
its appeal to neighboring countries.12
Despite some challenges to U.S.-Turkey cooperation, the two countries appear to work frequently
to bring their policies closer together. Agreement by Turkey in 2011 to host a U.S. early warning
radar as part of a nascent NATO Active Layered Theater Ballistic Missile Defense (ALTBMD)

8 See, e.g., Ahmet Davutoglu, “Principles of Turkish Foreign Policy and Regional Political Structuring,” International
Policy and Leadership Institute and Economic Policy Research Foundation of Turkey (TEPAV), Turkey Policy Brief
Series, 2012 – Third Edition.
9 See, e.g., Council on Foreign Relations, U.S.-Turkey Relations: A New Partnership, Madeleine K. Albright and
Steven J. Hadley, Co-Chairs, Independent Task Force Report No. 69, 2012, p. 40.
10 The incident took place in May 2010 in international waters under disputed circumstances and resulted in the death
of eight Turks and an American of Turkish descent. It was predated by other signs of deterioration in Turkey’s
relationship with Israel.
11 Sevgi Akarcesme, “Turkey’s approval rating in Middle East down 10 percent from 2012,” Today’s Zaman,
December 3, 2013. Arab interpretations of the “Turkish model” tend to emphasize the recent democratic and economic
empowerment of Turkey’s middle class and the connection between this and Turkey’s emergence as a regional power
with a foreign policy independent of the West. Many analysts and Turkish officials have stated that Turkey might more
aptly be characterized as an inspiration than as a model because the historical experiences and characteristics of its
people, society, and economic system are distinct from those of Arab countries.
12 See, e.g., Tim Arango, “Turkey, Its Allies Struggling, Tempers Ambitions to Lead Region,” New York Times,
November 21, 2013.
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missile defense system for Europe13 went some way toward addressing U.S. questions about
Turkey’s alignment with the West on the Iranian nuclear issue. Similarly, after the manifestation
of U.S.-Turkey differences on various other issues, the Obama Administration has made repeated
efforts to clarify U.S. priorities, and Turkey has in many cases publicly indicated an effort to
move closer to U.S. positions or to deemphasize points of disagreement.14 Such cases include:
• Turkey’s troubled relations with Israel.
• Turkey’s possible support for, complicity with, or toleration of, Syrian oppositionists
affiliated with Al Qaeda.
• The effect on Iraq’s stability and national unity of Turkey’s energy dealings with the
autonomous Kurdish region in northern Iraq.
• Tensions between Turkey and the ethnic Greek-ruled Republic of Cyprus over Greek
Cypriot energy exploration in the Eastern Mediterranean.
Thus, patterns in the U.S.-Turkey bilateral relationship indicate that both countries seek to
minimize damage resulting from disagreements. However, these patterns also suggest that
periodic miscommunications among the countries and fluctuations in how their interests converge
may persist.15 It is unclear how this dynamic might affect the extent to which future U.S.
approaches to regional issues involve Turkey, or might affect the countries’ efforts to increase
closeness in other facets of their political and economic relationship.
Additionally, Turkey’s unwillingness or inability to project force into Syria in the face of
vulnerabilities it confronted from Syria’s internal conflict appears to have increased Turkey’s
dependence on U.S. and NATO security guarantees and assistance, at least in the near term.
Possible Turkish expectations of imminent U.S.-led military action in Syria appear to have
dissipated with President Obama’s acceptance in September 2013 of a U.N. Security Council-
backed agreement regarding chemical weapons removal. Consequently, Turkey may be assessing
how to gauge the likely nature and extent of U.S. involvement in current and future regional
crises, and how that might shape its own regional approach. For the time being on Syria, given
Turkey’s military constraints and geographic sensitivities, it may anticipate influencing outcomes
in its favor and minimizing vulnerabilities through political dealmaking with other regional and
international actors—probably including Russia, Iran, Iraq, the Asad regime, and various Kurdish
groups.

13 The proposed elements of the European Phased Adaptive Approach (EPAA) to missile defense proposed by the
Obama Administration, which represents the U.S. contribution to NATO’s ALTBMD system, and a deployment
timeline were described in a September 15, 2011, White House press release available at
http://www.whitehouse.gov/the-press-office/2011/09/15/fact-sheet-implementing-missile-defense-europe. This
document explicitly contemplates the EPAA as a means of countering missile threats from Iran. Then Deputy Assistant
Secretary of State for Arms Control, Verification and Compliance Frank Rose gave a speech in Warsaw, Poland, on
April 18, 2013 (available at http://www.state.gov/t/avc/rls/2013/207679.htm), that described how the EPAA has been
implemented and revised. See also CRS Report RL34051, Long-Range Ballistic Missile Defense in Europe, by Steven
A. Hildreth and Carl Ek.
14 See, e.g., Ali H. Aslan, “Zero Problems with the US?,” Today’s Zaman, November 17, 2013.
15 See, e.g., Bipartisan Policy Center, From Rhetoric to Reality: Reframing U.S.-Turkey Policy, Ambassadors Morton I.
Abramowitz and Eric S. Edelman, Co-Chairs, October 2013, p. 17.
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Turkey’s leaders openly speak of desires to strengthen the country’s self-sufficiency—including
in military and technological capacity. That may partly explain Turkey’s announced but
unfinalized September 2013 decision to develop a long-range air and missile defense system with
a Chinese government-owned company that is offering relatively favorable co-production and
technology sharing terms in comparison with competing U.S. and European offers. It is unclear
whether, over the long term, political and operational considerations will allow Turkey to expect
continued or improved protection from NATO’s ALTBMD architecture if it acquires an
independent, non-interoperable capacity in close cooperation with a potential U.S. rival.16 In
considering the potential missile defense deal, some Western observers are revisiting questions
about Turkey’s long-term commitment to NATO.17 Nevertheless, Turkish President Abdullah Gul
has stated that the CPMIEC deal “is not definite. There is a shortlist, and China is at the top of it.
We should look at the conditions, but there is no doubt that Turkey is primarily in NATO. These
are multi-dimensional issues, there are technical and economic dimensions and on the other hand
there is an alliance dimension. These are being evaluated.”18
Impact of Public Opinion, Debate, and Reaction
Public opinion may also affect Turkey’s future relationship with the United States and NATO.
According to a 2012 Council on Foreign Relations task force report co-chaired by former
Secretary of State Madeleine Albright and former National Security Advisor Stephen Hadley (the
“Albright-Hadley report”), “public opinion polls in Turkey consistently reveal unfavorable
impressions of the United States among the Turkish public.… This is a problem that can damage
the bilateral relations, especially now that public opinion matters more than ever before in
Turkish foreign policy.”19 Such unfavorable impressions, to the extent they exist, do so within a
context of Turks’ generally low favorability ratings for foreign countries.20 Many observers cite a
“Sèvres syndrome”21 among Turks historically wary of encirclement by neighboring and global

16 See, e.g., Nilsu Goren, “Turkey’s Air and Missile Defense Acquisition Journey Continues,” EDAM (Centre for
Economics and Foreign Policy Studies), Discussion Paper Series 2013/13, October 2013.
17 See, e.g., Daniel Dombey, “Doubts rise over Turkey’s ties to the West,” Financial Times, October 20, 2013. In April
2013, Turkey became a “dialogue partner” with the China- and Russia-led Shanghai Cooperation Organization (SCO).
Turkey is the only NATO member with a formal affiliation with the SCO, though it does not appear to have significant
influence with the organization.
18 “Turkey’s China deal on missile system not finalized, says President Gül,” Hurriyet Daily News, September 30,
2013.
19 Council on Foreign Relations, op. cit., p. 7. Other prominent reports on U.S.-Turkey relations in recent years include
an October 2013 report by the Bipartisan Policy Center that was co-chaired by former U.S. ambassadors to Turkey
Morton Abramowitz and Eric Edelman, op. cit., and a 2011 report by the Istanbul-based Global Relations Forum.
Global Relations Forum, Turkey-USA Partnership: At the Dawn of a New Century, Co-Chairs Fusun Turkmen and
Yavuz Canevi.
20 The Pew Research Global Attitudes Project indicates that 21% of Turks polled in 2013 had a favorable opinion of the
United States, up from 10% in 2011. However, unlike citizens polled from other Muslim-majority countries in the
region who had a significantly more favorable opinion of China than the United States, Turks’ favorability of China
was only six percentage points higher (27%). Poll results available at http://www.pewglobal.org/2013/07/18/americas-
global-image-remains-more-positive-than-chinas/.
21 Dietrich Jung, “Sèvres Syndrome: Turkish Foreign Policy and Its Historical Legacies,” American Diplomacy, August
2003; Transatlantic Academy Scholars Views on Turkish Public Opinion, October 1, 2009. This refers to the Treaty of
Sèvres agreed to in 1920 by the defeated Ottoman Empire with the Allied victors of World War I, which partitioned the
Empire among Britain, France, Italy, Greece, and Armenia. The treaty was annulled and superseded by the Turkish
War of Independence and the subsequent Treaty of Lausanne in 1923, which formalized the borders of the new Turkish
Republic.
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powers—especially Westerners. On the subject of a possible “Armenian genocide resolution” in
Congress (see “Possible “Armenian Genocide Resolution”” below), Turkish statements and
actions in response to past Congressional action suggest that any future action would probably
have at least some negative consequences for bilateral relations and defense cooperation in the
short term—with long-term ramifications less clear.
Negative U.S. public reactions to Turkish statements, actions, and perceived double standards
could also impact the bilateral relationship. According to a Turkish newspaper report, Turkey’s
reported disclosure to Iran in 2011—in apparent retribution for the 2010 Gaza flotilla incident—
of the identities of Iranians acting as Israeli intelligence sources led to Congressional rejection
(presumably informal) of Turkey’s longstanding request to purchase U.S. drone aircraft to counter
Kurdish militants.22 Additionally, negative statements about Israel and Zionism by Erdogan and
other Turkish leaders in relation to the flotilla incident, Israel’s treatment of Palestinians, and a
February 2013 international conference in Vienna, as well as allegations that Israel was behind
Egypt’s July 2013 military takeover, have generated substantial criticism by Obama
Administration officials and Members of Congress. This is exacerbated by Turkey’s cultivation of
ties with Hamas and refusal to characterize it as a terrorist organization. The optics of the
proposed missile defense deal with CPMIEC, due both to U.S. public sensitivities regarding
China and to CPMIEC’s subjection to U.S. sanctions for alleged proliferation-related dealings
with certain countries,23 could further complicate the public dimension of U.S.-Turkey relations.
The deal may be even more problematic given that it could be interpreted as a rejection of the
very U.S. Patriot missile defense batteries that are currently deployed under NATO auspices at
Turkey’s request to defend it from threats in Syria.
It remains unclear how trends or fluctuations in public opinion—when taken together with how
the countries’ leaders cooperate on strategic matters and with other factors such as trade, tourism,
and cultural and educational exchange—will affect the tenor of the U.S.-Turkey relationship over
the long term.
Bilateral and NATO Defense Cooperation24
Overview
The U.S.-Turkey alliance has long centered on the defense relationship, both bilaterally and
within NATO. Turkey’s location near several global hotspots makes the continuing availability of
its territory for the stationing and transport of arms, cargo, and personnel valuable for the United
States and NATO. Turkey’s hosting of a U.S./NATO early warning missile defense radar and the
transformation of a NATO air command unit in Izmir into a ground forces command appear to
have reinforced Turkey’s strategic importance for the alliance. For information on NATO’s role in
supporting Turkey’s defense in light of ongoing conflict in Syria, see “Syria” below.

22 “Report: US canceled delivery of Predators to Turkey,” Today’s Zaman, October 21, 2013, citing a report in Taraf.
23 CRS Report RL31555, China and Proliferation of Weapons of Mass Destruction and Missiles: Policy Issues, by
Shirley A. Kan.
24 For background information on this subject, see archived CRS Report R41761, Turkey-U.S. Defense Cooperation:
Prospects and Challenges
, by Jim Zanotti.
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As the military’s political influence within Turkey has declined, civilian leaders have assumed
primary responsibility for national security decisions. Changes in the Turkish power structure
present a challenge for U.S. officials accustomed to military interlocutors in adjusting future
modes of bilateral interaction. It might lead to an approach that is more multidimensional than the
well-established pattern some observers see in which the State Department and other U.S.
officials rely on the “Pentagon to wield its influence.”25
The largest U.S. military presence in Turkey is at Incirlik (pronounced in-jur-lick) air base near
the southern city of Adana, with approximately 1,500 U.S. personnel (plus approximately 3,500
Turkish contractors). Since the end of the Cold War, Incirlik has been used to support U.S. and
NATO operations in Iraq, Bosnia-Herzegovina, Kosovo, and Afghanistan. According to the
Bulletin of the Atomic Scientists
, Incirlik also is the reported home of vaults holding
approximately 60-70 U.S. tactical, aircraft-deliverable B61 nuclear gravity bombs under NATO
auspices.26 Turkey maintains the right to cancel U.S. access to Incirlik with three days’ notice.

25 Henri J. Barkey, “Turkey’s New Global Role,” Carnegie Endowment for International Peace, November 17, 2010.
The challenge for U.S. officials to manage cooperation with Turkey could be magnified by the way the U.S.
government is structured to work with Turkey. Former U.S. ambassador to Turkey Mark Parris has written, “For
reasons of self-definition and Cold War logic, Turkey is considered a European nation. It is therefore assigned, for
purposes of policy development and implementation, to the subdivisions responsible for Europe: the European Bureau
(EUR) at the State Department; the European Command (EUCOM) at the Pentagon; the Directorate for Europe at the
[National Security Council (NSC)], etc. Since the end of the Cold War, however, and progressively since the 1990-91
Gulf War and 9/11, the most serious issues in U.S.-Turkish relations – and virtually all of the controversial ones – have
arisen in areas outside “Europe.” The majority, in fact, stem from developments in areas which in Washington are the
responsibility of offices dealing with the Middle East: the Bureau for Near East Affairs (NEA) at State; Central
Command (CENTCOM) at the Pentagon; the Near East and South Asia Directorate at NSC.” Omer Taspinar, “The
Rise of Turkish Gaullism: Getting Turkish-American Relations Right,” Insight Turkey, vol. 13, no. 1, winter 2011,
quoting an unpublished 2008 paper by Mark Parris.
26 Robert S. Norris and Hans M. Kristensen, “US tactical nuclear weapons in Europe, 2011,” Bulletin of the Atomic
Scientists
, vol. 67, no. 1, January/February 2011. Reportedly, the U.S. has approximately 150-200 B61 bombs in
Turkey, Belgium, Germany, Italy, and the Netherlands left over from their deployment during the Cold War. This
amount is a very small fraction of the over 7,000 U.S. tactical nuclear weapons stationed in Europe during the 1970s.
Ibid.
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Figure 2. Map of U.S. and NATO Military Presence in Turkey

Sources: Department of Defense, NATO, Hurriyet Daily News; adapted by CRS.
Notes: Al locations are approximate. The Incirlik and Kurecik bases are Turkish bases, parts of which are used
for limited purposes by the U.S. military and NATO. Additional information on the U.S./NATO military presence
in Turkey is available in archived CRS Report R41761, Turkey-U.S. Defense Cooperation: Prospects and Challenges,
by Jim Zanotti.
Since 1948, the United States has provided Turkey with approximately $13.8 billion in overall
military assistance (nearly $8.2 billion in grants and $5.6 billion in loans). Current annual military
and security grant assistance, however, is limited to approximately $4 million annually in
International Military Education and Training (IMET); and Nonproliferation, Antiterrorism,
Demining and Related Programs (NADR) funds (see Table 4 below).
Afghanistan
Turkey has twice commanded the International Security Assistance Force (ISAF) in Afghanistan
and has had troops participating in ISAF since shortly after its inception in December 2001.
Turkey’s approximately 2,000 troops concentrate on training Afghan military and security forces
and providing security in Kabul, where Turkey commands ISAF’s Regional Command-Capital, as
well as in Wardak (just west of Kabul) and Jawzjan (in northern Afghanistan) provinces. In
addition, some Afghan police are trained in Turkey.
As with several other NATO and non-NATO contributors to ISAF, Turkey’s troops are not
involved in combat. Turkey’s history of good relations with both Afghanistan and Pakistan and its
status as the Muslim-majority country with the greatest level of involvement in ISAF are thought
by some analysts to help legitimize ISAF’s presence. These relations could become more
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important to preparing Afghanistan for stable, self-sufficient rule, with the United States and other
ISAF countries scheduled to wind down their military presence in Afghanistan in future years.
China-Turkey Air and Missile Defense Cooperation?
As referenced above, in September 2013, Turkey announced that it had selected Chinese
government-owned CPMIEC as its desired contractor for a multi-billion dollar Turkish Long
Range Air and Missile Defense System (T-LORAMIDS). Turkey’s 2009 request for outside
tenders for an off-the-shelf version of T-LORAMIDS had been scrapped in January 2013 in favor
of a version that would feature Turkish co-production of the system, in line with Turkey’s general
procurement policy favoring technology acquisition that can bolster its self-reliance. Murad
Bayar, Turkey’s top defense procurement official, claimed that CPMIEC’s offer of the HQ-9/FD-
2000 system bested the competitors—including a U.S. Raytheon/Lockheed-Martin offer of a
Patriot PAC-3 system and bids from Italian/French and Russian contractors—on the basis of
price, co-production, and technology transfer criteria. Bayar has stated that Turkey plans to
finalize the deal with CPMIEC during the first half of 2014, and would evaluate other bids if
negotiations fail, possibly leaving the door open for the U.S. and European offers.
It is unclear to what extent Turkey might be actively seeking an improved U.S. offer, or to what
extent the U.S. bidders or U.S. officials are considering ways to persuade Turkey to change its
decision. Seven Senators sent a letter dated October 11, 2013, to Secretary of State John Kerry
and Secretary of Defense Chuck Hagel, urging them to “exert all available diplomatic pressure to
prevent Turkish procurement of a CPMIEC missile defense system and ensure NATO will never
allow such a system to be integrated into NATO’s security architecture,” and to “undertake a
comprehensive review of the security implications posed by this procurement and report back
with appropriate steps the U.S. and NATO should take to protect the security of classified data
and technology.”27 A letter raising similar concerns about the proposed deal was sent on
November 4, 2013, to Turkey’s U.S. ambassador Namik Tan by House Armed Services
Committee Chairman Howard “Buck” McKeon and Ranking Member Adam Smith.28 In the event
that the CPMIEC deal is finalized, Chinese personnel would likely receive significantly greater
access—including for purposes of training and consultation—to officials and organizations
associated with Turkey’s security establishment and defense industry.
The announcement of the possible Turkey-CPMIEC deal has prompted reactions of surprise and
concern from Western observers. U.S. and NATO officials, while acknowledging Turkey’s right
to make its own procurement decisions, have claimed that the Chinese system would not be
interoperable with NATO air and missile defense assets—including radar sensors—in Turkey.
Although two U.S.-based analysts maintain that interoperability may be technically possible, they
assert that “Turkey’s allies would make the political decision not to allow full integration,” taking
into account the “potential risk of Chinese infiltration or exfiltration of data.”29 In response to the
announced possible Turkey-CPMIEC deal, Senator Mark Kirk proposed S.Amdt. 2287 to the

27 The Senators are Mark Kirk, John Cornyn, Roger Wicker, John Barrasso, John Boozman, James Inhofe, and Ted
Cruz. A copy of the signed letter was provided to CRS by a Congressional office on December 13, 2013. The letter
states that if Turkey procures the CPMIEC system, possible responses could include “Turkish expulsion from the
NATO Air Defense Ground Environment and intensified scrutiny of all Turkey-NATO security cooperation activities.”
28 A copy of the signed letter was provided to CRS by a Congressional office on December 13, 2013.
29 Bulent Aliriza and Samuel J. Brannen, “Turkey Looks to China on Air and Missile Defense?,” Center for Strategic
and International Studies, October 8, 2013.
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National Defense Authorization Act for Fiscal Year 2014 (originally S. 1197, with the language
ultimately making it into H.R. 3304), which would prohibit any U.S. funding to be used to
“integrate missile defense systems of the People’s Republic of China into United States missile
defense systems.” One analyst asserts that lack of NATO interoperability could make the
CPMIEC offer significantly less cost-advantageous for Turkey in the long run.30
U.S. officials have additionally emphasized that CPMIEC is subject to U.S. sanctions under the
Iran, North Korea and Syria Nonproliferation Act (P.L. 106-178, as amended).31 One media report
cited an unnamed U.S. diplomat as saying that Turkish companies involved in co-production with
CPMIEC “would be denied access to any use of US technology or equipment in relation to this
program,” and as suggesting that such companies might also face difficulties in working with
U.S. products or technology on other projects.32 The diplomat reportedly compared this situation
with difficulties that the United States encountered in the past decade-and-a-half with Israel when
it sold drone aircraft to China.33 A Reuters article said that “Turkey’s missile defense deal could
also affect its plans to buy radar-evading F-35 fighter jets” from the United States.34
In defending Turkey’s decision to engage in co-production with a non-NATO country, Erdogan
and Bayar have referenced NATO member Greece’s previous procurement of a missile defense
system from Russia (another non-NATO country). One report claims that the Turkish military is
unhappy that it might acquire “second-hand, not battle-tested and cheap Chinese missiles,” while
also claiming that the military is “mad” because U.S. companies did not offer more generous
technology transfer terms.35 President Gul’s statement (cited above) insisting that the deal “is not
definite” and that “Turkey is primarily in NATO”36 hints at an apparent awareness that
U.S./NATO scrutiny of the possible deal probably considers its overall context. This includes
potential Western geopolitical rivalry with China, Turkey’s greater assertiveness on the
international stage, and other steps—perhaps tentative and inconclusive—that Turkey and China
have taken to bolster political, military, and trade ties.37 Additionally, the McKeon-Smith letter
asserts that Turkey’s pursuit of a deal with CPMIEC seems to undermine its commitment to

30 Aaron Stein, “More thoughts on Turkey and Missile Defense Decision-Making,” Turkey Wonk, November 25, 2013.
31 CRS Report RL31555, China and Proliferation of Weapons of Mass Destruction and Missiles: Policy Issues, by
Shirley A. Kan.
32 Burak Ege Bekdil, “Turk Industry Could Face US Sanctions in China Air Defense Deal,” Defense News, November
19, 2013.
33 Ibid. See also CRS Report RL33476, Israel: Background and U.S. Relations, by Jim Zanotti.
34 Andrea Shalal-Esa, “Turkey asks U.S. to extend pricing on Raytheon missile bid: sources,” Reuters, October 28,
2013.
35 Lale Kemal, “Turkish military very unhappy with Chinese missiles, mad at US,” Today’s Zaman, November 5, 2013.
36 “Turkey’s China deal on missile system not finalized, says President Gül,” Hurriyet Daily News, September 30,
2013.
37 Although such steps have taken place, including the increase of bilateral trade volume to around $24 billion (from $1
billion in 2000), some degree of tension between Turkey and China persists over the imbalance of trade between the
two countries (in China’s favor), as well as over Turkey’s concerns regarding China’s treatment of Uighurs (who are
ethnically and linguistically akin to Turks) in its Xinjiang Province. Turkish and Chinese military units held joint air
and ground exercises in Turkey during 2010, but have apparently not done so since. One project showcasing increased
Turkey-China commercial relations is the involvement of two Chinese companies in the construction of a key section
of an Istanbul-Ankara high-speed railway projected to begin operating in early 2014. For additional information on the
dynamics of the Turkey-China relationship, see Karen Kaya, “Turkey and China: Unlikely Strategic Partners,” Foreign
Military Studies Office (Fort Leavenworth, Kansas), August 2013; and Chris Zambelis, “Sino-Turkish Partnership:
Implications of Anatolian Eagle 2010,” China Brief, vol. 11, no. 1, January 2011.
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NATO burden sharing, “even as Turkey would benefit from the defense capabilities of those
states which have deployed their own assets on Turkey’s soil to defend the Turkish people.”38
In addition to raising questions about Turkey’s overall foreign policy goals and relationships, it is
unclear what a CPMIEC missile defense deal would mean for Turkey’s defense posture. Is Turkey
seeking a system that could cover potential territorial gaps in NATO’s ALTBMD coverage? Is it
seeking a system that offers redundant or alternative protection in the event that NATO coverage
is technically deficient, or in the event that Turkey’s association with NATO provokes an
unacceptable level of regional threat? Does Turkey question the political will of other NATO
countries to come to its defense and stay engaged in the event of a conflict featuring missile
exchanges? Or is the Turkish decision on CPMIEC confined to the specific details of the
transaction with negligible connection to larger geopolitical or operational objectives?
Country Overview
Recent History
Since the 1980s, Turkey has experienced fundamental internal change—particularly the economic
empowerment of a middle class from its Anatolian heartland that emphasizes Sunni Muslim
values. This change has helped fuel continuing political transformation led in the past decade by
Prime Minister Erdogan, President Gul, and Foreign Minister Davutoglu (all of whom are
profiled in Appendix A). They all come from the Islamic-leaning AKP, which first came to power
in elections in 2002. For decades, the Turkish republic relied upon its military, judiciary, and
other bastions of its Kemalist (a term inspired by Turkey’s republican founder, Mustafa Kemal
Ataturk) “secular elite” to protect it from political and ideological extremes—sacrificing at least
some of its democratic vitality in the process. Through a series of elections, popular referenda,
court decisions, and other political developments within the existing constitutional order, Turkey
has changed into a more civilian-led system that increasingly reflects the new middle class’s
dedication to market economics and conservative values.
As discussed above, Turkey’s internal transformation has helped to drive increased engagement
and influence within its own region and internationally. At the same time, its leaders have tried to
maintain Turkey’s traditional alliances and economic partnerships with Western nations in NATO
and the EU, routinely asserting that Turkey’s location at the crossroads of Europe and Asia and its
soft power provides it and its allies with “strategic depth.” Thus, the geopolitical importance of
Turkey for the United States is now intertwined with its importance as an ally and symbol—
politically, culturally, economically, and religiously. Turkey’s future influence could depend on its
maintaining the robust economic growth from its past decade that has led to its having the world’s
17th-largest economy.
Popular discontent with coalition rule stemming from a 1999-2001 economic and financial crisis
and perceptions of government corruption and ineffectiveness opened the way for the AKP to
achieve single-party rule with its first election victory in 2002. Since the AKP came to power, the
military has reportedly become less scrutinizing of its rising officers’ religious backgrounds and
views; regulations on the consumption of alcohol have increased; Islamic education has been

38 See footnote 28.
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accorded greater prominence within the public school curriculum; and the wearing of headscarves
by women in government buildings, universities, and other public places has gained legal and
social acceptance. Such developments, among others, prompted this observation in the Albright-
Hadley report:
To ensure social stability and a democratic trajectory, it is thus incumbent on the new
establishment to reassure secular-minded Turks that their way of life has a place in Turkish
society, even if secularists failed to do the same for observant Muslims during their long
period of ascendancy.39
For additional historical context, see Appendix C.
Domestic Politics
Domestic Turkish political developments affect heightened concerns, fueled by June 2013
nationwide protests, about the country’s debate on religion in public life, press and civil society
freedoms, and the status of its Kurdish and other ethnic and religious minorities. (For information
about religious minorities in Turkey, see Appendix D.) Developments on domestic issues are in
turn likely to help determine and influence who shapes Turkey’s foreign policy and how they
conduct it. Erdogan, who still retains broad popularity according to polls, may seek the
presidency in Turkey’s first direct presidential elections40—scheduled for August 2014. However,
following the June 2013 protests, it seems increasingly unlikely that prior to these elections
Erdogan will obtain changes in the constitution investing greater power in the presidency.41 Local
elections, which are often used to gauge shifts in nationwide public opinion, are scheduled for
March 2014—preceding the presidential elections. Parliamentary elections are to take place in
June 2015.

39 Council on Foreign Relations, op. cit., p. 17.
40 Previously, the Turkish parliament elected the president by secret ballot.
41 Much speculation has surrounded Erdogan’s supposed preference for a more U.S.- or French-style presidential
system in Turkey, especially given expectations that he might be elected president. The AKP needs support from
outside the party to obtain the 60% parliamentary supermajority necessary to bring about a popular referendum on
amending or replacing the current constitution, whose core articles date to 1982. A constitutional commission
comprised since 2011 of the four parties in Turkey’s parliament has so far been unable to reach consensus on
constitutional change.
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Table 1. Parties in Turkey’s Parliament
(Based on national elections held in June 2011)
June 2011
Members of
Party
Vote
Parliament General
Orientation
Justice and Development Party (AKP)
49.8%
327
Economic liberalism, social
Leader: Recep Tayyip Erdogan
conservatism
Republican People’s Party (CHP)
26.0% 134
Social
democracy,
secularist
Leader: Kemal Kilicdaroglu
interests
Nationalist Action Party (MHP)
13.0% 53a
Turkish nationalist interests
Leader: Devlet Bahceli
Peace and Democracy Party (BDP)
6.6%b 34c
Ethnic Kurdish interests, social
Leader: Selahattin Demirtas
democracy
Sources: Turkish Grand National Assembly website; Ali Carkoglu, “Turkey’s 2011 General Elections: Towards a
Dominant Party System?” Insight Turkey, vol. 13, no. 3, summer 2011, pp. 43-62.
a. One MHP member was expel ed from the party just prior to the June 2011 elections but remained on the
electoral list and currently sits in parliament as an independent.
b. This is the percentage vote figure for the 61 BDP members or affiliated independents who ran in the
election as independents for individual geographic constituencies, as described in footnote 63.
c. This figure includes six independents with ties to the BDP.
June 2013 Protests
Nationwide protests broke out in Turkey in early June 2013 in response to a police crackdown on
May 31 against people demonstrating a government redevelopment project at Gezi Park in central
Istanbul. Despite minimal coverage of the unfolding events by Turkish broadcasters, Turks
informed largely through international media sources and Internet-based social media flocked to
the demonstrations, partly in response to dismissive remarks about the protestors by Prime
Minister Recep Tayyip Erdogan.42 Calls for Erdogan’s resignation were a common refrain among
protestors who may have perceived an increasingly authoritarian leadership approach from
Erdogan and the ruling AKP government. The protestors’ predominantly youthful and
cosmopolitan appearance and expressions of concern regarding Erdogan’s governing agenda led
many observers to speculate that concerns about possible imposition of Islamic norms on secular
lifestyles may have motivated the protests to some extent.43 An October 2013 report co-chaired by
two former U.S. ambassadors to Turkey (the “Abramowitz-Edelman Report”) stated that “rather
than calm tensions, Erdogan chose to solidify his base and rally his very sizeable group of core
supporters.”44 The report also stated that the protests “revealed potential fault lines among

42 In his initial responses to the growing protests, Erdogan dismissed the demonstrators as çapulcular (loosely
translated as “marauders,” “looters,” or “riff-raff”), and said that Twitter was a “menace.” Subsequently, some Turks
were reportedly arrested (though later released) for using Twitter to coordinate action in Izmir (Turkey’s third largest
city) during the first week of the protests.
43 John C. Hulsman, “Don’t Call It Spring: Turkey’s Decisive Turn Away from the West,” Limes (Revista Italiana de
Geopolitica
), July 8, 2013. The protests began days after the Turkish parliament passed a controversial law limiting the
advertisement and sale of alcohol in urban areas, which reinvigorated debate over the degree to which Erdogan and the
AKP are pursuing an Islamist agenda. Erdogan labeled opponents of the law “alcoholics” and, according to many
media sources, hinted that the same label applied to the first two leaders of Turkey’s secular republic—Mustafa Kemal
Ataturk and Ismet Inonu.
44 Bipartisan Policy Center, op. cit., p. 7. According to the Abramowitz-Edelman Report, “ruling officials have sought
(continued...)
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Turkey’s leaders, as President Gul and Deputy Prime Minister Bulent Arinc made more
sympathetic statements.”45
The on-and-off persistence of demonstrations for more than two weeks and the police’s use of
forceful crowd control measures such as tear gas and water cannon attracted international
attention. At least four people, including one police officer, reportedly died in association with the
protests,46 more than 5,000 were injured, and hundreds detained or arrested. Although the protests
tapered off in mid-June, occasional demonstrations or public forums have subsequently
convened—particularly in Istanbul—on a number of occasions. Hundreds of people nationwide
are reportedly facing criminal prosecution for actions related to the protests.47
The protests and the government’s response have raised questions for U.S. policymakers about
Turkey’s commitment to liberal democracy, its domestic political trajectory and economic
stability, and its already uncertain prospects for joining the EU. As discussed above, they have
also raised questions about the effectiveness and advisability of Turkey’s role in influencing
regional conflict and political change in Syria, Iraq, and North Africa.
Civil Society and Media Freedom
Even before the June 2013 protests, domestic and international observers had raised concerns
about Erdogan’s and the AKP government’s level of respect for civil liberties.48 Although
infringement upon press freedom is of routine concern in Turkey, measures taken by authorities in
recent years have been widely criticized as unusually severe and ideologically driven. These
measures include various means of criminal prosecution or reported intimidation,49 often under a
law on terrorism that many human rights organizations and international observers criticize for
being vague and overly broad.

(...continued)
to undermine the legitimacy of the protests by suggesting that they were organized by any one of a myriad of shadowy
groups, including the ‘interest rate lobby,’ German airlines, and Jews. Another common conspiracy theory has been
that the protestors were both secular extremists who attacked women in headscarves and Alevi agitators, possibly
mobilized by Syria and Iran.” Ibid, p. 20.
45 Ibid, p. 20. See Ibid., pp. 20, 25-27, for additional discussion of leaders’ reactions to the protests and various views
on Erdogan’s political approach and how his role may or may not change as a result of the upcoming electoral cycle.
46 “Senior UN officials urge restraint, dialogue to defuse tensions fuelling protests in Turkey,” UN News Centre, June
18, 2013.
47 Ayla Albayrak, “Six Months After Turkey Protests, the Reckoning Continues,” wsj.com, December 10, 2013.
48 Council on Foreign Relations, op. cit., p. 23: “In some areas, the AKP-led government has used the same
nondemocratic tools as its predecessor, making it appear no more liberal than previous Turkish governments.” See also
the U.S. State Department’s Country Reports on Human Rights Practices 2012. According to Reporters Without
Borders’s 2013 World Press Freedom Index, Turkey is the 154th “freest” country out of 179 evaluated, down six places
from 2012. The Committee to Protect Journalists reported in December 2013 that Turkey was the world’s leading jailer
of journalists for the second consecutive year (though the number reported declined from 49 in 2012 to 40 in 2013),
closely followed by Iran and China.
49 In late July 2013, the spokesman for Stefan Fule, the European Commissioner for Enlargement and European
Neighborhood Policy, was quoted as raising concerns about “measures taken against some journalists such as
dismissals and criminal sanctions.” A prominent journalist who was the ombudsman for the Turkish newspaper Sabah
was fired in July, weeks after making comments at a European Commission-sponsored conference in Brussels in which
he criticized “the Turkish government, the ownership of media by big business and some of his colleagues for
confusing journalism with political activism.” Selcuk Gultasli, “EU raises concerns on media freedom in Turkey after
Baydar fired,” todayszaman.com, July 25, 2013.
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In recent years, concerns about media and political association freedoms have been connected in
large part with two national issues: tensions involving Turkey’s Kurdish population (see “The
Kurdish Issue” below), and criminal investigations into the Ergenekon and Sledgehammer (or
Balyoz) cases. Ergenekon and Sledgehammer concern alleged plots to undermine or overthrow
the AKP government in the early 2000s.50 In September 2012, a civilian trial court convicted
more than 300 active and former military officers in the Sledgehammer verdicts, though more
than 60 have since been acquitted on appeal. In August 2013, another court convicted 275
defendants in the Ergenekon case, including active and former military officers (among them, a
former chief of staff), parliamentarians, and journalists. Appeals in both cases remain possible,
and could reach the European Court of Human Rights (ECHR).51 Many in the media claim that
even if some of the anti-government plots were real, authorities with pro-AKP leanings or
sympathies for the Fethullah Gulen movement (see a description of this movement below) have
used the allegations to intimidate, weaken, or punish political and ideological opponents.52
Fethullah Gulen Movement and AKP: From Common Cause to Tension?
The Gulen movement (see Appendix D for more details) is a prominent Turkish civil society
actor that many observers have characterized as having used its social connectedness and media
clout to ally itself with the AKP—particularly during the AKP’s first decade in power, as both
groups sought to curb the military’s control over civilian politics.53 The Gulen movement also has
a major international presence, including in the United States. Much domestic political discussion
now revolves around possible rifts between Erdogan and the Gulen movement that could raise
questions about the future of the AKP’s leadership of Turkey.54 A New York Times article covering

50 The existence and validity of evidence for these purported plots is vigorously disputed in domestic and international
circles. Gareth Jenkins, “Ergenekon, Sledgehammer, and the Politics of Turkish Justice: Conspiracies and
Coincidences,” MERIA Journal, vol. 15, no. 2, June 2011; Sedat Ergin, “The Balyoz case is actually starting now,”
hurriyetdailynews.com, September 28, 2012; Yildiray Ogur, “Listen, Balyoz is speaking,” todayszaman.org, September
24, 2012.
51 Turkey is subject to the ECHR’s jurisdiction. It has been a member of the Council of Europe since 1949.
52 See, e.g., Gareth Jenkins, “The Ergenekon Verdicts: Chronicle of an Injustice Foretold,” Turkey Analyst, vol. 6, no.
14, August 17, 2013. This report also alludes to an ongoing “spy ring” prosecution being conducted through an Izmir
court that has some aspects of similarity to the Ergenekon and Sledgehammer prosecutions.
53 See, e.g., Bayram Balci, “Turkey’s Gülen Movement: Between Social Activism and Politics,” Carnegie Endowment
for International Peace, October 24, 2013; Mustafa Akyol, “More Divisions, More Democracy,” New York Times,
December 11, 2013; Piotr Zalewski, “Turkey’s Erdogan Battles Country’s Most Powerful Religious Movement,”
time.com, December 4, 2013. The Gulen movement is a multifaceted array of individuals and organizations in Turkey
and other countries around the world. These individuals and organizations subscribe to or sympathize with the
teachings of Fethullah Gulen, a former Turkish state imam who currently resides in the United States. Many of the
movement’s adherents and sympathizers are among the most vocal supporters of the Ergenekon and Sledgehammer
prosecutions, probably at least partly owing to concerns about societal power dynamics and adherents’ and
sympathizers’ perceptions of vulnerability, justice, and/or retribution involving the military and other guardians of
Turkey’s secular elite. These concerns probably largely stem from the past prosecution of Fethullah Gulen, the
movement’s spiritual leader, under military-guided governments.
54 Apparent differences of opinion between Erdogan and the Gulen movement have surfaced in relation to a number of
issues in the past four years. In addition to the still developing corruption cases that broke publicly on December 17,
these issues include the prosecution of the Ergenekon/Sledgehammer cases, the Mavi Marmara/Gaza flotilla incident
and its repercussions for Turkey’s relationship with Israel and the United States, attempts by civilian investigators to
seek public testimony from Erdogan’s intelligence chief for dealings with PKK leaders, Erdogan’s response to the June
2013 protests, and the government’s late 2013 announcement of plans to require the eventual closure or repurposing of
tutoring centers (derşanes) that represent a major part of the Gulen’s movement’s influence.
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the corruption cases (discussed above) that broke in mid-December 2013, and may be connected
to these supposed rifts, asserts:
The current corruption investigation increases the pressure on Mr. Erdogan. He was already
facing opposition from the urban liberals and secular-minded Turks who found their voice in
the summer’s antigovernment demonstrations, and he is now facing cracks within his
conservative religious base, which represents half of the electorate in Turkey.55
However, it is unclear that either the AKP or the Gulen movement have viable substitutes to fill
the roles that each has previously played in support of the other.56 One observer wrote that one of
the more likely political steps for the Gulen movement to take could be to help President Gul
preserve or bolster his leadership role, perhaps as prime minister, in the event that Erdogan seeks
the presidency in 2014.57
Concerns about possible overreach by government authorities likely reflect anxieties among some
Turks. Given the weakening of the military within the political system, these Turks apparently
feel unsure to what extent effective checks and balances protect secular or nonreligious civic
participation and lifestyles from Erdogan’s charismatic and Islamic-friendly single-party rule,58 or
from allegedly Gulen-sympathetic judges and prosecutors. However, one Turkish journalist has
asserted:
It is beneficial for Turkish democracy that not all religious conservatives are united under
one banner. Thanks to the A.K.P.-Gulen rift, Turkish media is today more diverse, as pro-
Gulen newspapers like Zaman and television stations are offering a third way between Mr.
Erdogan’s supporters and his diehard opponents… If Turkey is lucky, this rift might help
bring the country to a democratic equilibrium where the prerogative of the state and the
rights of civil society and the individual can be properly balanced.”59
The Kurdish Issue
Ethnic Kurds constitute 15 to 20% of Turkey’s population. They are largely concentrated in urban
areas and the relatively impoverished southeastern region of the country, but pockets exist
throughout the country. Kurdish reluctance to recognize Turkish state authority—a dynamic that
also exists between Kurds and national governments in Iraq, Iran, and Syria—and harsh Turkish
measures to quell Kurdish identity- and rights-based claims and demands have fed tensions that
have periodically worsened since the foundation of the republic in 1923. Since 1984, the Turkish
military has waged an on-and-off struggle to put down a separatist insurgency and urban
terrorism campaign by the PKK (whose founder, Abdullah Ocalan, is profiled in Appendix A).60

55 Tim Arango and Sebnem Arsu, “Graft Inquiry Intensifies Turkish Political Rivalry,” New York Times, December 17,
2013.
56 Balci, op. cit.
57 Zalewski, op. cit.
58 For example, Erdogan’s statements in November 2013 criticizing co-ed housing arrangements among university
students has triggered heated public debate about the extent to which public officials should involve themselves in
conduct that many Turks regard as private. See, e.g., Sinan Ülgen, “Turkey needs more liberalism with its democracy,”
Financial Times, December 3, 2013.
59 Akyol, op. cit.
60 In footnote 2 of a September 2011 report, the International Crisis Group stated that Turkish government figures
estimate that 11,700 Turks have been killed since fighting began in the early 1980s. This figure includes Turkish
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The initially secessionist demands of the PKK have since evolved to a less ambitious goal of
greater cultural and political autonomy.
The struggle between Turkish authorities and the PKK was most intense during the 1990s, but
resumed in 2003 after the U.S.-led invasion of Iraq, following an intervening lull. According to
the U.S. government, the PKK partially finances its activities through criminal activities,
including its operation of a Europe-wide drug trafficking network.61 The PKK has used safe
havens in northern Iraq to coordinate and launch attacks at various points since the end of the
1991 Gulf War. Amid internal conflict in Syria since 2011, the PKK’s Syrian sister organization,
the Democratic Union of Syria (PYD), has gained a measure of control over a swath of Kurdish-
populated territory near Syria’s border with Turkey. This raises questions for Turkey about the
possibility of another base of support for PKK training, leadership, and operations.62
Turkey’s AKP government has acknowledged that
PKK Designations by U.S.
the integration of Kurds into Turkish society will
Government
require political, cultural, and economic
Designation
Year
development approaches in addition to the more
traditional security-based approach. The Turkish
Foreign Terrorist
1997
military’s approach to neutralizing the PKK has
Organization
been routinely criticized by Western governments
Specially Designated
2001
and human rights organizations for being overly
Global Terrorist
hard on ethnic Kurds—thousands have been
Significant Foreign
2008
imprisoned for PKK involvement or sympathies
Narcotics Trafficker
and hundreds of thousands have been displaced.
The AKP has a sizeable constituency in rural Kurdish areas because of its appeal to traditional
values. By appealing to common Islamic identity, Erdogan and other government ministers have
moved away from the state’s past unwillingness to acknowledge the multiethnic nature of
Turkey’s citizenry. The government has adopted some measures allowing greater use of Kurdish
languages in education, election campaigns, and the media.63 Nevertheless, past AKP efforts
aimed at giving greater rights to Kurds and greater normalized status to Kurdish nationalist

(...continued)
security personnel of various types and Turkish civilians (including Turkish Kurds who are judged not to have been
PKK combatants). The same report states that Turkish estimates of PKK dead during the same time period run from
30,000 to 40,000. International Crisis Group, Turkey: Ending the PKK Insurgency, Europe Report No. 213, September
20, 2011.
61 U.S. Treasury Department Press Release, “Five PKK Leaders Designated Narcotics Traffickers,” April 20, 2011.
62 However, northern Syria’s more open terrain and comparably small and dispersed Kurdish population may make it a
less plausible base of operations than Iraq. Syria hosted the PKK’s leadership until 1998, and historical and personal
links persist among Syrian Kurds and the PKK.
63 Kurdish nationalist leaders demand that any future changes to Turkey’s 1982 constitution not suppress Kurdish
ethnic and linguistic identity. The first clause of Article 3 of the constitution reads, “The Turkish state, with its territory
and nation, is an indivisible entity. Its language is Turkish.” Because the constitution states that its first three articles
are unamendable, even proposing a change could face judicial obstacles. Kurds in Turkey also seek to modify the
electoral law to allow for greater Kurdish nationalist participation in Turkish politics by lowering the percentage-vote
threshold (currently 10%) for political parties in parliament. In the 2011 election, 61 members of the Kurdish
nationalist Peace and Democracy Party (BDP) or affiliated independents ran as independents for individual geographic
constituencies because of a calculation that the party would not reach the 10% threshold. These independents won 35 of
the constituencies and 6% of the national vote. One has since died.
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leaders and former militants were politically undermined by upswings in violence and public
manifestations of nationalist pride among ethnic Turks and ethnic Kurds.64
Despite these negative signs, Prime Minister Erdogan publicly revealed in late December 2012
that Turkish intelligence had been conducting negotiations with imprisoned PKK leader Abdullah
Ocalan in an attempt to get the PKK to disarm. In late March 2013, Ocalan and other PKK
leaders declared a cease-fire, although its durability may depend on the government’s ability to
persuade the PKK and other Kurds that it sincerely seeks to address the issues of key importance
to them. PKK militants who had been withdrawing from Turkey (presumably to northern Iraq) as
part of the peace process reportedly stopped doing so in early September 2013.65 In late
September, Erdogan announced a package of domestic reforms that featured measures favoring
even greater expression of Kurdish identity and language in Turkish national life, alongside a
number of provisions contemplating electoral reform and intending to address some individual
liberties and the concerns of other minorities. Kurdish leaders generally acknowledged the reform
package as a step in the right direction, but as not going far enough.66
Observers express a range of opinions regarding the advisability and prospects of negotiations, as
well as the extent to which Ocalan and the PKK represent Turkey’s Kurds. Many observers agree
that Erdogan’s public acknowledgment of the talks was a bold step that could mobilize broad
public support for a deal, but that it also presented a dilemma: “continuing toward peace will
anger Turkey’s nationalists; but failing to live up to its agreement could lead to a new wave of
Kurdish violence.”67 Some commentators theorize that Erdogan authorized the PKK talks in 2012
to bolster prospects for his election to the Turkish presidency and for greater constitutional
empowerment of that office. Other theories suggested that Erdogan was trying to defuse potential
PKK threats from Syria or to take advantage of intra-Kurdish divisions and Ocalan’s personal
desire for freedom. In a February 2013 interview with a Turkish journalist, President Obama was
quoted as saying, “I applaud Prime Minister Erdogan’s efforts to seek a peaceful resolution to a
struggle that has caused so much pain and sorrow for the people of Turkey for more than 30
years.”68
Economy
Overview of Macroeconomic Factors and Trade
The AKP’s political successes have been aided considerably by robust Turkish economic growth
that was set back only briefly as a result of the 2008-2009 global economic crisis. Nominal gross
domestic product more than tripled from the time of the AKP’s first electoral victory in 2002 to

64 The International Crisis Group stated that the time period from the summer of 2011 until March 2013 featured the
worst fighting between the PKK and Turkish authorities since the 1990s, reporting that at least 928 people had been
killed in that time—“at least 304 security forces, police and village guards, 533 militants and 91 civilians.”
International Crisis Group, Crying “Wolf”: Why Turkish Fears Need Not Block Kurdish Reform, Europe Report No.
227, October 7, 2013.
65 Piotr Zalewski, “Turkey’s Imperfect Peace,” foreignaffairs.com, October 20, 2013.
66 See, e.g., Ilter Turan, “Democratization from Above: Erdoğan’s Democracy Package,” On Turkey, German Marshall
Fund of the United States, October 22, 2013.
67 Bipartisan Policy Center, op. cit., p. 8.
68 Interview of President Barack Obama by Pinar Ersoy of Milliyet, quoted in “Obama ‘applauds’ Turkey’s effort to
find peaceful solution to Kurdish problem,” hurriyetdailynews.com, February 10, 2013.
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2010. Growth rates, fueled by diversified Turkish conglomerates (such as Koc and Sabanci) from
traditional urban centers as well as “Anatolian tigers” (small- to medium-sized, export-oriented
businesses concentrated in central and southern Turkey), have been comparable in the past decade
to those of China, India, and other major developing economies. The dependence of Turkey’s
economy—saddled with a relatively high current account deficit—on foreign capital and exports
has led to challenges stemming from the economic slowdown in the European Union, Turkey’s
main trading partner. According to the Turkish Statistical Institute, growth slowed from 8.8% in
2011 to 2.2% in 2012. According to the Economist Intelligence Unit, assuming that capital
inflows are not weaker than expected, a rebound in growth to 3.5% is forecast for 2013, and the
forecast for 2014 is 4% and closer to 5% for the subsequent four years.69
The Turkish lira, which has fallen against the dollar by around 15% in 2013, is one of several
emerging market country currencies that have experienced a recent drop in value that is probably
at least partly attributable to possible future tightening in U.S. monetary policy. Turkey’s central
bank raised interest rates twice—in July and August 2013—and “further monetary policy
tightening may be necessary to maintain investor confidence.”70 Media reports reveal a debate
over whether various legal, administrative, and investigative actions of the government might be
targeting key businesses and financial transactions for political reasons—including some related
to the June 2013 protests—and whether this might damage Turkey’s business and investment
climate.71
Structural economic goals for Turkey include incentivizing greater research and development to
encourage Turkish technological innovation and global competitiveness, harmonizing the
educational system with future workforce needs, encouraging domestic savings, and increasing
and diversifying energy supplies to meet ever-growing consumption demands. Through monetary
and fiscal policy and various regulatory practices, Turkish policymakers may seek to attract more
equity and foreign direct investment inflows and fewer short-term loans and portfolio inflows.
The former generally are accompanied by skill and technology transfers, while the latter are more
prone to sudden reversal.72
The European Union is Turkey’s main trading partner by far, while the United States is Turkey’s
fourth-largest trading partner (behind the EU, Russia, and China). Turkey is the United States’s
35th-largest trading partner.73 Though Turkish pursuit of new markets since 1992 has reduced
trade with the EU (from nearly 50% to less than 40%) and with the United States (from 9% to
around 5%) as a percentage of Turkey’s total trade, overall trade volume with both is generally
trending upward.74

69 Economist Intelligence Unit, Country Report: Turkey, generated December 2, 2013.
70 Ibid.
71 Alexander Christie-Miller, “Is Erdogan punishing a Turkish business empire for helping protesters?,” Christian
Science Monitor
, October 8, 2013; Erdal Saglam (translated into English by Timur Goksel), “Erdogan Flips on
Turkey’s ‘Interest Lobby,’” Al-Monitor Turkey Pulse, July 18, 2013.
72 See, e.g., Organisation for Economic Co-operation and Development Surveys: Turkey, July 2012.
73 Statistics on Turkey’s status relative to other U.S. trading partners compiled by U.S. International Trade
Commission, available at http://dataweb.usitc.gov/SCRIPTS/cy_m3_run.asp.
74 Turkish Statistical Institute, cited in Kemal Kirisci, Turkey and the Transatlantic Trade and Investment Partnership:
Boosting the Model Partnership with the United States
, Brookings Center on the United States and Europe, Turkey
Project Policy Paper Number 2, September 2013.
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Table 2. U.S. Merchandise Trade with Turkey
($ in millions)


2007 2008 2009 2010
2011 2012
Exports
6,500 9,960 7,090 10,550 14,660 12,580
Imports
4,600 4,640 3,660 4,200 5,220 6,230
Total
Volume 11,100 14,600 10,750 14,750 19,880 18,810
Source: U.S. Department of Commerce, Foreign Trade Division, U.S. Census Bureau.
Despite concerns by U.S. senior business executives regarding Turkey’s legal and regulatory
system and other issues according to a 2011 survey, 65% of these businesspeople would be
willing to invest further in Turkey. Additionally, 88% advocate more U.S. government
engagement with Turkey’s government to “improve the investment, market access, and operating
climate for US companies in Turkey.”75
Energy Issues76
Turkey’s importance as a regional energy transport hub elevates its increasing relevance for world
energy markets while also providing Turkey with opportunities to satisfy its own growing
domestic energy needs.77 Turkey’s location has made it a key country in the U.S. and European
effort to establish a southern corridor for natural gas transit from diverse sources.78 However, as
one analyst writes, “Turkey’s ability to effectively play the energy card to further its foreign
policy goals is limited by the extent to which the Turkish economy itself is dependent on energy
imports, particularly oil and natural gas from Russia and Iran.”79 Since 1991, trade with Russia as
a percentage of Turkey’s total trade has more than doubled—from 5% to over 11%—largely due
to energy imports. Additionally, a subsidiary of Rosatom (Russia’s state-run nuclear company)
has entered into an agreement to build and operate what would be Turkey’s first nuclear power
plant80 in Akkuyu near the Mediterranean port of Mersin, with construction projected to begin in
2016. Iran is also a major source of Turkish energy (see “Iran” below).

75 American Business Forum in Turkey, Business and Investment Climate in Turkey 2011, October 2011.
76 Michael Ratner, Specialist in Energy Policy, contributed to this subsection. See “Israel” and Appendix E for
references to the possible relevance to Turkey of offshore natural gas finds by Israel and the Republic of Cyprus.
77 Transatlantic Academy, Getting to Zero: Turkey, Its Neighbors, and the West, June 2010, citing Turkish government
statistics.
78 The U.S. energy strategy in Europe is designed to work together with European nations and the European Union to
seek ways to diversify Europe’s energy supplies. The focus of U.S. efforts has been on establishing a southern corridor
route for Caspian and Middle Eastern natural gas supplies to be shipped to Europe, generally through pipelines
traversing Turkey. See H.Res. 284, “Expressing the sense of the House of Representatives with respect to promoting
energy security of European allies through opening up the Southern Gas Corridor.” This draft resolution was
unanimously approved for forwarding in September 2013 to the House Foreign Affairs Committee by its Subcommittee
on Europe, Eurasia, and Emerging Threats. See also, e.g., Tolga Demiryol, “Turkey’s energy security and foreign
policy,” Turkish Review, January/February 2012; Transatlantic Academy, op. cit.
79 Demiryol, op. cit.
80 In June 2008, the United States and Turkey signed a 15-year “123 Agreement” for peaceful nuclear cooperation in
line with international nuclear non-proliferation norms. Turkey is also a signatory to the Nuclear Non-Proliferation
Treaty (NPT) and has a safeguards agreement and additional protocol in place with the International Atomic Energy
Agency (IAEA). It is an observer to—not a full participant in—the International Framework for Nuclear Energy
Cooperation (IFNEC, formerly known as the Global Nuclear Energy Partnership) founded by the United States, Russia,
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However, in late 2011, Turkey and Azerbaijan reached deals for the transit of natural gas to and
through Turkey81 via a proposed Trans-Anatolian Pipeline (TANAP), with gas projected to begin
to flow by 2018. The deals have attracted attention as a potentially significant precedent for
transporting non-Russian, non-Iranian energy to Europe. On June 28, 2013, the consortium that
controls the Azerbaijani gas fields selected to have TANAP connect with a proposed Trans
Adriatic Pipeline (TAP) to Italy.82 The consortium did not rule out subsequently adding a
connection with a proposed Nabucco West pipeline to Austria at a later date when more natural
gas is developed, but such an eventuality may be less likely in light of the selection of TAP.
Turkey has also sought to increase energy imports from Iraq, including through negotiations
regarding northern Iraqi oil and gas reserves and pipelines with the Kurdistan Regional
Government that have generated friction with Iraq’s central government (see “Iraq” below).
Nevertheless, Turkey also agreed in late 2011 to permit Russia’s South Stream pipeline to traverse
its Black Sea territorial waters to Bulgaria (from which point the pipeline is proposed to extend
through the northern Balkans to Italy), reportedly in exchange for discounts to Turkey on
purchases of Russian natural gas.
Figure 3. Major Pipelines Traversing Turkey and Possible Nuclear Power Plants

Source: Turkish Economic Ministry, adapted by CRS.

(...continued)
China, France, and Japan in 2007. IFNEC promotes the peaceful use of nuclear energy by helping establish
reprocessing centers for nuclear fuel. Turkey is one of the regional countries that analysts routinely mention could
decide to pursue its own nuclear weapons program in the event that one or more countries in the region, such as Iran,
achieves or declares a nuclear weapons capability. Israel is generally believed by most analysts to have had a nuclear
arsenal since the late 1960s, but it maintains a policy of “nuclear opacity” wherein its nuclear weapons status remains
officially undeclared. For discussion of Turkey and nuclear weapons, see “Bilateral and NATO Defense Cooperation”
and archived CRS Report R41761, Turkey-U.S. Defense Cooperation: Prospects and Challenges, by Jim Zanotti.
81 The terms of Turkish-Azerbaijani agreement specified that 565 billion-700 billion cubic feet (bcf) of natural gas
would transit Turkey, of which 210 bcf would be available for Turkey’s domestic use.
82 BP press release, “Shah Deniz targets Italian and Southeastern European gas markets through Trans Adriatic
Pipeline,” June 28, 2013. For more information, see CRS Report R42405, Europe’s Energy Security: Options and
Challenges to Natural Gas Supply Diversification
, coordinated by Michael Ratner.
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Note: All locations are approximate.
Key Foreign Policy Issues
For information and analysis of foreign policy issues other than the ones below (including
European Union, Cyprus, Armenia, and others), see Appendix E.
Israel
In the 1990s and early 2000s, Turkey and Israel enjoyed close military ties that fostered
cooperation in other areas, including a free trade agreement signed in 2000. In recent years,
however, Turkey-Israel relations have worsened. This downturn can be attributed to a number of
factors, ranging from Turkish domestic political changes to specific incidents that increased
tensions. In terms of change within Turkey, the slide in Turkey-Israel relations reflected the
military’s declining role in Turkish society, and the greater empowerment of Prime Minister
Erdogan and other AKP and national leaders. These leaders seem to view criticism of Israel as
both merited and popular domestically and regionally. They often characterize Israeli security
measures in the West Bank and especially the Gaza Strip as institutionalized mistreatment of
Palestinians. Turkish leaders also have argued that Israel relies too heavily on military capabilities
and deterrence (including its undeclared but universally acknowledged nuclear weapons arsenal)
in addressing regional problems.
One of the key events that marked the decline in relations was the May 2010 Gaza flotilla
incident (mentioned above). Partly to register dissatisfaction with the September 2011 report
issued by a U.N. Secretary-General panel of inquiry on the flotilla incident,83 Turkey downgraded
diplomatic relations with Israel to the second secretary level.84 Turkey’s demand for an apology
from Israel in connection with the incident was met in March 2013, in a U.S.-facilitated exchange
(discussed further below) that was intended to repair the Turkey-Israel rift. Before this, Erdogan
prominently registered his disapproval of Israel’s military operations in Gaza in December 2008-
January 2009, reportedly angry that then Israeli Prime Minister Ehud Olmert did not inform him
of Israel’s military plans during Olmert’s visit to Ankara shortly before the conflict.
Turkey’s deteriorated relationship with Israel has presented problems for the United States
because of the U.S. desire to coordinate its regional policies with two of its closest allies. U.S.
officials seem to have concerns about the repercussions Turkey-Israel tensions could have for
regional order and the alignment of U.S. and Turkish interests. This risk could be especially high
if Turkey-Israel disagreements on Palestinian issues result in future high-profile incidents.

83 The report is available at http://go.ynet.co.il/pic/news/Palmer-Committee-Final-report.pdf. The panel was chaired by
former New Zealand Prime Minister Sir Geoffrey Palmer, and included former Colombian President Alvaro Uribe and
one participant each from Turkey and Israel. The report expressly provided that its findings were not intended to decide
legal questions. Upon the report’s leak, Turkish officials disputed the report’s finding that Israel’s naval blockade of the
Gaza Strip was legal, notwithstanding the report’s criticism of Israel’s handling of the incident itself.
84 Turkey similarly downgraded diplomatic relations with Israel in 1980 following Israel’s enactment of a law on the
status of Jerusalem that was deemed a violation of international law by U.N. Security Council Resolution 478.
Resolution 478 passed on August 20, 1980 by a vote of 14-0, with the United States as the lone abstention. Turkey
reinstated Israel’s ambassador in 1992 following the 1991 Madrid Conference that signaled the beginning of the Middle
East peace process. Linda Gradstein, “No end in sight for downward spiral in Turkish-Israeli ties,” JTA, September 6,
2011.
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Though Turkey publicly supports a negotiated two-state solution to the Israeli-Palestinian
conflict, it backs Palestinian pursuit of United Nations membership and Fatah-Hamas
reconciliation, and often criticizes the U.S.-led approach to the peace process. Erdogan also
maintains cordial ties with Hamas. In January 2012, he introduced Hamas’s prime minister in
Gaza, Ismail Haniyeh, as the “elected prime minister of Palestine” at a meeting of AKP
parliamentarians in Ankara.
Some Members of Congress have shown concern over problematic Turkey-Israel relations.85 In
early 2011, a New York Times Magazine article quoted a Turkish diplomat responsible for U.S.
relations as saying, “We’re getting a lot of flak from the Hill. We used to get hit by the Greek
lobby and the Armenian lobby, but we were protected by the Jewish lobby. Now the Jewish lobby
is coming after us as well.”86 A U.S.-based analyst who focuses specifically on Israel and Turkey
commented in March 2013 that “with the establishment of an Israel-Hellenic caucus in Congress
and arms deals with Turkey either being held up or not being introduced into committee at all,
there is no doubt in my mind that Turkey’s feud with Israel is adversely impacting its interests in
the U.S.”87
In March 2013, it appeared that Turkey and Israel might be moving toward some sort of
rapprochement. During President Obama’s trip to Israel, he and Secretary of State John Kerry
facilitated a telephone conversation between Erdogan and Israeli Prime Minister Binyamin
Netanyahu.88 Netanyahu apologized to Erdogan for any operational mistakes by Israel during the
flotilla incident “that might have led to the loss of life or injury” and pledged to conclude an
agreement on “compensation/nonliability.”89 The apology, on top of other signs that Turkey-Israel
relations were slightly improving,90 led to widespread speculation regarding how much and how

85 Following the flotilla incident, the Senate passed S.Res. 548 by voice vote on June 24, 2010. The resolution
condemned the attack by the “extremists aboard the Mavi Marmara,” invoked Israel’s right to self-defense, and
encouraged “the Government of Turkey to recognize the importance of continued strong relations with Israel and the
necessity of closely scrutinizing organizations with potential ties to terrorist groups” (a reference to the Turkish Islamist
non-governmental organization IHH Humanitarian Relief Foundation, the main organizer of the flotilla).
86 James Traub, “Turkey’s Rules,” New York Times Magazine, January 20, 2011.
87 Michael Koplow, “O&Z Goes to Turkey,” ottomansandzionists.com, March 4, 2013.
88 U.S. leaders may have felt compelled to broker some sort of improvement in Turkey-Israel relations following
remarks Erdogan made in late February 2013 at the United Nations Alliance of Civilizations in Vienna, Austria that
appeared to equate Zionism with fascism. Video and partial transcript of remarks and translation available at
http://thelede.blogs.nytimes.com/2013/02/28/video-of-turkish-premier-comparing-zionism-to-anti-semitism-and-
fascism/?smid=tw-thelede&seid=auto. In a March 12 letter to Erdogan, 89 Members of Congress (including 23
Senators) called on him to retract what they termed his “appalling comment” about Zionism in Vienna, while also
stating that they know that Turkey’s government “shares a commitment to meaningful international involvement to
advance security and peace”, and expressing hope for the restoration of good relations between Turkey and Israel. Text
of letter available at http://israel.house.gov/images/PDF/erdoganletteronzionismcomment.pdf. Erdogan’s comparison
also drew heavy criticism from Israel, the White House, Secretary Kerry, and some Members of Congress. In a March
19 interview with a prominent Danish news source, although Erdogan did not explicitly retract his Vienna remarks, he
was quoted as saying that his criticisms “are directed at Israeli policies” and that “My several statements openly
condemning anti-semitism clearly display my position on this issue.” “Exclusive Erdogan-interview: ‘We see a human
tragedy before our eyes,’” Politiken (Denmark), March 19, 2013.
89 Summary of conversation between Netanyahu and Erdogan from Israeli Prime Minister’s Office website, March 22,
2013.
90 In December 2012, reports cited a Turkish official as saying that Turkey had withdrawn previous objections to
Israel’s non-military participation in NATO activities. Gulsen Solaker and Jonathon Burch, “Turkey lifts objection to
NATO cooperation with Israel,” Reuters, December 24, 2012. Israel is part of NATO’s Mediterranean Dialogue, along
with Algeria, Egypt, Jordan, Morocco, Mauritania, and Tunisia. In addition, trade between the Turkey and Israel has
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fast the two countries’ former closeness on military, intelligence, and political matters might be
restored.91 Turkey’s energy minister, Taner Yildiz, has publicly contemplated the possibility of
Turkish consumption and transport of natural gas from Israel’s new offshore discoveries in the
Eastern Mediterranean.92
However, developments since March indicate that substantive rapprochement might be delayed or
put off indefinitely. Negotiations over compensation have stalled, and ongoing Israeli restrictions
and limitations on the passage of people and goods to and from Gaza’s sea coast and its land
borders with Israel remain a sticking point. In addition, Erdogan’s comments (referenced above)
holding Israel responsible for the July 2013 military takeover in Egypt and the reports (referenced
above) regarding Turkey’s alleged disclosure to Iran of the identities of Israeli intelligence
sources have complicated the public dimension of efforts to improve Turkey-Israel relations.
Syria93
Prime Minister Erdogan and Foreign Minister Davutoglu initially tried to use their then-good
relations with Bashar al Asad to help broker a peaceful end to the budding Syrian insurgency in
2011. When that failed to moderate Asad’s approach to the opposition, they changed tack and
adopted a strong stance against the Syrian regime. According to one Turkish journalist:
In the summer of 2011, Turkey decided to bring down the Baath regime in Damascus and
sought ways to implement its decision as much as its capacity allowed. Turkey did
everything it could with the exception of direct military intervention in Syria. It is not a
secret that Turkey sponsored the initial organization and coordination of the Syrian
opposition, opened its territory to the use of the opposition military forces and provided
logistical support to them.94
In the two years that followed, Turkey coordinated its efforts closely with other countries—
including the United States, other NATO allies, and Arab countries such as Saudi Arabia and
Qatar—that also provide political, financial, and/or material support to the opposition. It
outspokenly advocated for U.N.-backed intervention and—reportedly—has helped funnel
assistance to armed Syrian rebel groups, possibly including Al Qaeda-linked Jabhat al Nusra, a
U.S.-government designated terrorist organization.95 As the conflict appeared to exacerbate the

(...continued)
remained on an upward trajectory since the flotilla incident, and by February 2013, Israel had reportedly unblocked the
delivery of electronic support measures systems—pursuant to a pre-existing contract—for early warning aircraft that
Turkey is purchasing from U.S.-based Boeing. Burak Bekdil, “Israel abandons block on sales to Turkish AWACS,”
Hurriyet Daily News, February 22, 2013.
91 See, e.g., Oded Eran, “Israel-Turkey Reconciliation Still Remote,” nationalinterest.org, April 18, 2013.
92 Amiram Barkat, “Turkish minister: We're interested in Israeli gas,” Globes, October 31, 2013.
93 For background information on Syria, see CRS Report RL33487, Armed Conflict in Syria: Background and U.S.
Response
, by Jeremy M. Sharp and Christopher M. Blanchard; and CRS Report R43119, Syria: Overview of the
Humanitarian Response
, by Rhoda Margesson and Susan G. Chesser. Rhoda Margesson, Specialist in International
Humanitarian Policy, contributed to the portions of this section on Syrian refugees.
94 Kadri Gursel, “NATO Patriot Missiles Show Turkey's Military Weakness,” Al-Monitor Turkey Pulse, December 28,
2012.
95 Bipartisan Policy Center, p. 37. Turkey reportedly denies having assisted extremist organizations in Syria. Ibid., p.
11.
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longstanding regional Sunni-Shia rivalry between Arab Gulf states supporting the opposition and
Iran, which backs the Asad regime, some observers began associating Turkey with these tensions.
Absent a clear endgame in Syria, Turkey focused increasingly on minimizing spillover effects.
After some cross-border artillery exchanges in late 2012, Turkey convened consultations with its
allies under Article 4 of NATO’s North Atlantic Treaty.96 Although most NATO member states
appeared to oppose military intervention in Syria, allied leaders gave approval in December 2012
for the deployment of six Patriot missile batteries to areas near Turkey’s southeastern border with
Syria.97
NATO’s Patriot deployment presumably defends against potential Syrian Scud missile and/or
chemical weapons attacks, as Turkey does not have a missile defense capability of its own.98 In
addition to the two batteries and operational teams contributed by the United States to a Turkish
military base overlooking the city of Gaziantep, Germany and the Netherlands have each
contributed two Patriot batteries and operational teams to bases near the population centers of
Karamanmaras and Adana, respectively. The batteries reportedly became operational, under
NATO command and control, in late January and early February 2013.99 While cross-border fire
has decreased since then, potential infiltration of Turkey by militants remains of concern in light
of occasional bombings near the border and near symbolic targets in large urban areas—including
the U.S. embassy in Ankara on February 1, 2013.100 NATO and allied leaders have asserted that
the Patriot batteries are deployed for defensive purposes only.101
As referenced above, possible Turkish expectations of imminent U.S.-led military action in Syria
appear to have dissipated with President Obama’s acceptance in September 2013 of a U.N.
Security Council-backed agreement regarding chemical weapons removal.102 Turkey continues to
politically engage key regional and international stakeholders in hopes of influencing outcomes in
its favor. Davutoglu has indicated that Turkey will not oppose Asad regime involvement in
Geneva talks scheduled for early 2014 on Syria’s future, even as Turkey reportedly consults
and/or facilitates U.S. consultations with non-Al Qaeda oppositionist fighters associated with

96 Article 4 reads: “The Parties will consult together whenever, in the opinion of any of them, the territorial integrity,
political independence or security of any of the Parties is threatened.”
97 NATO countries also deployed Patriots to Turkey prior to the 1991 and 2003 wars in Iraq.
98 Turkey’s is seeking to address its lack of an independent missile defense capability through the possible deal for T-
LORAMIDS with Chinese government-owned CPMIEC, as discussed earlier in this report.
99 NATO press release, “All NATO Patriot batteries in Turkey operational,” February 16, 2013.
100 The Revolutionary People’s Liberation Party/Front (DHKP/C, sometimes known as “Dev Sol”) claimed
responsibility for the embassy bombing, which killed a Turkish security guard. The DHKP/C is a U.S.-designated
Foreign Terrorist Organization with a Marxist-Leninist ideology, a long track record of anti-U.S. and anti-NATO
militancy, and some historical links with the Asad regime.
101 On April 11, 2013, Air Force General Philip Breedlove addressed the potential for other uses of NATO’s Patriot
missile presence in a Senate Armed Services Committee hearing regarding his possible confirmation as U.S. European
Command Commander and Supreme Allied Commander, Europe (he was eventually confirmed by the Senate on April
20). In his testimony, General Breedlove stated that the two batteries representing the U.S. contribution “could be used
in a role to project into Syria. They have the capability to do it…. if Turkey and the U.S. were looking to do this in a
bilateral fashion, or if we could convince our NATO partners to come alongside of us, to also be a part of that.”
102 For more information on Turkey’s stance on possible U.S.-led intervention following alleged use of chemical
weapons in August 2013 by the Asad regime in an outlying Damascus neighborhood, see CRS Report R43201,
Possible U.S. Intervention in Syria: Issues for Congress, coordinated by Christopher M. Blanchard and Jeremy M.
Sharp.
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Syria’s Islamic Front.103 Turkey also appears to be attentively assessing developments in northern
Syria involving the Kurdish PYD (the Syrian sister organization of the PKK), which seems to
have obtained a degree of territorial autonomy. It is unclear what implications for Turkey the
PYD’s actions have, including PYD interaction with other Kurds in Syria, Iraq, and Turkey; and
periodic PYD skirmishes with groups such as the Islamic State of Iraq and the Levant (or al
Sham), an Al Qaeda branch.104 Some reports indicate that, in response to concerns from the
United States in particular, Turkey is more actively seeking to monitor, limit, or deny the use of
its territory by Syrian oppositionists affiliated with Al Qaeda.105 However, some reports suggest
that foreign fighters continue to use Turkish territory for transit to Syria,106 and that hundreds of
Turkish nationals have joined armed Syrian opposition groups.107
Syrian refugees present an ongoing and increasing dilemma for Turkey. According to the United
Nations High Commissioner for Refugees (UNHCR), as of December 2013, the Turkish
government was operating at least 21 government-run refugee camps and one “transit center.”
Between refugees residing in the camps and those in urban areas outside the camps, the total
registered or soon-to-be registered Syrian refugee population in Turkey is now estimated to be
close to 540,000 and is projected to increase.108 The Regional Response Plan, a U.N. appeal,
includes assistance to meet immediate Syrian refugee needs in Turkey.109 Registration of refugees
and camp management are coordinated by the Turkish government’s Disaster Relief Agency
(AFAD), with operational support from the Turkish Red Crescent and other agencies. UNHCR
provides technical advice and assistance.
Various reports reflect a widely held assessment among observers that Turkey has managed to
avoid systemic threats to its economic well-being from the refugee flows,110 but it has reportedly
shouldered a total cost of more than $2 billion, with only approximately $100 million in
international support. Some observers assert that more international support would probably be
forthcoming if Turkey granted UNHCR an operational role.111 Social and political costs are

103 Karen DeYoung, “U.S. may be open to Islamists joining Syrian rebel coalition,” Washington Post, December 12,
2013; “Islamic Front gains reduce US options in Syria, further undermine prospects for upcoming Geneva II summit,”
IHS Global Insight, December 12, 2013.
104 Some reports had alleged that Turkish officials were lending support to “jihadist fighters” in campaigns against the
PYD, but that by late 2013, Turkey may have reduced or ended this alleged support. PYD leader Salih Muslim was
quoted as saying that Turkey may have reversed its policy “because of international pressure but also because these
groups pose a grave threat to Turkey itself.” Amberin Zaman, “Syrian Kurdish leader: Turkey may end proxy war,” Al-
Monitor Turkey Pulse
, November 7, 2013.
105 Dorian Jones, “Turkey Deports Jihadists Linked to Syria Fighting,” Voice of America, December 3, 2013.
106 See, e.g., Transcript of interview with Thomas Hegghammer of the Norwegian Defence Research Establishment on
Syria Deeply blog, Karen Leigh, “Q+A: On Foreign Fighters Flowing into Syria,” December 2, 2013. In the interview,
Hegghammer, who researches militant Islamism with a focus on transnational jihadi groups, said that Turkey “is the
main passageway for fighters from the West, and from the rest of the region.”
107 Constanze Letsch, “The sons feared lost to al-Qaida in Syria,” theguardian.com, November 11, 2013.
108 The Turkish government estimates that there are approximately 700,000 Syrians in Turkey, when those not
registered or soon-to-be registered as refugees are counted. UNHCR Turkey Syrian Refugee Daily Sitrep, December
11, 2013.
109 United Nations, Syria: Regional Response Plan (January to December 2013).
110 International Crisis Group, Blurring the Borders: Syrian Spillover Risks for Turkey, Europe Report No. 225, April
30, 2013.
111 Busra Ozerli, “Turkish official: No need for foreign operational support at refugee camps,” Sunday’s Zaman,
October 27, 2013. According to this article, Turkey may prefer to manage refugee movement between Syria and
Turkey and to minimize third party criticism of the nature and extent of aid it provides, based at least in part on
(continued...)
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reportedly emerging—especially tensions between Sunni refugees and Turkish citizens of Arab
Alawite descent in the border province of Hatay.112
Iraq
For Turkey, strong governance and stability in Iraq is important due to Turkish interests in
denying the PKK use of Iraqi territory for its safe havens; discouraging the cross-border spread of
Kurdish separatist sentiment; countering Iranian influence; and accessing Iraq’s potentially
lucrative export markets and ample energy resources (which could eventually lessen Turkey’s
dependence on Iranian and Russian energy imports). Starting in late 2007, U.S. willingness to
provide greater counterterrorism support to Turkey in its struggle against the PKK helped move
U.S.-Turkey priorities in Iraq toward greater alignment after fallout from the U.S.-led 2003
invasion (discussed above).
Without a U.S. military mission in Iraq, Turkey’s influence appears to be more significant. Iraqi
Prime Minister Nouri al Maliki, a Shiite, has accused Turkey of undue interference in Iraqi
internal affairs. This is likely due to Turkey’s increasingly close economic—especially energy—
ties to the autonomous Kurdish Regional Government (KRG) in northern Iraq, as well as support
that Turkey has provided to Sunni Arab Iraqi leaders.
Observers debate the extent to which Turkish energy dealings with the KRG might enable greater
Kurdish autonomy or endanger Iraq’s unity.113 In May 2013, Erdogan announced that a Turkish
state-owned company and ExxonMobil would engage in oil exploration with the KRG in northern
Iraq.114 In June, the KRG announced a reportedly Turkey-approved plan to complete a new
pipeline that would feed into an existing Iraqi pipeline.115 Subsequent reports have discussed the
possible construction of a second oil pipeline and a natural gas pipeline over the next few years.
The Maliki government claims that Turkey-KRG dealings violate Iraq’s sovereignty, with
disputes ongoing over questions of constitutionality and revenue-sharing.116 ExxonMobil’s and
Chevron’s reported involvement in northern Iraqi exploration may complicate reported efforts by
U.S. officials to discourage Turkey from provoking Maliki, even as his rule and worsening ethnic
tensions and sectarian violence raise questions about the viability of Iraq’s unity, democracy, and
constitution. Turkey has renewed high-level political exchanges with the Maliki government—
including a November 2013 visit by Foreign Minister Davutoglu to Iraq that included a trip to the
city of Najaf in the country’s predominantly Shia south—as part of an apparent effort to reassure

(...continued)
historical experiences from Turkey’s hosting of Iraqi Kurdish refugees in 1991.
112 According to one Turkish journalist, “Hatay [also known as Antakya or Antioch] is becoming a city of war because
of Erdogan’s policies.” Michael Birnbaum, “Turkey protests put strain on Syria planning” Washington Post, June 20,
2013, quoting journalist Akin Bodur.
113 Denise Natali, “Turkey's Political Fallout on Iraqi Kurdish Crude,” Al-Monitor Turkey Pulse, July 1, 2013; Daniel
Dombey, “Turkey agrees energy deal with Kurdish north Iraq,” Financial Times, May 13, 2013.
114 “Turkey's state-run TPAO joins with Exxon, Iraqi Kurds in oil exploration,” Reuters, May 15, 2013.
115 Julia King and Peg Mackey, “UPDATE 1-Iraqi Kurds say new oil pipeline to Turkey to start soon,” Reuters, June
19, 2013.
116 The Maliki government’s concerns appear to be exacerbated by reports that at least one company (the Turkish-
British joint venture Genel Energy) is exporting oil from KRG-controlled sources via truck through Turkey, bypassing
the Iraqi pipeline completely. Olgu Okumus, “US Complicates Turkey’s Energy Interests in Iraq, Iran,” Al-Monitor
Turkey Pulse
, May 7, 2013.
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the United States and other regional actors that Turkey seeks to promote stability, not undermine
it.
However, reports indicate that the new pipeline may begin operation by the end of 2013—sending
up to 300,000 barrels of oil a day from KRG-controlled areas to Turkey, with the Maliki
government apparently powerless to stop it.117 Several reports indicate that the KRG expects to
receive payments directly from its Turkish counterparty even though existing constitutional and
legal requirements may mandate payment to Baghdad.118 The KRG oil minister, Ashti Hawrami,
has been quoted as saying “as soon as we are so lucky to have a surplus revenue, it will be the
property of all Iraqis,” while KRG officials have identified a number of costs and claims that they
assert require satisfaction before revenue sharing can begin.119 Various analysts seem to have
different views of what role Turkey might play in a deal resolving oil revenue disputes and of
whether the KRG or Baghdad has the superior bargaining position.120
Iran
Turkey seems to be seeking a balance between helping the United States contain Iranian regional
influence and maintaining relatively normal political and economic ties with Iran, especially
given Turkey’s dependence on Iranian energy sources as described below. Differing Iranian and
Turkish interests in the region, particularly with regard to Syria and Iraq, have led to increased
competition for influence. Turkey and Iran have also competed for the admiration of Arab
populations on issues such as championing the Palestinian cause. Nevertheless, Turkey has been
supportive of the November 2013 international interim agreement on Iran’s nuclear program,
perhaps in anticipation that potentially more cordial U.S.-Iran relations will reduce constraints on
Turkey from increasing trade with Iran.
Turkey agreed in September 2011 to host a U.S. forward-deployed early warning radar at the
Kurecik base near the eastern Turkish city of Malatya as part of NATO’s ALTBMD system. Most
analysts interpret this system as an attempt to counter potential ballistic missile threats to Europe
from Iran.121 An unnamed senior U.S. Administration official was quoted as calling this
agreement “probably the biggest strategic decision between the United States and Turkey in the
past 15 or 20 years.”122 Some Iranian officials, after initially expressing displeasure with Turkey’s
decision, stated that Iran would target the radar in Turkey in the event of a U.S. or Israeli airstrike
on Iran. During their visit to Tehran in late March 2012, Erdogan and Davutoglu reportedly said

117 Reva Bhalla, “Letter from Kurdistan,” Stratfor Geopolitical Weekly, December 10, 2013.
118 Humeyra Pamuk and Orhan Coskun, “Exclusive: Turkey, Iraqi Kurdistan Clinch Major Energy Pipeline Deals,”
Reuters, November 6, 2013.
119 Judit Neurink, “Pipeline Is Ready and Kurdish Oil Will Flow,” Rudaw, December 2, 2013. One media article states,
“The Kurds, and the Turks, say they will pay Baghdad its fair share.” Tim Arango and Clifford Krauss, “Kurds’ Oil
Deals With Turkey Raise Fears of Fissures in Iraq,” New York Times, December 2, 2013.
120 Bhalla, op. cit.; Denise Natali, “How independent is the Iraqi-Kurdish pipeline to Turkey?,” Al-Monitor, November
4, 2013.
121 See footnote 13. The radar was activated in late December 2011. “Part of NATO missile defense system goes live in
Turkey,” CNN, January 16, 2012. It is reportedly operated by U.S. personnel from a command center in Diyarbakir,
with a Turkish general and his team stationed in Germany to monitor the command and control mechanisms
headquartered there for the entire missile defense system. “Malatya radar system to be commanded from Ramstein,”
Hurriyet Daily News, February 4, 2012.
122 Thom Shanker, “U.S. Hails Deal with Turkey on Missile Shield,” New York Times, September 15, 2011.
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on Iranian television that Turkey could have the radar dismantled within six months if “conditions
Turkey had put forward to host the radar are not respected”123—a likely reference to Turkish
leaders’ public insistence that data collected from the radar are not to be shared with Israel.124
Following some reports that Iran might be assisting the PKK, Iran and Turkey publicly committed
in October 2011 to cooperating against the PKK and the Iranian Kurdish separatist organization
Party of Free Life of Kurdistan (PJAK) that also maintains safe havens in northern Iraq. At least
one analyst predicts that Iran might increase its influence with Iraq’s central government and with
Iran-friendly Iraqi Kurdish groups to counter Turkey’s growing political and economic leverage
in Kurdish-controlled areas of northern Iraq.125
According to figures provided on the website of the U.S. Energy Information Administration, Iran
provides approximately 44% of Turkey’s oil and 19% of its natural gas. Turkey’s announcement
that it would reduce Iranian oil imports helped it gain an exemption from the U.S. sanctions that
took effect in June 2012. Media and official attention in late 2012 and early 2013 focused on a
“gold-for-energy” trading practice between Turkey and Iran that was characterized by many as
helping Iran circumvent newly instituted international restrictions on access to the global
financial system.126 However, a new U.S. law took effect in July 2013 specifically sanctioning the
provision of precious metals to Iran (Section 1245 of P.L. 112-239, National Defense
Authorization Act for Fiscal Year 2013, enacted January 2, 2013).127 Perhaps as a consequence,
reports in early 2013 indicated that Turkey may have been reducing gold-for-energy trades with
Iran,128 turning largely to barter-style arrangements permitting Iran to receive goods as a result of
its energy trade with Turkey.129 Additional U.S. and international concerns about Iran’s possible
use of Turkish companies or institutions to finance and supply its nuclear program and avoid the
impact of sanctions largely focus on Turkey’s legal standards130 and on the reported recent
profusion of Iranian-financed firms in Turkey.131
In April 2013, 47 Members of Congress sent a letter raising many of the concerns described in the
previous paragraph with Secretary of State John Kerry and Secretary of the Treasury Jack Lew,
and seeking further information from them.132 It is unclear whether or how Turkish companies

123 “Erdogan, in Iran, says NATO radar could be dismantled if needed,” Today’s Zaman, March 30, 2012.
124 According to U.S. officials, despite this Turkish insistence, information collected from the radar is coordinated as
necessary with the U.S. missile defense radar deployed in Israel. One senior Administration official has been quoted as
saying, “Data from all U.S. missile defense assets worldwide, including not only from radars in Turkey and Israel, but
from other sensors as well, is fused to maximize the effectiveness of our missile defenses worldwide; this data can be
shared with our allies and partners in this effort.” Josh Rogin, “Amid tensions, U.S. and Turkey move forward on
missile defense,” thecable.foreignpolicy.com, September 19, 2011. Some Members of Congress had insisted that
sharing information for Israel’s potential defense be a condition of the radar’s placement in Turkey. The text of a
September 19, 2011, letter to President Barack Obama from six Senators on this subject is available at
http://kirk.senate.gov/?p=press_release&id=299.
125 Bhalla, op. cit.
126 John Daly, “How Far Will Turkey Go in Supporting Sanctions Against Iran?,” Turkey Analyst, July 5, 2013.
127 For more general information on this subject, see CRS Report RS20871, Iran Sanctions, by Kenneth Katzman.
128 Asli Kandemir, “Exclusive: Turkey to Iran gold trade wiped out by new U.S. sanction,” Reuters, February 15, 2013.
129 Olgu Okumus, “US Complicates Turkey’s Energy Interests in Iraq, Iran,” Al-Monitor Turkey Pulse, May 7, 2013.
130 Financial Action Task Force Public Statement, Paris, February 22, 2013; Daniel Dombey, “Turkey’s last-minute
terror laws: will they be enough?,” blogs.ft.com, February 8, 2013.
131 “New Iranian firms in Turkey stir front company worries for Ankara,” todayszaman.com, February 17, 2013.
132 The text of the letter is available at http://roskam.house.gov/images/turkey-iran_letter_april_11_2013.pdf.
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might change their trading practices with Iran in anticipation of potential sanctions relief
following the November 2013 international interim agreement on Iran’s nuclear program.
Possible U.S. Policy Options and Areas of Concern
Although U.S. and Turkish interests and policies intersect in many respects, Turkey’s increased
regional influence and moves toward military and economic self-reliance have decreased its
dependence on the United States. Still, the appeal of U.S. and Western power, prestige, values,
and military technology might currently outstrip that of potential competitors.
Members of Congress, through active inquiry into and possible coordination with Obama
Administration positions on Turkey, and their own engagement on Turkey-related issues, can
consider how various options might serve U.S. interests. One U.S. analyst wrote in December
2011:
Despite record levels of communication and travel between top leaders in Ankara and
Washington, the societal and institutional connections are still in need of revitalization and
strengthening…. [C]oordination and policy on Turkey continues to affect vital interests
throughout Washington, which ideally must go beyond the administration to the Hill and
society at large even if there is short-term turbulence.133
Influencing Regional Change and Promoting Stability
Turkey is likely to play a role on key Middle Eastern security and political issues. In partnering
with Turkey to influence regional developments and promote stability, the following options are
available for Members of Congress and Obama Administration officials to adopt or continue:
• Determine how to encourage improvement in Turkey’s relations with Israel.
• Determine the proper nature and extent of bilateral and NATO military and
intelligence cooperation, including joint use of Turkish bases and territory, as
well as information sharing to assist in countering the PKK and in facilitating
interdiction of illegal arms shipments from other countries or non-state actors.
• Determine whether and how to encourage Turkish political and financial support
for Syrian opposition groups, and how to link any such backing to diplomatic and
political processes on Syria’s future.
• Determine whether and how to coordinate with Turkey to impose and enforce
unilateral, multilateral, or international sanctions that have the potential to
effectively weaken or change the behavior of regimes or other actors
contravening international laws and norms. Examples include the Iranian regime
for its nuclear program and support of regional terrorist groups, and the Asad
regime and Al Qaeda-linked opposition groups in Syria.
• Determine whether and how U.S. officials and lawmakers should encourage
further liberalization and reform in Turkey’s domestic arena, given the influence

133 Joshua W. Walker, “U.S.-Turkish Relations: Modesty and Revitalization,” On Turkey, German Marshall Fund of the
United States, December 15, 2011.
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that domestic developments may have on U.S.-Turkey cooperation and regional
security.134
Arms Sales and Military/Security Assistance
Turkey continues to seek advanced U.S. military equipment (i.e., fighter aircraft and helicopters),
and its defense industry participates in joint ventures with the United States (e.g., on the F-35
Joint Strike Fighter). However, as exemplified by Turkey’s possible deal with Chinese
government-owned CPMIEC on air and missile defense (see “China-Turkey Air and Missile
Defense Cooperation?” below), Turkey’s growing defense industry appears increasingly willing
to engage in arms import-export transactions or joint military exercises with non-NATO
countries, such as China, Russia, Pakistan, and South Korea. This suggests that Turkey is
interested in maximizing its acquisition of technology, diversifying its defense relationships, and
decreasing its dependence on the United States.
Table 3. Significant U.S.-Origin Arms Transfers or Possible Arms Transfers to Turkey
(congressional notifications since 2006)


Year


FMS or
Cong.
Primary
Estimated
Amount/Description
DCS
Notice
Contract
Delivery Contractor(s)
Cost
100 F-35A Joint Strike
DCS 2006 2017-2025
Lockheed
$11billion-
Fighter aircraft
(expected
Martin
$15 billion
if contract
signed)
30 F-16C Block 50
FMS 2006 2009 2012
Consortium
$1.8 billion
Fighter aircraft and
(estimated
(Lockheed
associated equipment
complete)
Martin,
Raytheon, and
others)
48 AGM-84H SLAM-ER
FMS 2006 2006
2012
(24
Boeing $162
Air-surface missiles
estimated)
million
105 AIM-9X
FMS 2007 2008
(127
Raytheon $71
million
SIDEWINDER Air-air
(estimated)
missiles (SRAAM)
51 Block II Tactical
FMS 2007
2008
(for
2011 (4
McDonnel
$159
HARPOON Anti-ship
at least 4)
(estimated
Douglas
million
missiles
(Boeing)
100 MK-54 MAKO
FMS 2007 2009
2012
(25
Raytheon $105
Torpedoes
(estimated)
million
30 AAQ-33 SNIPER and
FMS 2008 2009
2012
(30
Lockheed
$200
AN/AAQ-13 LANTIRN
estimated)
Martin
million
Aircraft electro-optical
systems (targeting and
navigation pods)

134 Testimony of Kurt Volker, James Jeffrey, Robert Wexler, and Jenny White before the Senate Foreign Relations
Committee’s Subcommittee on European Affairs, July 31, 2013.
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Year


FMS or
Cong.
Primary
Estimated
Amount/Description
DCS
Notice
Contract Delivery
Contractor(s)
Cost
6 MK 41 Vertical Launch
FMS 2008
Signed
2011
(3
Lockheed
$227
Systems for Ship-air
estimated)
Martin
million
missiles
107 AIM-120C-7 Air-air
FMS 2008
Signed
2012
(10
Raytheon $157
missiles (AMRAAM)
estimated)
million
400 RIM-162 Ship-air
DCS 2009 2011
(10
Raytheon $300
missiles (ESSM)
estimated)
million
72 PATRIOT Advanced
FMS 2009
Raytheon
and
$4 billion
Capability Missiles (PAC-
Lockheed
3), 197 PATRIOT
Martin
Guidance Enhanced
Missiles, and associated
equipment
14 CH-47F CHINOOK
FMS 2009
2011
(for Boeing
$1.2
billion
Helicopters
6)
3 AH-1W SUPER
FMS
2011

2012
N/A (from U.S.
$111
COBRA Attack
Marine Corps
million
Helicopters
inventory)
117 AIM-9X-2
FMS 2012
Raytheon $140
SIDEWINDER Block II
million
Air-Air missiles (SRAAM)
and associated equipment
Source: Defense Security Cooperation Agency, Stockholm International Peace Research Institute Arms
Transfer Database, Defense News, Hurriyet Daily News, Global Security.
Notes: All figures and dates are approximate; blank entries indicate that data is unknown or not applicable. FMS
refers to “Foreign Military Sales” contemplated between the U.S. government and Turkey, while DCS refers to
“Direct Commercial Sales” contemplated between private U.S. companies and Turkey.
Turkey had reportedly been particularly interested since 2008 in acquiring armed drone aircraft
from the United States to use against the PKK.135 In light of recent reports, it is unclear to what
extent Turkey’s aspirations to acquire U.S. drones might persist despite possible informal
Congressional rejection of Turkey’s request in connection with allegations that Turkey disclosed
the identities of Israeli intelligence sources to Iran.136 The Obama Administration redeployed four
unarmed U.S. Predator drones from Iraq to Turkey in late 2011 before the end of the U.S. military
mission in Iraq—apparently so that the Predators could continue flying surveillance missions in
northern Iraq in support of Turkey’s efforts to counter the PKK.137 It is unclear how Turkey’s

135 According to Jane’s, Turkey had sought to purchase four MQ-1 Predator drones and six MQ-9 Reaper drones (more
advanced versions of the Predator). “Procurement, Turkey,” Jane’s Sentinel Security Assessment - Eastern
Mediterranean
, December 16, 2010. Potential sales of Reapers to NATO allies such as the United Kingdom, Germany,
Italy, and France have been notified to Congress since 2008.
136 See footnote 22.
137 “US deployed Predators to Incirlik: Davutoglu,” Hurriyet Daily News, November 13, 2011. According to then
Secretary of Defense Panetta, the Iraqi government gave the United States permission to keep flying Predator drones on
surveillance missions over northern Iraq. Craig Whitlock, “U.S. drones allowed in Iraqi skies,”
washingtonpost.com/blogs/checkpoint-washington, December 16, 2011.
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ongoing negotiations with the PKK may affect its plans to procure drones and other military
equipment.
U.S. military and security assistance programs for Turkey are designed to cultivate closeness in
relationships and practices between Turkish military officers and security officials and their U.S.
counterparts. These programs also seek to counter terrorist and criminal networks that are active
in the region, including those which historically have operated within and across Turkey’s
borders.138 In April 2013, Turkish police stated that in February they had detained conspirators in
potential Al Qaeda-linked terrorist plots against the U.S. embassy in Ankara and two other
sites.139
Table 4. Recent U.S. Foreign Assistance to Turkey
($ in millions)
FY2014
Account FY2010
FY2011
FY2012
FY2013
Request
International Military Education and
5.0 4.0 4.0 3.4 3.3
Training (IMET)
International Narcotics Control and
— 0.5
0.5


Law Enforcement (INCLE)
Nonproliferation, Antiterrorism,
3.0 1.4 1.1 0.9 0.8
Demining, and Related Programs
(NADR)
Total
8.0 5.9 5.6 4.3 4.2
Source: U.S. Department of State.
Note: All amounts are approximate.
Possible “Armenian Genocide Resolution”
Congress’s involvement on Turkey-Armenia issues has the potential to strongly influence U.S.-
Turkey relations. In March 2010, during the 111th Congress, the House Committee on Foreign
Affairs voted to report proposed resolution H.Res. 252 for consideration by the full House (by a
vote of 23-22). The language of H.Res. 252 characterized actions of the Ottoman Empire against
Armenians from 1915 to 1923 as genocide. Previously, in 1975 (H.J.Res. 148) and 1984 (H.J.Res.
247), the House had passed proposed joint resolutions that referred to “victims of genocide” of
Armenian ancestry from 1915 and 1915-1923, respectively.140 Neither proposed joint resolution
came to a vote in the Senate. A number of other proposed resolutions characterizing these World
War I-era events as genocide have been reported by various congressional committees (see

138 State Department FY2014 Congressional Budget Justification, Foreign Operations, Annex: Regional Perspectives,
pp. 404-406.
139 Sebnem Arsu, “U.S. Embassy in Turkey Said to Be Targeted,” New York Times, April 12, 2013.
140 Unlike H.Res. 252 and some proposed resolutions similar to it, neither H.J.Res. 148 nor H.J.Res. 247 explicitly
identified the Ottoman Empire or its authorities as perpetrators of the purported genocide. H.J.Res. 247 stated that “one
and one-half million people of Armenian ancestry” were “the victims of the genocide perpetrated in Turkey”.
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Appendix E for a list). Additionally, President Ronald Reagan referred to a “genocide of the
Armenians” during a Holocaust Remembrance Day speech in 1981.141
H.Res. 252 did not pass, but in response to the March 2010 committee action, Turkey recalled its
ambassador from the United States for one month, and at least one prominent AKP lawmaker
reportedly warned that “the relationship would be downgraded on every level” in the event of
House passage of the resolution. This warning was commonly interpreted as including a threat to
curtail, at least partially or temporarily, U.S. access to Turkish bases and territory for transporting
non-lethal cargo to missions in Iraq and Afghanistan.142
Representative Robert Dold introduced H.Res. 304—virtually identical to H.Res. 252—in June
2011 during the 112th Congress, and Senator Robert Menendez introduced a similar proposed
resolution as S.Res. 399 in March 2012. Neither resolution advanced through committee. In the
113th Congress, on May 20, 2013, Representative David Valadao introduced H.Res. 227: “Calling
on the President to work toward equitable, constructive, stable, and durable Armenian-Turkish
relations based upon the Republic of Turkey’s full acknowledgment of the facts and ongoing
consequences of the Armenian Genocide, and a fair, just, and comprehensive international
resolution of this crime against humanity.”143 Advocates of recognizing a genocide are to
commemorate the event’s 100th anniversary in 2015. In addition to past statements or actions by
U.S. policymakers (as described above), at least 20 countries other than Armenia have recognized
the Ottoman-era deaths as genocide in some way, including 11 of the 28 EU member states.144
Bilateral Trade Promotion
Although successive U.S. Administrations have cited the importance of increased trade with
Turkey, and the Obama Administration has reemphasized this in articulating its vision for a
multifaceted bilateral strategic relationship,145 it is unclear how effective government efforts to
promote U.S.-Turkey trade can be. Bilateral trade has expanded in recent years, although the gap
(in favor of the United States) has widened since 2009 both in actual terms and in percentage
terms.146 The U.S. government has designated Turkey as a priority market under the National
Export Initiative and the interagency Trade Policy Coordination Committee has developed an

141 Additionally, in a May 1951 written statement to the International Court of Justice, the Truman Administration cited
“Turkish massacres of Armenians” as one of three “outstanding examples of the crime of genocide” (along with Roman
persecution of Christians and Nazi extermination of Jews and Poles). International Court of Justice, Reservations on the
Convention of the Prevention and Punishment of the Crime of Genocide: Advisory Opinion of May 28, 1951:
Pleadings, Arguments, Documents
, p. 25.
142 Robert Tait and Ewen McCaskill, “Turkey threatens ‘serious consequences’ after US vote on Armenian genocide,”
Guardian (UK), March 5, 2010.
143 H.Res. 227, which has at least 47 co-sponsors, has been referred to the Subcommittee on Europe, Eurasia, and
Emerging Threats of the House Foreign Affairs Committee.
144 The EU states recognizing a genocide are France, Germany, Italy, Sweden, Belgium, the Netherlands, Lithuania,
Poland, Slovakia, Greece, and Cyprus. The European Parliament has also recognized the deaths as genocide.
145 The two countries signed a Bilateral Investment Treaty in 1990 and a Trade and Investment Framework Agreement
in 1999. Annual meetings for the U.S.-Turkey Framework for Strategic Economic and Commercial Cooperation began
in 2010 at the cabinet ministerial level.
146 See, e.g., Sidar Global Advisors, U.S.-Turkish Economic Relations in a New Era: Analysis and Recommendations
for a Stronger Strategic Partnership
, Turkish Industry & Business Association (TUSIAD) and U.S. Chamber of
Commerce, March 2012.
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Export Enhancement Strategy for Turkey.147 On its side, the Turkish Ministry of Economy has
identified six U.S. states as the focus of its efforts to increase bilateral trade: California, Texas,
New York, Florida, Illinois, and Georgia.148
Turkish officials have occasionally proposed a U.S.-Turkey free or preferential trade agreement
or U.S. legislation establishing qualified industrial zones (QIZs) in Turkey without success.149
Some policymakers and observers claim that even if past economic conditions may have limited
U.S. trade with Turkey, recent growth in Turkish consumer demand, quality of products and
services, and global competitiveness and brand recognition have increased Turkey’s value as an
import source, target market, and place of investment for U.S. companies.150
With U.S. and EU officials in the process of negotiating a possible Transatlantic Trade and
Investment Partnership (TTIP), some analysts and advocates have called for Turkey to be
included in whatever discussions may occur.151 In October 2013, Turkey’s official media agency
quoted the chairman of a prominent Turkish business confederation as saying that Speaker of the
House John Boehner agreed in private meetings that Turkey’s exclusion from a potential TTIP
would be unfair.152 Because of its customs union with the EU, analysts conclude that Turkey
would—absent an agreement with the United States or EU to the contrary—be required to
comply with all the trade obligations of a potential TTIP without gaining any of the direct
benefits. Some analysts estimate possible consequences to Turkey to include a 2.5% (roughly $20
billion) long-term loss in national income, and the loss of close to 95,000 jobs.153 Although a
parallel trade deal with Turkey would therefore not be necessary for the United States to gain
preferential access to Turkey’s market, proponents of a U.S.-Turkey trade agreement argue that it
would be important in reinforcing overall bilateral relations and in anchoring Turkey’s ties with
the West.154 It is unclear to what extent the technical complexity of a U.S.-EU trade negotiation
may raise difficulties for Turkey’s participation in the process.

147 For more detailed information on bilateral efforts to promote trade, see White House Fact Sheet: U.S.-Turkey
Economic Partnership, May 16, 2013; U.S. Department of Commerce Fact Sheet: U.S.-Turkey Framework for Strategic
Economic and Commercial Cooperation, October 14, 2010.
148 Information provided to CRS by Turkish Ministry of Economy, September 2011.
149 Turkey’s customs union with the EU (see Appendix E) apparently would preclude a free trade or preferential
agreement between the United States and Turkey absent a similar U.S.-EU agreement. See Turkish Ministry of
Economy website at http://www.economy.gov.tr/index.cfm?sayfa=tradeagreements&bolum=fta&region=0. The 2012
Albright-Hadley report encouraged the pursuit of a U.S.-Turkey free or preferential trade agreement or other measures
emphasizing “market access, regulatory compatibility, business facilitation, assistance for small and medium-sized
enterprises, and promotion of trade in cutting-edge technologies”. Council on Foreign Relations, op. cit., pp. 12-13.
Additionally, a March 2012 report jointly sponsored by the Turkish Industry & Business Association (TUSIAD) and
the U.S. Chamber of Commerce recommended that U.S. and Turkish trade and investment promotion agencies align
strategies and use resources efficiently to “achieve certain mutually set benchmarks and goals.” See Sidar Global
Advisors, op. cit.
150 See, e.g., Mark Scott, “In Turkey, Western Companies Find Stability and Growth,” New York Times, December 23,
2011.
151 See, e.g., Kemal Kirisci, “Don’t Forget Free Trade with Turkey,” nationalinterest.org, April 15, 2013; Bahadir
Kaleagasi and Baris Ornarli, Turkish Industry and Business Association (TUSIAD), “Why Turkey belongs to
transatlantic economy,” thehill.com/blogs, March 12, 2013.
152 Anadolu Agency, quoted in “US House speaker tells TÜSİAD that Turkey should not be excluded from transatlantic
trade alliance,” Hurriyet Daily News, October 12, 2013.
153 Two German reports cited in Kirisci, Turkey and the Transatlantic Trade and Investment Partnership: Boosting the
Model Partnership with the United States
, op. cit., footnote 29.
154 Kirisci, Turkey and the Transatlantic Trade and Investment Partnership: Boosting the Model Partnership with the
(continued...)
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During Prime Minister Erdogan’s May 2013 visit to Washington, DC, Vice President Joe Biden
was quoted as saying at a U.S. Chamber of Commerce meeting that Erdogan and President
Obama “had agreed to begin efforts for a Free Trade Agreement.”155 However, one analyst has
written that because of potential obstacles, including probable stances “by the Armenian and
Greek lobbies against a free trade agreement with Turkey, one cannot be too sanguine about the
chances of passage in Congress of a free trade agreement with Turkey, even with the President’s
influence.”156
Conclusion
Turkey’s importance to the United States may be increasing relative to previous eras of U.S.-
Turkey cooperation because of Turkey’s geopolitical importance, growing economy, and greater
foreign policy assertiveness. Congressional action on arms sales, a potential free trade agreement,
or a possible “Armenian genocide resolution” could have implications for the bilateral alliance,
particularly if Members of Congress link their stances on these issues to U.S.-Turkey tensions or
disagreements over Israel, other Middle East-related issues, or Chinese-Turkish defense industrial
cooperation.
The positions that Members of Congress take on specific issues concerning Turkey—including
defense cooperation, trade promotion, and Turkish domestic developments—will shape
perceptions of U.S. priorities at a critical time for global and regional stability and for the Turkish
republic’s political and constitutional evolution. This could influence Turkish leaders’ future
foreign policy rhetoric, decisions, and alignments, which in turn will likely have implications for
regional security and for Turkey’s EU accession prospects. Congressional positions could also
have some influence on Turkey’s commitment to civilian-led, democratic government that
enshrines individual, media, and minority rights; rule of law; and due process.


(...continued)
United States, op. cit. See also Tyson Barker and Cenk Sidar, “U.S.-EU Trade Talks Risk Damaging Turkey Ties,”
Bloomberg View, May 12, 2013.
155 “Biden: US and Turkey to work for FTA,” worldbulletin.net, May 17, 2013. Biden was also quoted as saying, “We
will not only keep Turkey informed of every step of the negotiation with the EU, but we believe that if in fact, we can
get by some of the divisions and the differences we have with regard to free trade agreements, that if we can get there
before the time we settle the EU new trade agreement, that it will be a great opportunity for Turkey.” Ibid. Officially,
the two countries decided in May 2013 to "establish a bilateral High Level Committee led by the Ministry of Economy
of Turkey and the Office of the U.S. Trade Representative, associated with the Framework for Strategic Economic and
Commercial Cooperation, with the ultimate objective of continuing to deepen our economic relations and liberalize
trade.” White House Fact Sheet: U.S.-Turkey Economic Partnership, May 16, 2013.
156 Mark Meirowitz, “A Realistic and Candid Look at Turkish-U.S. Relations,” Magazine of American-Turkish
Council: 32nd Annual Conference on U.S.-Turkish Relations, June 2-5, 2013.
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Appendix A. Profiles of Key Figures in Turkey
Prime Minister Recep Tayyip Erdogan
Prime Minister Erdogan (pronounced air-doe-wan) was born in Istanbul in 1954 and spent much
of his childhood in his family’s ancestral hometown of Rize on the Black Sea coast. He and his
family returned to Istanbul for his teenage years, and he attended a religious imam hatip school.
In the 1970s, Erdogan studied business at what is today Marmara University, played soccer semi-
professionally, and became politically active with the National Salvation Party, led by the
pioneering Turkish Islamist figure (and eventual prime minister) Necmettin Erbakan. After the
military banned all political parties in the wake of its 1980 coup, Erdogan became a business
consultant and executive. When political life in Turkey resumed, Erdogan became a prominent
local leader and organizer for Erbakan’s new Welfare Party.
Erdogan was elected mayor of Istanbul in 1994 at the beginning of a wave of Islamist political
victories in Turkey in the mid-1990s. He was removed from office, imprisoned for six months,
and banned from parliamentary politics for religious incitement after he recited a poem in the
southeastern city of Siirt in December 1997 that included the passage (translated from Turkish):
“The mosques are our barracks, the domes our helmets, the minarets our bayonets and the faithful
our soldiers.”
After Erbakan’s government resigned under military pressure in 1997 and the Welfare Party was
disbanded, Erdogan became the founding chairman of the AKP in 2001. The AKP won a decisive
electoral victory in 2002, securing the single-party rule that it has maintained since. After the
election, a legal change allowed Erdogan to run for parliament in a 2003 special election in Siirt,
and after he won, Erdogan replaced Abdullah Gul as prime minister.
Erdogan and his personal popularity and charisma have been at the center of much of the
domestic and foreign policy change that has occurred in Turkey in the past decade. His criticism
of Israel and its actions has by some accounts boosted his popularity at home and throughout the
Muslim Middle East. Subsequently, Erdogan’s stances on unrest and transition in countries such
as Egypt, Libya, and Syria also attracted significant regional and global attention.
Erdogan’s rhetoric and actions have come under even greater scrutiny in the wake of the June
2013 protests in Turkey and his reactions. Some reports describe Erdogan as less amenable to
political compromise in part due to his long tenure in office, and as relying increasingly on a
small group of trusted advisors, including intelligence chief Hakan Fidan.157 There have been
some signs of distancing between Erdogan and President Obama since the protests and other
events complicating bilateral relations in 2013, after several years of reports that Erdogan and
Obama have enjoyed positive personal interaction.158
Erdogan is married and has two sons and two daughters. His wife Emine and daughters wear the
headscarf. He is not fluent in English but his understanding may be improving. Observers have

157 Adam Entous and Joe Parkinson, “Turkey’s Spymaster Plots Own Course on Syria,” Wall Street Journal, October
10, 2013.
158 The Abramowitz-Edelman Report states that Erdogan places a high regard on U.S. praise. Bipartisan Policy Center,
op. cit., p. 10.
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speculated about his health, particularly following a November 2011 surgical procedure to
remove stomach polyps. He has said that he does not have cancer.
President Abdullah Gul
President Gul was born in 1950 in Kayseri in central Turkey. He studied economics in Turkey and
England, and received his Ph.D. from Istanbul University, becoming a university professor and an
economist at the Islamic Development Bank in Jeddah, Saudi Arabia. Gul was first elected to
parliament from Kayseri in 1991 as a member of the Islamist Welfare Party and served as a
minister in and spokesman for the coalition government it briefly headed in 1996-1997. After the
Welfare Party was disbanded, Gul stayed on in parliament as a reform-minded member of the
Islamist Virtue Party. Gul served on parliamentary assemblies of NATO and the Council of
Europe. When the AKP was formed in 2001, he became deputy chairman and—briefly—its first
prime minister after the successful election of 2002. When Erdogan took over the prime ministry
in 2003, Gul became Turkey’s foreign minister and helped accelerate Turkey’s EU accession
process.
In 2007, the AKP nominated Gul for the presidency amid substantial secularist opposition, partly
owing to statements from his early political career that indicated distaste for the secular nature of
Turkey’s republic. Parliament nevertheless elected Gul president. Many observers believe him to
be a moderating influence on the Erdogan government, as reflected in his approach to the June
2013 nationwide protests. Observers also speculate about whether President Gul might seek a
second presidential term, to succeed Erdogan as prime minister, or pursue another path in the
domestic or international arena.
Gul is married with two sons and a daughter. His wife Hayrunissa and daughter wear the
headscarf. He speaks fluent English.
Foreign Minister Ahmet Davutoglu
Foreign Minister Davutoglu was born in 1959 in Konya in central Turkey. He attended a German
international school in Istanbul and received a Ph.D. in Political Science and International
Relations from Bosphorus University. He became a university professor, spending time in
Malaysia in the early 1990s before establishing himself as a scholar known for applying academic
theory to practical matters of Turkish foreign policy and national security strategy. His book
Strategic Depth, which was published in 2001 and has been translated into other languages but
not English, is thought by some to represent a blueprint of sorts for the policies Davutoglu has
since helped implement.
Following the AKP’s victory in 2002, Davutoglu was appointed chief foreign policy advisor to
the prime minister. Upon his appointment as foreign minister in 2009, he quickly gained renown
for articulating and applying the concepts of strategic depth and “zero problems with neighbors.”
He advocates for a preeminent role for Turkey in its surrounding region, but disputes the
characterization of his policies by some observers as “neo-Ottomanism.” Davutoglu’s policies
have encountered domestic and international criticism given the challenges Turkey has recently
faced from regional problems in countries such as Syria, Iraq, and Egypt (as discussed above). He
won an AKP parliamentary seat for the first time in June 2011.
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Davutoglu is married with four children. His wife Sare is a medical doctor. He speaks fluent
English, as well as German and Arabic.
Opposition Leader Kemal Kilicdaroglu
Kilicdaroglu, the leader of the main opposition CHP, was born in 1948 in Tunceli province in
eastern Turkey. After receiving an economics degree from what is now Gazi University in
Ankara, Kilicdaroglu had a civil service career—first with the Finance Ministry, then as the
director-general of the Social Security Organization. After retiring from the civil service,
Kilicdaroglu became politically active with the CHP and was elected to parliament from Istanbul
in 2002. He gained national prominence for his efforts to root out corruption among AKP officials
and the AKP-affiliated mayor of Ankara. When CHP leader Deniz Baykal was forced to resign
over a videotape sex scandal in May 2010, Kilicdaroglu was elected to replace him. In the first
national election with him as party leader in June 2011, the CHP gained 23 seats in parliament—
not as many as some observers had expected. He made his first official visit to the United States
in December 2013.
Kilicdaroglu is married with a son and two daughters. He is an Alevi and speaks fluent French.
PKK Leader Abdullah Ocalan
Abdullah Ocalan was born in or around 1949 in southeastern Turkey (near Sanliurfa). After
attending vocational high school in Ankara, Ocalan served in civil service posts in Diyarbakir and
Istanbul until enrolling at Ankara University in 1971. As his interest developed in socialism and
Kurdish nationalism, Ocalan was jailed for seven months in 1972 for participating in an illegal
student demonstration. His time in prison with other activists helped inspire his political
ambitions, and he became increasingly politically active upon his release. Ocalan founded the
Marxist-Leninist-influenced PKK in 1978 and launched a separatist militant campaign against
Turkish security forces—while also attacking the traditional Kurdish chieftain class—in 1984. He
used Syrian territory as a safe haven. Syria forced Ocalan to leave in 1998 after Turkey threatened
war for harboring him. After traveling to several different countries, Ocalan was captured in
February 1999 in Kenya—possibly with U.S. help—and was turned over to Turkish authorities.
The PKK declared a cease-fire shortly thereafter. Ocalan was sentenced to death, in a trial later
ruled unfair by the European Court of Human Rights, but when Turkey abolished the death
penalty in 2002, the sentence was commuted to life imprisonment. He resides in a maximum-
security prison on the island of Imrali in the Sea of Marmara, and was in solitary confinement
until 2009.
Although acting PKK leader Murat Karayilan and other commanders have exercised direct
control over PKK operations during Ocalan’s imprisonment, some observers believe that Ocalan
still ultimately controls the PKK through proxies. PKK violence resumed in 2003 and has since
continued off-and-on until the most recent cease-fire that Ocalan and Karayilan called in March
2013. Ocalan has indicated that the organization is seeking a negotiated resolution that does not
require forming a Kurdish state, and is apparently engaging in talks with Turkish intelligence to
that end.
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Appendix B. List of Selected Turkish-Related
Organizations in the United States

American Friends of Turkey (http://afot.us/)
American Research Institute in Turkey (http://ccat.sas.upenn.edu/ARIT/)
American Turkish Society (http://www.americanturkishsociety.org/)
American-Turkish Council (http://www.the-atc.org/)
Assembly of Turkish American Associations (http://www.ataa.org/)—component associations in
18 states and the District of Columbia
Ataturk Society of America (http://www.ataturksociety.org/)
Federation of Turkish American Associations
Institute of Turkish Studies (http://turkishstudies.org/)
SETA Foundation for Political, Economic and Social Research (http://setadc.org)
Turkic American Alliance (http://www.turkicamericanalliance.org/)
• West America Turkic Council (West region)—includes Pacifica Institute
• Turkish American Federation of Midwest (Midwest region)—includes Niagara
Foundation
• Turquoise Council of Americans and Eurasians (South region)—includes
Institute of Interfaith Dialog
• Turkic American Federation of Southeast (Southeast region)—includes Istanbul
Center
• Council of Turkic American Associations (Northeast region)—includes Turkish
Cultural Center
• Mid Atlantic Federation of Turkic American Associations (Mid-Atlantic
region)—includes Rumi Forum
• Rethink Institute (housed at Turkic American Alliance headquarters in
Washington, DC)
Turkish Coalition of America (http://www.tc-america.org/)
Turkish Confederation of Businessmen and Industrialists (TUSKON) (http://www.tuskonus.org/
tuskon.php)
Turkish Cultural Foundation (http://www.turkishculturalfoundation.org/)
Turkish Industry & Business Association (TUSIAD) (http://www.tusiad.org/)
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Turkey Policy Center (http://www.turkishpolicycenter.com/)
Union of Chambers and Commodity Exchanges of Turkey (TOBB) (http://www.tobb.org.tr/)
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Appendix C. Historical Context
Changes to the old Kemalist order did not materialize suddenly with the AKP’s rise to power.
They reflect long-standing dynamics in Turkish politics and society that continue to evolve within
Turkey’s existing constitutional framework. Popular desires to allow greater public space for
traditional Islamic-oriented lifestyles manifested themselves politically as early as the 1950s
during the rule of Turkey’s first democratically elected leader, Adnan Menderes. Menderes was
eventually overthrown by a military-led coup in 1960 (and subsequently hanged), and the military
continued to discourage the overt influence of religion in politics, intervening again in 1971 and
1980 to replace governments that it deemed had lost control of the country or had steered it away
from secularism or toward ideological extremes.
The military allowed Deputy Prime Minister for Economic Affairs (later Prime Minister and
President) Turgut Ozal to begin liberalizing the traditionally statist Turkish economy following its
restoration of internal order in 1980. This helped set in motion a chain of events leading to the
economic and political empowerment of millions of Turks hailing from traditional communities
removed from Turkey’s more secular urban centers. Subsequent social and political developments
reflected accommodation of this rising middle class—many of whom migrated to bigger cities—
and their values. For example, imam hatip religious schools, initially established for young males
seeking clerical careers, became widely attended by youth from religiously conservative families.
In 1997, the military compelled Turkey’s first-ever Islamist-led coalition government to resign,
but junior members of the coalition-leading Refah (Welfare) Party went on to form the AKP,159
which they characterize as a center-right reformist party without an Islamist agenda.


159 AKP members generally use the acronym “AK Party” or “AK,” partly because the Turkish word ak means “clean”
and “unblemished,” thus presenting an image of incorruptibility.
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Appendix D. Various Religious and Social Groups
in Turkey

Fethullah Gulen Movement160
The Fethullah Gulen movement (or community) became a nationwide grassroots movement in the
1980s as part of the emergence of the new conservative Turkish middle class. The movement is
comprised of adherents of Turkish imam Fethullah Gulen, who is now a permanent U.S.
resident.161 He preaches a distinctly Turkish brand of Islam that condemns terrorism,162 promotes
interfaith dialogue and cross-cultural understanding, and can function in concert with secular
democratic mechanisms and modern economic and technological modes of living. Gulenist-
affiliated schools163 and other organizations164 are also located in the United States and other
regions worldwide.
The movement rose to greater prominence in parallel with the AKP, and Gulen-inspired
businesses, media enterprises, schools, charitable organizations, and civil society groups now
exercise considerable influence in Turkey.165 Additionally, a Council on Foreign Relations analyst

160 For a range of views on the Gulen movement, see Joshua D. Hendrick, Gulen: The Ambiguous Politics of Market
Islam in Turkey and the World
, New York: New York University Press, 2013; M. Hakan Yavuz, Toward an Islamic
Enlightenment: The Gulen Movement
, New York: Oxford University Press, 2013; Helen Rose Ebaugh, The Gulen
Movement: A Sociological Analysis of a Civic Movement Rooted in Moderate Islam
, New York: Springer, 2010;
“Hank, The Gulen Movement, The Role of a Lifetime,” 60 Minutes, CBS News, May 13, 2012; Alexander Brock,
“What Is the Gulen Movement?,” Council on Foreign Relations, op. cit., Appendix B; Claire Berlinski, “Who Is
Fethullah Gulen?,” City Journal, vol. 22, no. 4, autumn 2012.
161 Gulen lives in seclusion at a retreat center with a few of his adherents in Saylorsburg, PA, in the Pocono Mountains.
He came to the United States in 1999 for medical treatment for a cardiovascular condition, and elected to stay after an
ultimately unsuccessful criminal case was brought against him in Turkey charging that he sought to undermine
Turkey’s secular government.
162 Days after the Al Qaeda terrorist attacks on September 11, 2011, Gulen took out an advertisement in the Washington
Post
condemning the attacks as incompatible with the teachings of Islam.
163 Gulen-inspired organizations have reportedly founded and operate approximately 136 publicly funded charter
schools in 26 U.S. states. Hendrick, op. cit., p. 217. These schools have generated publicity both for their high
academic quality and for questions and possible federal investigations regarding their hiring and business practices.
Phyllis Schlafly, “Look What’s Going On in Charter Schools,” creators.com, April 10, 2012; Stephanie Saul, “Charter
Schools Tied to Turkey Grow in Texas,” New York Times, June 6, 2011; Martha Woodall and Claudio Gatti, “U.S.
charter-school network with Turkish link draws federal attention,” Philadelphia Inquirer, March 20, 2011. In 2011, a
New Orleans school that some reports had linked to the Gulen movement was shut down—reportedly over an alleged
bribery attempt—and a school in Baton Rouge overseen by the same foundation is reportedly the current subject of an
FBI inquiry. Diana Samuels, “Kenilworth charter school, subject of apparent FBI inquiry, has ties to Turkish education
movement,” Times-Picayune (New Orleans), December 12, 2013. Tennessee’s legislature passed a bill limiting the
percentage of foreign employees permitted to work in its charter schools. The initiative was reportedly driven in large
part by political activists citing various media reports on Gulen-inspired schools. Mark Todd Engler, “Legislature
Passes Limits on Foreign Staffers at TN Charter Schools,” tnreport.com, April 16, 2012.
164 Adherents of Gulen’s teachings are involved with Turkish and Turkish-American trade associations and foundations
active in the United States—both regionally and in the Washington, DC, area. Such organizations reportedly include
the Turkic American Alliance umbrella of organizations and the business confederation TUSKON. Ilhan Tanir, “The
Gulen movement plays big in Washington,” Hurriyet Daily News, May 14, 2010; Ebaugh, op. cit., p. 49.
165 For example, adherents of Gulen’s teachings launched the Zaman newspaper in 1986. It is now the most widely
circulated newspaper in Turkey, and has an English-language sister publication, Today’s Zaman. Gulen also
encouraged a group of businessmen to launch the Samanyolu television channel—today a major channel in Turkey
(continued...)
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has written, “Opponents of both the AKP and the Gulen movement express concern that the
party’s influence over the parliament and executive branch provides the Gulenists with
unprecedented reach into government institutions, thereby threatening Turkey’s secular political
order.”166
Gulen, however, insists that he is neutral as to political parties and leaders in Turkey.167 As
discussed above, some developments indicate the possibility of a rift between the Erdogan-led
AKP and the Gulen movement.168 In April 2012, the Gulen-inspired Journalists and Writers
Foundation issued a lengthy statement asserting both that Hizmet (the Gulen movement’s name
for itself—a Turkish word meaning “service”) does not have a hierarchy to direct the actions of
individuals who adhere to its teachings, and that the movement’s support for principles of
democracy, human rights, and rule of law is not defined in terms of loyalty or opposition to the
AKP or any other political party.169 Whether the movement generally operates more like a
hierarchy or more like a loose confederation of philosophically similar groups and individuals is a
matter of considerable debate.
Religious Minorities
While U.S. constitutional law prohibits the excessive entanglement of the government with
religion, republican Turkey has maintained secularism or “laicism” by controlling or closely
overseeing religious activities in the country. This is partly to prevent religion from influencing
state actors and institutions, as it did during previous centuries of Ottoman rule. Sunni Muslims,
although not monolithic in their views on freedom of worship, have better recourse than other
religious adherents to the democratic process for accommodation of their views because of their
majority status. Minority Muslim sects (most prominently, the Alevis) and non-Muslim religions
largely depend on legal appeals, political advocacy, and support from Western countries to protect
their rights in Turkey.

(...continued)
with a worldwide reach through satellite and Internet transmission—in 1993.
166 Alexander Brock, “What Is the Gulen Movement?,” Council on Foreign Relations, op. cit., Appendix B. The
criminal case charging Gulen with undermining Turkey’s secular government was largely based on a video in which
Gulen apparently stated: “You must move in the arteries of the system without anyone noticing your existence until you
reach all the power centers…. You must wait until such time as you have gotten all the state power, until you have
brought to your side all the power of the constitutional institution in Turkey.” Berlinski, op. cit. Many of Gulen’s
supporters claimed that the video had been doctored.
167 Gulen asserted in August 2010 that “we are still at an equal distance from every party. We never told anybody to
enroll in a specific [party], attend its rallies or act as its supporters.” “Gulen Endorses Reform Package, Appealing for
‘Yes’ on Sept. 12,” Today’s Zaman, August 1, 2010. He has backed AKP-proposed constitutional amendments, but
distinguished his support for the substance of the initiatives from support for the party or individual leaders that had
proposed them. “Gulen Says His Call for Yes Vote Not Linked to Political Motives,” Today’s Zaman, August 25, 2010.
168 See footnote 54. One Turkish journalist, in attempting to contrast the Gulen movement with Islamists who
supposedly have influence on the AKP, wrote, “The Gulen Movement, though it is pious and unmistakably Muslim,
has always steered clear of Islamist ideology. Unlike the Islamists, who constitute an influential strain within the
A.K.P., Mr. Gulen’s followers have always valued Turkey’s relations with the West, championed accession to the
European Union, and have been friendly toward Jews and Christians. In return, some paranoid Turkish Islamists (and
even some secular nationalists) have accused Mr. Gulen of being a ‘C.I.A. agent.’” Akyol, op. cit.
169 “GYV: Hizmet a civilian movement, has no political ambitions,” Today’s Zaman, April 5, 2012.
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Christians and Jews
U.S. concerns focus on the rights of established Christian and Jewish communities and religious
leaderships and their associated foundations and organizations within Turkey to choose leaders,
train clergy, own property, and otherwise function independently of the Turkish government.170
Some Members of Congress routinely express grievances through proposed congressional
resolutions and through letters to the President and to Turkish leaders on behalf of the Ecumenical
(Greek Orthodox) Patriarchate of Constantinople, the spiritual center of Orthodox Christianity
based in Istanbul.171 On December 13, 2011, for example, the House passed H.Res. 306—“Urging
the Republic of Turkey to safeguard its Christian heritage and to return confiscated church
properties”—by voice vote.172
In an April 2012 interview with the Chicago Tribune, Ecumenical Patriarch Bartholomew was
quoted as saying that recent changes in Turkey
have been extremely positive. Years ago, you couldn't have dreamed of the changes. You
couldn’t have believed it. The prime minister has promised to restore properties confiscated
from Christians and Jews years ago. He has promised to reopen the Orthodox seminary at
Halki, which has been closed for many years. Of course, we have concerns in some areas,
and there are legal questions remaining, but the Orthodox-Islamic dialogue has been
extremely positive. More positive than I ever would have imagined.173
Patriarch Bartholomew, along with various U.S. and European officials, continues to press for the
reopening of the Halki Theological School. In March 2013, Erdogan reportedly conditioned
Halki’s reopening on measures by Greece to accommodate its Muslim community.174 In January
2013, 190 hectares of forestland surrounding Halki were returned to the Greek Orthodox

170 The U.S. Commission on International Religious Freedom (USCIRF) included Turkey on its watch list from 2009 to
2011, and, in a decision disputed among the commissioners, recommended in 2012 that the State Department list
Turkey as a “country of particular concern” (CPC). In USCIRF’s 2013 report, Turkey was not included on either the
watch list (now reclassified as “Tier 2”) or the CPC list, but on a separate list of countries being “monitored.” Four of
the eight commissioners dissented, saying that Turkey’s 2012 CPC listing was a mistake, but that it should remain on
the watch list/Tier 2. For additional information on Turkey’s religious minorities, see the State Department’s
International Religious Freedom Report for 2012.
171 The Patriarchate traces its roots to the Apostle Andrew. The most commonly articulated congressional grievances on
behalf of the Patriarchate—whose ecumenicity is not acknowledged by the Turkish government, but also not objected
to when acknowledged by others—are the non-operation of the Halki Theological School on Heybeliada Island near
Istanbul, the requirement that the Patriarch be a Turkish citizen, and the failure of the Turkish government to return
previously confiscated properties.
172 H.Res. 306 was sponsored by Representative Edward Royce, now Chairman of the House Foreign Affairs
Committee. An identically worded proposed resolution was introduced in the Senate in March 2012 as S.Res. 392.
Proposed resolutions from the 113th Congress include H.Res. 136 (“Urging Turkey to respect the rights and religious
freedoms of the Ecumenical Patriarchate”), and H.Res. 188 (“Calling upon the Government of Turkey to facilitate the
reopening of the Ecumenical Patriarchate’s Theological School of Halki without condition or further delay.”). H.Res.
188 was forwarded to the House Foreign Affairs Committee on November 19, 2013, by its Subcommittee on Europe,
Eurasia, and Emerging Threats.
173 John Kass, “With faith and hope, Turkey builds a new identity,” Chicago Tribune, April 11, 2012. Some sources
indicate that Prime Minister Erdogan promised at a March 2012 meeting with President Obama in Seoul, South Korea,
that he would reopen the Halki seminary. See, e.g., David Ignatius, “Obama’s friend in Turkey,” Washington Post,
June 7, 2012.
174 “PM indicates opening Halki Seminary depends on reciprocal gesture by Greece,” todayszaman.com, March 30,
2013.
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foundation listed as its owner-of-record, as part of the government’s return of properties to
religious groups discussed immediately below.175
At various times in the Turkish Republic’s history, the state has confiscated the properties of
religious groups as part of its efforts to control religious life in the country. In late August 2011,
Erdogan announced that Turkey would return properties confiscated since the adoption of a 1935
law governing religious foundations, to the extent the properties are still held publicly.176 Many of
these properties were confiscated following a Turkish High Court of Appeals ruling in 1974 that
had invalidated religious foundations’ abilities to acquire real estate.177 Properties subject to
return include schools, orphanages, cemeteries, commercial properties, and hospitals affiliated
with various Christian churches and Turkey’s Jewish community. According to one report, “The
government’s willingness to explore restitution does not yet cover the hundreds, if not thousands,
of property seizures from individuals, or the takeovers that occurred before 1936. An even more
contentious point is confiscation that occurred prior to the formation of the Republic of Turkey in
1923.”178 Prior to Erdogan’s 2011 decree, which followed an earlier 2008 amendment to the law
on religious foundations, the European Court of Human Rights made multiple rulings requiring
Turkey to pay compensation to various religious-affiliated organizations after earlier attempts by
the government to remedy the situation did not satisfy the organizations. According to the 2013
annual report of the U.S. Commission on International Religious Freedom:
Between the passage of the 2008 amendment and August 2011, approximately 200
properties were reportedly returned to religious minority foundations of various
denominations. Between the August 2011 decree and January 31, 2013, some 300 additional
properties (worth an estimated 1.5 billion dollars) have been returned to minority
foundations.
Alevis
Most Muslims in Turkey are Sunni, but 10 million to 20 million are Alevis (of whom about 20%
are ethnic Kurds). The Alevi community has some relation to Shiism179 and may contain strands
from pre-Islamic Anatolian and Christian traditions.180 Alevism has been traditionally influenced
by Sufi mysticism that emphasizes believers’ individual spiritual paths, but it defies precise
description owing to its lack of centralized leadership and reliance on oral traditions historically
kept secret from outsiders. According to the State Department’s International Religious Freedom
Report for 2012, “The government considers Alevism a heterodox Muslim sect and does not
financially support religious worship for Alevi Muslims.” Alevis have long been among the

175 Fatma Disli Zibak, “Turkey makes largest property return to Greek Orthodox community,” todayszaman.com,
January 11, 2013.
176 According to reports, the foundations would receive compensation for property since transferred to third parties. See
Sebnum Arsu, “Turkish Government to Return Seized Property to Religious Minorities,” New York Times, August 29,
2011.
177 The ability for these foundations to acquire real estate has since been restored. The 1974 court ruling came at a time
of high Turkish-Greek tensions with the outbreak of conflict in Cyprus.
178 Dorian Jones, “Turkey: Making Room for Religious Minorities,” EurasiaNet.org, October 3, 2011.
179 For information comparing and contrasting Sunnism and Shiism, see CRS Report RS21745, Islam: Sunnis and
Shiites
, by Christopher M. Blanchard; and CRS Report WVB00001, Sunni and Shi'a Islam: Video Brief, by Christopher
M. Blanchard.
180 For additional historical background, see Elise Massicard, The Alevis in Turkey and Europe: Identity and managing
territorial diversity
, New York: Routledge, 2013, pp. 11-18.
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strongest supporters of Turkey’s secular state, which they reportedly perceive as their protector
from the Sunni majority.181 Recent developments appear to have heightened Sunni-Alevi tensions,
including those pertaining to the June 2013 protests, the Syrian conflict and Turkey’s policy
(Arab Alawites in Syria and southern Turkey are a distinct Shia-related religious community, but
are often likened to Alevis by the region’s Sunni Muslims), and frustrated expectations among
some Alevi leaders that the government reform package announced in September 2013 would
address their grievances.182

181 According to a Boston University anthropologist who studies modern Turkish society, “Alevis suffered centuries of
oppression under the Ottomans, who accused them of not being truly Muslim and suspected them of colluding with the
Shi’i Persians against the empire. Alevi Kurds were victims of the early republic’s Turkification policies and were
massacred by the thousands in Dersim [now called Tunceli] in 1937-39. In the 1970s, Alevis became associated with
socialist and other leftist movements, while the political right was dominated by Sunni Muslims. An explosive mix of
sectarian cleavages, class polarization, and political violence led to communal massacres of Alevis in five major cities
in 1977 and 1978, setting the stage for the 1980 coup.” Jenny White, Muslim Nationalism and the New Turks,
Princeton: Princeton University Press, 2013, p. 14. See also Bipartisan Policy Center, op. cit., footnote 62.
182 Bipartisan Policy Center, op. cit., p. 28.
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Appendix E. Additional Foreign Policy Issues
European Union183
The Turkish government uses its demographic profile to support its bid for EU membership,
arguing that the country would bring a young, dynamic population to the aging ranks of Europe
and boost EU influence in the Muslim world. Turkey first sought to associate itself with what was
then the European Economic Community (EEC) in 1959, and Turkey and the EEC entered into an
agreement of association in 1963. Since the end of 1995, Turkey has had a full customs union
with the EU, which is viewed by many observers as one of the primary drivers of the competitive
surge of Turkey’s economy during the 2000s.184 Turkey also is a member of the Council of
Europe, along with several other non-EU states (including Russia), and is subject to the
jurisdiction of the Council’s European Court of Human Rights.
EU accession talks, which began in 2005, have been stalled owing to the opposition of key EU
states—most notably France and Germany—to Turkey’s full membership. Opponents generally
give empirical reasons for their positions, but many analysts argue that resistance to Turkish EU
accession is rooted in a fear that Turkey’s large Muslim population would fundamentally change
the cultural character of the EU and dilute the power of the EU’s founding Western European
states to drive the policy agenda. As mentioned above, Turkey’s unwillingness to normalize
diplomatic and trade relations with EU member Cyprus presents a major obstacle to its accession
prospects.185 Other EU concerns over Turkey’s qualifications for membership center on the
treatment of Kurds and religious minorities, media freedoms, women’s rights, and the proper and
transparent functioning of Turkey’s democratic and legal systems.186 One U.S.-based European
analyst writes, “Turkey’s process of alignment with EU laws and standards is still very
incomplete and interest in this goal seems to have weakened as political forces that once
embraced the goal [as a means for facilitating Turkish domestic reform] have become stronger
and more self-reliant.”187 Debate regarding Turkey’s alignment with EU standards intensified as a
result of the June 2013 protests and the government’s response,188 though accession talks opened
on a new chapter of the acquis communautaire in November 2013.

183 For more information on this subject, see CRS Report RS22517, European Union Enlargement: A Status Report on
Turkey’s Accession Negotiations
, by Vincent L. Morelli; and CRS Report RS21344, European Union Enlargement, by
Kristin Archick.
184 Council on Foreign Relations, op. cit., p. 18.
185 Turkey’s unwillingness to open its ports to Greek Cypriot trade according to the Additional Protocol that it signed at
the outset of the accession process in 2005 prompted the EU Council to block eight out of the 35 chapters of the acquis
communautaire
that Turkey would be required to meet to the Council’s satisfaction in order to gain EU membership.
France blocked five additional chapters in 2007 and the Republic of Cyprus blocked six in 2009. France unblocked one
chapter in early 2013, in what some analysts interpreted as a portent for better prospects of Turkey’s eventual
accession. Thus far, one of the chapters has been fully negotiated, and 14 others have been opened.
186 European Commission Staff Working Document, Turkey 2013 Progress Report, October 16, 2013.
187 Emiliano Alessandri, “Turkey-EU Relations: Back to Basics?,” On Turkey, German Marshall Fund of the United
States, February 27, 2013.
188 The European Parliament raised multiple concerns about the state of civil liberties and pluralism in Turkey, and
strongly criticized Erdogan and his government. European Parliament Resolution of 13 June 2013 on the Situation in
Turkey (2013/2664(RSP)).
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Turkish domestic expectations of and support for full accession to the EU were apparently
already waning before the June 2013 protests, and before fundamental concerns arose over the
economic and political soundness of the EU as a result of the eurozone crisis.189 In September
2013, Turkey’s Minister for EU Affairs and chief accession negotiator, Egeman Bagis, was quoted
as saying, “In the long run I think Turkey will end up like Norway. We will be at European
standards, very closely aligned but not as a member.”190 Nevertheless, the EU provides over $1
billion in annual pre-accession financial and technical assistance to Turkey aimed at harmonizing
its economy, society, bureaucracy, and political system with those of EU members.191
Cyprus and the Eastern Mediterranean192
Since Cyprus became independent of the United Kingdom in 1960, Turkey has viewed itself and
has acted as the protector of the island’s ethnic Turkish minority from potential mistreatment by
the ethnic Greek majority.193 Responding to Greek and Cypriot political developments that raised
concerns about a possible Greek annexation of Cyprus, Turkey’s military intervened in 1974194
and established control over the northern third of the island, prompting an almost total ethnic and
de facto political division along geographical lines. That division persists today and is the subject
of continuing international efforts aimed at reunification.195 Additionally, according to a New York
Times
article, “after the 1974 invasion, an estimated 150,000 Turkish settlers arrived in the north
of Cyprus, many of them poor and agrarian Turks from the mainland, who Greek Cypriots say are
illegal immigrants used by Turkey as a demographic weapon.”196 The ethnic Greek-ruled
Republic of Cyprus is internationally recognized as having jurisdiction over the entire island,
while the de facto Turkish Republic of Northern Cyprus in the northern third has only Turkish
recognition. Congress imposed an embargo on military grants and arms sales to Turkey from

189 Dan Bilefsky, “For Turkey, Lure of Tie to Europe Is Fading,” New York Times, December 4, 2011. According to the
Transatlantic Trends surveys of the German Marshall Fund of the United States, the percentage of Turks who think
that Turkish EU membership would be a good thing was 73% in 2004 and 44% in 2013.
190 Alex Spillius, “Turkey ‘will probably never be EU member,’” telegraph.co.uk, September 21, 2013.
191 See http://ec.europa.eu/enlargement/instruments/funding-by-country/turkey/index_en.htm for further information.
192 For more information on this subject, see CRS Report R41136, Cyprus: Reunification Proving Elusive, by Vincent
L. Morelli.
193 Turkey views its protective role as justified given its status as one of the three guaranteeing powers of the 1960
Treaty of Guarantee that was signed at the time Cyprus gained its independence. The United Kingdom and Greece are
the other two guarantors.
194 Turkish intervention in Cyprus with U.S.-supplied arms prompted Congress to impose an embargo on military
assistance and arms sales to Turkey from 1975 to 1978. This Cold War-era disruption in U.S.-Turkey relations is often
cited by analysts as a major factor in Turkey’s continuing efforts to avoid overdependence on the United States or any
other country for military equipment or expertise.
195 Turkey retains between 30,000 and 40,000 troops on the island (supplemented by approximately 5,000 Turkish
Cypriot soldiers and 26,000 reserves). “Turkish Republic of Northern Cyprus,” Jane’s Sentinel Security Assessment -
Eastern Mediterranean
, October 30, 2009. This is countered by a Greek Cypriot force of approximately 12,000
(including roughly 1,300 Greek officers and soldiers seconded to Cyprus) with reported access to 50,000 reserves.
“Cyprus,” Jane’s World Armies, November 3, 2011. The United Nations maintains a peacekeeping mission
(UNFICYP) of approximately 900 personnel within a buffer zone headquartered in Cyprus’s divided capital of Nicosia
(known as Lefkosa in Turkish). Since the mission’s inception in 1964, UNFICYP has suffered 179 fatalities. The
United Kingdom maintains approximately 3,000 personnel at two sovereign military bases on the southern portion of
the island at Akrotiri and Dhekelia.
196 Dan Bilefsky, “On Cyprus Beach, Stubborn Relic of Conflict,” New York Times, August 3, 2012. The CIA World
Factbook estimates Cyprus’s total population to be 1,150,000 (77% Greek, 18% Turkish, 5% other).
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1975 to 1978 in response to Turkey’s use of U.S.-supplied weapons in the 1974 conflict, and
several Members remain interested in Cyprus-related issues.197
The Republic of Cyprus’s accession to the EU in 2004 and Turkey’s refusal to normalize political
and commercial relations with it are seen as a major obstacle to Turkey’s EU membership
aspirations. The Cyprus dilemma also hinders effective EU-NATO defense cooperation.
Moreover, EU accession may have reduced incentives for Cyprus’s Greek population to make
concessions toward a reunification deal. The Greek Cypriots rejected by referendum a United
Nations reunification plan (called the Annan plan after then Secretary-General Kofi Annan) in
2004 that the Turkish Cypriot population accepted. Turkey and Turkish Cypriot leaders claim that
the Turkish Cypriot regime’s lack of international recognition unfairly denies its people basic
economic and political rights, particularly through barriers to trade with and travel to countries
other than Turkey.
Turkey and Turkish Cypriots have assertively opposed efforts by the Republic of Cyprus and
other Eastern Mediterranean countries—most notably Israel—to agree upon a division of offshore
energy drilling rights without a solution to the question of the island’s unification.198 The
Republic of Cyprus appears to anticipate considerable future export revenue from drilling in the
Aphrodite gas field off Cyprus’s southern coast. In the wake of the Republic of Cyprus’s early
2013 euro bailout, and given analyses indicating that the most efficient way for the Republic to
export its newfound energy resources would be by constructing a pipeline to Turkey, some
observers speculate that the potential financial benefits of unification justify renewed diplomatic
efforts to that end.199 In testimony at a July 11, 2013, Senate Foreign Relations Committee
hearing considering her nomination as Assistant Secretary of State for European and Eurasian
Affairs, Victoria Nuland (who was subsequently confirmed in September 2013) said:
I think circumstances are changing, attitudes are changing, not just within Cyprus but also in
Greece and in Turkey, and we have to capitalize on that. We also have natural gas off the
coast of Turkey, which is off the coast of Cyprus, which is a powerful motivator for getting
to the solution that we all want which is a bizonal bicommunal federation that can share the
benefits.
Armenia200
In late 2009, Turkey and Armenia, aided by Swiss mediation, agreed to joint protocols that would
have normalized relations and opened borders between the two countries. They also would have
called for a dialogue and impartial examination of the historical record with respect to “existing

197 See, e.g., from the 112th Congress, H.Res. 676 (To expose and halt the Republic of Turkey's illegal colonization of
the Republic of Cyprus with non-Cypriot populations, to support Cyprus in its efforts to control all of its territory, to
end Turkey's illegal occupation of northern Cyprus, and to exploit its energy resources without illegal interference by
Turkey.); S.Con.Res. 47 (A concurrent resolution expressing the sense of Congress on the sovereignty of the Republic
of Cyprus over all of the territory of the island of Cypress [sic].); and H.R. 2597 (American-Owned Property in
Occupied Cyprus Claims Act).
198 “Gas drilling heightens east Mediterranean tension,” UPI, September 16, 2011.
199 See, e.g., “Divided they fall,” Economist, April 27, 2013. Additionally, Greek Cypriots elected Nicos Anastasiades
as president of the Republic of Cyprus in February 2013. Anastasiades is one of the few Greek Cypriot leaders to have
backed the 2004 Annan Plan for reunification.
200 For more information, see CRS Report RL33453, Armenia, Azerbaijan, and Georgia: Political Developments and
Implications for U.S. Interests
, by Jim Nichol.
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problems,” widely believed to refer to the issue of World War I-era deaths of hundreds of
thousands of Armenians through the actions of Ottoman Empire authorities. Turkish leaders were
unwilling to push for parliamentary ratification of the protocols, however, due to Azerbaijani
objections to Turkey-Armenia normalization prior to desired progress on the issue of Nagorno-
Karabakh.201 Azerbaijan influences Turkish policy on this issue because of its close cultural and
economic ties with Turkey, particularly as Azerbaijan is a key energy supplier. Another possible
cause for Turkish reluctance was a 2010 Armenian constitutional court ruling that indicated
inflexibility on the genocide issue. Subsequently, Turkey and Armenia have made little or no
progress toward ratifying the protocols or otherwise normalizing their relations, though the
protocols remain under consideration in Turkey’s parliament.202 The tenor of relations between
Turkey and Armenia could be an important factor in a potential congressional debate over a future
genocide resolution.
Other International Relationships
As Turkey continues to exercise increased political and economic influence, it seeks to establish
and strengthen relationships with non-Western global powers. As discussed above, it is expanding
trade and defense industrial ties with China and Russia. It is doing the same with other countries
in Asia and Africa.
Turkey additionally seeks to expand the scope of its geographical influence, with its officials
sometimes comparing its historical links and influence with certain countries—especially former
territories of the Ottoman Empire—to the relationship of Britain with its commonwealth.
Through hands-on political involvement, as well as increased private trade and investment and
public humanitarian and development projects, Turkey has enhanced its influence and image as a
leading Muslim-majority democracy with Muslim-populated countries not only in the greater
Middle East, but also in the Balkans, the Caucasus and Central Asia, and sub-Saharan Africa.203

201 Nagorno-Karabakh is a predominantly ethnic-Armenian-populated enclave within Azerbaijan’s international
borders. Disputes over its status led to armed conflict in 1991 in parallel with the Soviet Union’s dissolution and the
independence of both Armenia and Azerbaijan. The conflict ended with a 1994 ceasefire, but Armenian troops still
occupy portions of the territory. The Minsk Group of the Organization for Security and Cooperation in Europe (co-
chaired by the United States, Russia, and France, and including both Armenia and Azerbaijan, as well as Turkey and a
number of other European countries) has been trying to negotiate a permanent settlement since then.
202 In the meantime, Turkey and Azerbaijan signed a 10-year security and mutual assistance agreement in August 2010.
203 See, e.g., Hajrudin Somun, “Turkish Foreign Policy in the Balkans and ‘Neo-Ottomanism’: A Personal Account,”
Insight Turkey, vol. 13, no. 3, summer 2011; Yigal Schleifer, “Turkey’s Neo-Ottoman Problem,” World Politics
Review
, February 16, 2010; Greg Bruno, “Turkey’s Near Abroad,” Council on Foreign Relations Analysis Brief,
September 19, 2008.
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Appendix F. Congressional Committee Reports of
Armenian Genocide-Related Proposed Resolutions

Date Reported or of
Vote for Report
Proposed Resolution(s)
Committee
April 5, 1984
S.J.Res. 87
Senate Judiciary
September 28, 1984
S.Res. 241
Senate Foreign Relations
July 9, 1985
H.J.Res. 192
House Post Office and Civil Service
July 23, 1987
H.J.Res. 132
House Post Office and Civil Service
August 3, 1987
H.Res. 238
House Rules
October 18, 1989
S.J.Res. 212
Senate Judiciary
October 11, 2000
H.Res. 596 and H.Res. 625
House Rules
May 22, 2003
H.Res. 193
House Judiciary
September 15, 2005
H.Res. 316 and H.Con.Res. 195
House International Relations
March 29, 2007
S.Res. 65
Senate Foreign Relations
October 10, 2007
H.Res. 106
House Foreign Affairs
March 4, 2010
H.Res. 252
House Foreign Affairs


Author Contact Information

Jim Zanotti

Specialist in Middle Eastern Affairs
jzanotti@crs.loc.gov, 7-1441




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