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Cyprus: Status of U.N Order Code RL33497 Cyprus: Status of U.N. Negotiations and Related Issues Updated March 6, 2008 Carol Migdalovitz Specialist in Middle Eastern Affairs Foreign Affairs, Defense, and Trade Division Cyprus: Status of U.N. Negotiations and Related Issues Summary Cyprus has been divided since 1974. Greek Cypriots, 76% of the population, live in the southern two-thirds of the island. Turkish Cypriots, 19% of the populace, live in the “Turkish Republic of Northern Cyprus” (TRNC), recognized only by Turkey, with about 36,000 Turkish troops providing security. United Nations peacekeeping forces (UNFICYP) maintain a buffer zone between the two. Since the late 1970s, the U.N., with U.S. support, has promoted negotiations aimed at reuniting the island as a federal, bicommunal, bizonal republic. The U.N. Secretary General’s April 5, 1992, “Set of Ideas” was a major, but unsuccessful, framework for negotiations for an overall settlement. Next, both sides accepted U.N. confidence-building measures only in principle and they were not recorded or implemented. The prospect of Cyprus’s European Union (EU) accession and its eventual membership intensified and complicated settlement efforts. After five rounds of U.N.-mediated proximity (indirect) talks, Secretary General Kofi Annan presented “observations” on substance and procedure on November 8, 2000, leading Turkish Cypriot leader Rauf Denktash to withdraw from the talks for a year. Denktash and (Greek) Cypriot President Glafcos Clerides later agreed to begin direct talks on January 16, 2002. On November 11, Annan submitted a comprehensive settlement Plan based on Swiss and Belgian government models, but the two sides did not agree on it. After still more negotiations, Annan announced on March 11, 2003 that his efforts had failed. Cyprus signed an accession treaty to join the EU on April 16. The December 14, 2003, Turkish Cypriot parliamentary elections in northern Cyprus produced a new government determined to reach a settlement. The U.N. led negotiations from February 19-March 22, 2004, and continued in Switzerland, with Greek and Turkish leaders present. Annan presented a final, revised Plan on March 31. In referenda on April 24, 76% of Greek Cypriot voters rejected the Plan, while 65% of Turkish Cypriot voters accepted it. Annan blamed (Greek) Cypriot President Tassos Papadopoulos for the result. Cyprus joined the EU on May 1, 2004. More than two years later, Papadopoulos and Turkish Cypriot leader Mehmet Ali Talat met U.N. Undersecretary Ibrahim Gambari and agreed, on July 8, 2006, to discuss “issues that affect day-to-day life” and, concurrently, substantive issues. This accord has not been implemented. Dimitris Christofias’s election as (Greek) Cypriot president on February 24, 2008 has revived hope for the settlement process. Some Members of Congress have urged the Administration to be more active, although they have not proposed an alternative to the U.N.-sponsored talks. Since the referenda, the Administration has been working to end the isolation of the Turkish Cypriots in order to diminish economic disparities between them and the Greek Cypriots and pave the way for reunification. Some Members have questioned this policy. Members are maintaining their interest in Cyprus in the 110th Congress partly due to keen constituent concern. This CRS report will be updated as developments warrant. Contents Most Recent Developments ..........................................1 Background ......................................................2 Settlement Efforts and Other Developments ............................3 1977 Makarios-Denktash Meeting .............................4 1979 Kyprianou-Denktash Communique .......................4 1984 Proximity Talks .......................................4 1988-89 Talks ............................................4 March 1990-April 1992 .....................................4 Set of Ideas...............................................4 Confidence-Building Measures...............................5 Missiles .................................................6 Other Developments 1997-2001 ..............................6 Proximity Talks ...........................................7 Developments, 2002-2003 ...................................8 Annan Plan...............................................8 2004 Referenda and After ..................................10 Developments in 2006, including “the July 8 Agreement” .........13 Developments in 2007 .....................................15 Other Factors Affecting the Talks....................................16 Domestic Politics in Cyprus .....................................16 Greek Cypriots...........................................16 Turkish Cypriots .........................................16 Policies of Greece and Turkey ...................................17 European Union..............................................18 U.N. Peacekeeping Forces ..........................................22 U.S. Policy......................................................23 Settlement ..................................................23 Aid........................................................25 110th Congress Legislation..........................................25 List of Figures Figure 1. Map of Cyprus...........................................26 Cyprus: Status of U.N. Negotiations and Related Issues Most Recent Developments On February 24, 2008, Soviet-educated, 61-year-old, Dimitris Christofias was elected President of Cyprus in a second round of voting with 53.36% of the vote and the backing of his own Progressive Party of Working People (AKEL/communist), the Democratic Party (DIKO), the United Democratic Union of Cyprus (EDEK/socialist) and the United Democrats. Former Foreign Minister Ioannis Cassoulides of the Democratic Rally (DISY) placed second with 46.64% of the vote. Ousted President Tassos Papadopoulos and several other candidates had been eliminated in the first round of voting on February 17; Papadopoulos placed third and did not make it into the run off. Both Christofias and Cassoulides campaigned by opposing Papadopoulos’s uncompromising policies of toward the Turkish Cypriots and stagnation in settlement efforts. In his inaugural address, Christofias declared that he hopes to achieve a “just, viable, and functional solution” to the Cyprus problem and build a fairer society. He seeks to restore the unity of the island as a federal, bizonal, bicommunal Republic, exclude any rights for military intervention, and provide for the withdrawal of Turkish troops and, ultimately, the demilitarization of the island. He said that the starting point would be implementation of the July 8, 2006 agreement (see "Developments in 2006, Including the July 8 Agreement,” below.) As a candidate, Christofias maintained that Greek Cypriot refugees must be given the right to choose whether they want to return to their homes under Turkish Cypriot administration and that Turkish settlers cannot become citizens of the Republic.1 Christofias also has reaffirmed that the 2004 Annan Plan is null and void. All of these are well- established Greek Cypriot positions. AKEL has promoted bicommunal contacts over the years and Christofias has amicable relations with Turkish Cypriot leader Mehmet Ali Talat. After the election, Talat said, “A solution in Cyprus is possible by the end of 2008 and such a solution would not be a surprise.”2 He also declared that “the goal is to establish a new 1 “Christofias: I Will Take Initiatives to Solve the Cyprus Problem,” Cyprus News Agency, February 7, 2008. 2 “I am Hopeful about a Solution, TRNC President Talat,” Anatolia, February 25, 2008, BBC Monitoring European, February 26, 2008. CRS-2 partnership state in Cyprus, based on the political equality of the two peoples and the equal status of two constituent states.”3 Christofias appointed ministers from AKEL, DIKO, and EDEK, reviving the three-party coalition of the Papadopoulos government. He named Markos Kyprianou of DIKO, a former European Commissioner of Health and Consumer Protection and Member of the European Parliament, and son of former President Spyros Kyprianou, to be foreign minister. Kyprianou holds a Master’s in law degree (LLM) from Harvard Law School. DIKO party leader Marios Karoyan is to be President of the House (Speaker), having the backing of AKEL, DIKO, EDEK, and EVROKO. The Secretary-General’s Special Representative in Cyprus Michael Moller met Christofias and Talat separately and said that he expects them to meet this month, between March 17 and 24. Christofias said that the first meeting would be “exploratory” and might address confidence-building measures such as opening the Ledra Street crossing in Nicosia. U.N. Secretary-General Ban Ki-moon had requested an increased budget of $631,000 for 2008 to cover the possible appointment of a Special Advisor for Cyprus and staff “depending on developments on the island.” Moller is slated to leave his post at the end of March; his replacement has not been named. On March 6, U.N. Under-Secretary for Political Affairs Lynn Pascoe announced the creation of a U.N. Standby-Team of Mediation Experts, whom he said could help in the case of Cyprus. The U.S. State Department congratulated Christofias on his election and said that it looked forward to building upon cooperation to fight terrorism, safeguard Cyprus’s cultural heritage, and promote reconciliation and reunification of the island. Background The island Republic of Cyprus gained its independence from Great Britain in 1960. The 784,000 Cypriots
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