Turkey: Background and U.S. Relations
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Turkey: Background and U.S. Relations /name redacted/ Specialist in Middle Eastern Affairs October 5, 2015 Congressional Research Service 7-.... 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 questions and considerations for Members of Congress. 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, and has close economic links with the European Union, its increased economic and military self- reliance since the Cold War allows Turkey relatively greater opportunity for an assertive role in foreign policy. 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 alignment on general foreign policy objectives with substantive points of disagreement. Greater Turkish independence of action and continuing political transformation appear to have been mutually reinforcing—with both led for more than a decade by President (previously 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. Since the United States assembled an international coalition in 2014 to counter the Islamic State organization in both Iraq and Syria, Turkey’s role vis-à-vis its two southern neighbors became more consequential. Congress has shown considerable interest in the nature and level of Turkey’s cooperation, including with respect to flows of foreign fighters, supplies, and oil to and from Syria. In the summer of 2015, the United States and Turkey began coordinating airstrikes against the Islamic State from Turkish territory, as part of a larger arrangement that may contemplate clearing the Islamic State from a specific area in northwestern Syria near the Turkish border. Such an arrangement, however, appears to face political and operational obstacles. The United States faces challenges in simultaneously partnering with Turkey and with Syrian Kurdish fighters who have proven to be effective against the Islamic State, but are affiliated with the Kurdish militant group PKK (Kurdistan Workers’ Party), which recently resumed hostilities with the Turkish government. Congress also focuses on the following subjects regarding Turkey, among others: Turkey’s domestic politics and stability, particularly in anticipation of November 2015 elections amid significant political and economic uncertainty and Turkey- PKK violence. Difficulties in Turkey’s relations with Israel, how they might affect U.S.-Turkey relations, and prospects of their improvement. Long-standing grievances against Turkey among Christians in Turkey and in other countries—such as Armenia and Cyprus—dating back to various 20th Century events. Congressional action to influence arms sales to and trade with Turkey, efforts to counter the Islamic State and to shape political outcomes in Syria and Iraq, and the U.S. relationship with Iran and with various Kurdish groups could have implications for the bilateral alliance, as could any linkage of these issues with U.S.-Turkey dealings on matters regarding Israel, Armenia, Cyprus, and non-NATO countries such as China and Russia. Congressional Research Service Turkey: Background and U.S. Relations Contents Introduction and Issues for Congress .............................................................................................. 1 Country Overview ........................................................................................................................... 3 Domestic Politics and Stability ................................................................................................. 4 The Kurdish Issue ..................................................................................................................... 8 Background ......................................................................................................................... 8 Recent Resumption of Violence and Future Prospects ....................................................... 9 Economy .................................................................................................................................. 11 General Overview .............................................................................................................. 11 Energy ............................................................................................................................... 12 U.S.-Turkey Relations ................................................................................................................... 14 Overview ................................................................................................................................. 14 Bilateral and NATO Defense Cooperation .............................................................................. 16 Background ....................................................................................................................... 16 U.S./NATO Presence in Turkey ........................................................................................ 16 U.S. Arms Sales and Aid to Turkey .................................................................................. 18 U.S. and International Views on Turkish Domestic Developments ........................................ 19 Bilateral Trade ......................................................................................................................... 19 Syria and Iraq: Specific Considerations .................................................................................. 20 U.S.-Turkey Coordination Against the Islamic State ........................................................ 20 Syria: Foreign Fighters and Smuggling ............................................................................ 24 Iraq: Turkey’s Conflicting Priorities Regarding Kurds ..................................................... 27 Key U.S. Policy Questions ................................................................................................ 28 Turkish Foreign Policy: Other Issues with Import for U.S. Relations .................................... 28 Israel.................................................................................................................................. 28 Iran .................................................................................................................................... 30 Armenia ............................................................................................................................ 31 Cyprus and the Eastern Mediterranean ............................................................................. 32 Other International Relationships ..................................................................................... 33 Status of Religious Minorities in Turkey ................................................................................ 34 Christians and Jews ........................................................................................................... 34 Alevis ................................................................................................................................ 35 Turkey’s Strategic Orientation: Past, Present, Future .................................................................... 36 Conclusion ..................................................................................................................................... 37 Figures Figure 1. Turkey: Map and Basic Facts ........................................................................................... 3 Figure 2. Turkish Parliamentary Election Results, June 2015 ......................................................... 7 Figure 3. Major Pipelines Traversing Turkey and Possible Nuclear Power Plants ....................... 13 Figure 4. Map of U.S. and NATO Military Presence in Turkey .................................................... 17 Figure 5. Area of Possible U.S.-Turkey Cooperation in Syria ...................................................... 22 Figure 6. Timeline of Selected Events Regarding Turkey, Kurds, and the Islamic State .............. 23 Congressional Research Service Turkey: Background and U.S. Relations Tables Table 1. Trends in the Turkish Economy: 1975-2013..................................................................... 11 Appendixes Appendix A. Profiles of Key Figures in Turkey ............................................................................ 38 Appendix B. List of Selected Turkish-Related Organizations in the United States ...................... 41 Appendix C. Significant U.S.-Origin Arms Transfers or Possible Arms Transfers to Turkey .......................................................................................................................................