From Syria to the Eastern Mediterranean and Libya Günter Seufert

NO. 6 FEBRUARY 2020 Introduction

Turkey Shifts the Focus of Its Foreign Policy From Syria to the Eastern Mediterranean and Libya Günter Seufert

On 27 November 2019, Turkish President Recep Tayyip Erdoğan declared that Turkey had concluded a treaty on military assistance and cooperation with the government of Fayez al-Sarraj in Libya. The agreement permits the deployment of Turkish troops into the civil-war-torn country. The announcement was met with almost unanimous criticism in Western Europe. The indignation grew even greater when it became known that Turkey was controlling and financing the smuggling of Islamic Syrian fighters into Libya. Reports of a dominant influence of the Muslim Brotherhood on the Libyan gov- ernment seemed to complete the picture of a strongly Islamist-motivated Turkish policy. However, Turkey’s engagement in Libya is not driven by ideology, but rather by stra- tegic considerations and economic interests. Ankara is thus reacting to its isolation in the eastern Mediterranean, where the dispute over the distribution of gas resources is intensifying. At the same time, Turkey is drawing lessons from the war in Syria. An- kara has lost this war, but through its engagement in Syria, it has been able to estab- lish a conflictual – but viable – working relationship with Russia. The bottom line is that Turkey’s commitment to Libya is a shift in the focus of its foreign policy from the Middle East to the Mediterranean, a shift that will present entirely new challenges to Europe, the European Union (EU), and the North Atlantic Treaty Organization (NATO).

On 15 January 2020, The Guardian reported There Is Little to Gain in Syria that Turkey has so far deployed 650 irregular fighters to Libya, members of the so-called In Ankara, the ruling Justice and Develop- Syrian National Army, which is a union of ment Party (AKP) has buried its hopes of armed opposition groups created by Turkey. bringing the likeminded Muslim Brother- Another 1,350 had also been withdrawn hood to power in Syria and then using the from Syria and were being prepared in Tur- country as a gateway for Turkish power key for deployment to Libya. Turkey is with- projection in the Middle East. For Turkey, drawing fighters from Syria, although the what remains to be done is to prevent fighting there continues and Turkish troops Syrian Kurds from re-establishing the self- are still being deployed to the country. governing structures in the north-west and

north-east of Syria that Turkish troops de- with the old elites of the security bureau- stroyed during invasions in 2018 and 2019. cracy, who have always taken a hard line Already at the beginning of the Astana pro- towards Greece and Cyprus. Third, Syria’s cess – the series of conferences launched Kurds have only been able to develop into a by Russia, Iran, and Turkey in December power factor due to their alliance with the 2016 to end the Syrian war – Ankara offi- United States. As a result, the government cially refrained from overthrowing Bashar paints Washington as the primary threat to al-Assad. On 21 December 2016, Turkey the survival of the Turkish state, and large committed itself in Moscow to support the segments of the population have come to Syrian government in reaching an agree- adopt that viewpoint. This is grist for the ment with the armed opposition. mills of so-called Eurasianist circles, which Although Erdoğan still presents him- demand that Turkey turn its back on the self to voters as being unyielding towards West for good. Fourth – despite all the set- al-Assad, Turkey confirmed a meeting backs – it is primarily due to its coopera- between the heads of the Syrian and Turk- tion with Moscow that Ankara is still an ish secret services in Moscow on 13 January actor in Syria. Without the approval of the 2020. At the meeting, Ankara urged the Kremlin, Ankara would not have been able Syrians to agree on a common strategy in either to invade Afrin in the north-west of the fight against Syria’s autonomy-seeking Syria in 2018, nor to send troops into the Kurds. Even prior to that meeting, the Turk- north-east of the country in 2019. More- ish side had conceded several times that it over, without Turkey’s rapprochement with considers the presence of its troops in Syria Moscow and without the concomitant con- to be temporary. cern of the United States and its NATO part- ners about losing Turkey, Ankara would probably not have succeeded in October Lessons from the Syrian War 2019 in persuading Washington to severely restrict its cooperation with the Kurds and The AKP had to draw a number of painful to initiate the withdrawal of US troops from lessons from the war in Syria, both from Syria. Fifth, in Syria, Ankara and Moscow the war’s course and its outcome. First, have created a pattern of simultaneous ri- contrary to expectations, there are no cases valry and cooperation that is now extended in which the Arab upheaval has led to the to Libya. rule of parties that are ideologically close Ankara sought this cooperation in 2016, to the AKP. On the contrary, in Cairo and although it was primarily Russian inter- Damascus, secularist regimes are again – vention that prevented the overthrow of or still – in power. These regimes do not the Assad regime sought by Turkey. Turkey trust Ankara because of its support of the continued to cooperate with Russia, despite Muslim Brotherhood. This also applies to the fact that Moscow did not declare either Saudi Arabia and the United Arab Emirates, the Kurdistan Workers’ Party (PKK) or its which have declared the Muslim Brother- Syrian branch, the Democratic Union Party hood a terrorist organisation. Thus, the (PYD), a terrorist organisation and despite dream is over that Turkey could rise to all the pressure put on Assad from the become the leading power of like-minded Kremlin to take Kurdish concerns into Arab states. Second, due to the decline account. Ankara remains committed to the of Syrian statehood, Syria’s Kurds have alliance with Russia, even today as Assad’s become political and military actors. This troops – with overt Russian military sup- development has revived Turkey’s deep- port – attack the last stronghold of the rooted fear of Kurdish separatism and made Turkey-backed Syrian opposition in Idlib, Ankara once again the defender of the status sending huge waves of migrants towards quo in the Middle East. This turn in its the Turkish border. Only the alliance with policy has enabled the AKP to close ranks Russia will strengthen its position vis-à-vis

SWP Comment 6 February 2020

2 the United States and Europe. The same ple, in February 2018, a Turkish naval applies – beyond all bilateral conflicts of squadron pushed a research platform of interest – for Moscow. the Italian energy company ENI out of the The Kremlin’s ability to manage conflicts waters of the EEZ. The same happened in and establish cooperation with Ankara the first week of December 2019 to the has provided legitimacy to the Astana pro- Israeli research vessel Bat Galim, which was cess – by including Turkey as a representa- sailing in the EEZ in agreement with the tive of the Syrian opposition – and allowed Cypriot government. Russia to become the dominant power in Turkey’s only recourse is to flex its muscle the Syrian peace process. And it is Moscow’s because it has isolated itself diplomatically cooperation with Ankara in Libya – con- in the eastern Mediterranean. The Republic cretised in the jointly presented demand of Cyprus has demarcated its EEZ in agree- for a ceasefire – that has made Ankara and ments with Israel, Egypt, and Lebanon (the Moscow legitimate players in the peace pro- latter deal has not yet been ratified by the cess, whereas they were previously actors Lebanese Parliament) on the basis of inter- circumventing an arms embargo imposed national maritime law. Israel had already by the United Nations. Both states are win- signed a similar agreement in 1996 with the ning the game at the expense of Western Hashemite Kingdom of Jordan on the very players. Ankara’s policy in the eastern same legal basis. Greece has gone some way Mediterranean is also primarily directed to conduct a similar agreement with Egypt against Western actors – this time EU and is preparing an agreement with Cyprus. member states. Turkey, on the other hand, has fallen out with all of these states – a Turkish ambas- sador is still stationed in only one of them, Ankara’s Isolation in the Greece. Ankara has not acceded to the Con- Eastern Mediterranean vention on the Law of the Sea (UNCLOS) and thus considers null and void the treaties On 11 November 2019, the European Coun- that other states have concluded with each cil decided on a range of possible sanctions other on the basis of this convention. It is against Turkish natural and legal persons therefore more than understandable that engaged in “illegal exploratory drilling” Greece, the Republic of Cyprus, Israel, and undertaken by Turkish research vessels in Egypt have established a diplomatic front the internationally recognised Exclusive against Turkey. In recent years, they have Economic Zone (EEZ) of the Republic of expanded their military cooperation, and Cyprus. The fact that Brussels can now in January 2019, together with Jordan, actually implement such sanctions has so the Palestinian Authority, and Italy, they far not impressed the Turkish government. founded the Eastern Mediterranean Gas The same accounts for an earlier package Forum in Cairo to coordinate the research, of even softer EU sanctions adopted and production, and marketing of gas deposits. executed already in July 2019. As part of The EU is threatening Turkey with sanc- these measures, pre-accession aid has been tions. For its part, the United States wel- further reduced, negotiations on an avia- comes the cooperation between Israel and tion agreement suspended, fixed bilateral Greece and is strengthening its military forums suspended, and lending by the presence in the region. European Investment Bank restricted. In its operations in the eastern Mediter- ranean, Turkey relies on its navy, which has Turkey’s Engagement in Libya and been upgraded in recent years. Its ships not Consequences for Europe only escort Turkish drilling vessels in Cyp- riot waters, but also take action against Against this background, Turkey concluded research vessels of other nations. For exam- an agreement on 27 November 2019 on the

SWP Comment 6 February 2020

3 mutual demarcation of continental shelves interpretation. To achieve this, Turkey will in the Mediterranean and a treaty on mili- point out that all these states would see an tary cooperation with the embattled Libyan enlargement of their (potential) EEZs if they Government of National Accord. As early were to align with the Turkish position and as November 2010 – still in the time of deny islands the ability to establish EEZs. Muammar al-Gaddafi – Turkey had tried The immediate effect of the two Turkish- to reach an agreement with Libya on the Libyan agreements and of the ensuing de- limitation of the two countries’ continental ployment of Turkish soldiers and Syrian shelves. From 2018 onwards, Ankara started fighters to Libya has been a rise in tensions, to work on the issue again, taking advan- both in Libya and in the eastern Mediterra- © Stiftung Wissenschaft tage this time of the precarious situation of nean. In Libya, the fighting has intensified. und Politik, 2020 the Libyan government. However, Tripoli In the eastern Mediterranean, where France All rights reserved resisted Turkey’s demand until November and Egypt had held joint military exercises 2019. It gave in only on the condition that a before, the new situation has triggered joint This Comment reflects military assistance agreement be concluded naval manoeuvres by France, Italy, and the author’s views. simultaneously. Cyprus as well as by Russia and Syria, in The online version of The Libyan-Turkish treaty for the de- addition to a maritime arms show by Egypt. this publication contains marcation of the continental shelves only Turkey is determined to assert its posi- functioning links to other defines a relatively short borderline south- tions – there is no doubt about that. An- SWP texts and other relevant east of Crete, but it harbours enormous kara is upgrading its navy. In the next three sources. explosive power. For the first time, Turkey years alone, it will put 20 more ships into SWP Comments are subject has succeeded in agreeing with a neigh- service. Unlike its policy in Syria, the AKP’s to internal peer review, fact- bouring state on a border in the eastern policy in the eastern Mediterranean is checking and copy-editing. Mediterranean, which undoubtedly in- receiving great levels of support in the mili- For further information on creases the legitimacy of Turkey’s position tary and security bureaucracy of Turkey. our quality control pro- and has the potential to weaken the posi- The European Union and NATO must pre- cedures, please visit the SWP website: https://www.swp- tions of Cyprus, Greece, and Israel. What pare themselves for Russian-Turkish co- berlin.org/en/about-swp/ is more, the treaty is based on the thesis, operation to be deepened, consolidated, quality-management-for- which has so far only been advocated by and extended to the eastern Mediterranean. swp-publications/ Turkey, that islands do not have their own The thrust of future Turkish foreign policy continental shelf and therefore cannot is likely to be directed primarily towards SWP establish their own EEZs. This calls into two EU members: Greece and the Republic Stiftung Wissenschaft und Politik question not only the EEZ of the Republic of Cyprus. More than ever before, the EU German Institute for of Cyprus, but also the status of the Greek is being called upon to develop a coherent International and islands, in particular Crete – a status that Turkey policy. Brussels must clearly show Security Affairs is recognised by all other neighbouring Ankara that there is a European threshold countries. In Ankara’s eyes, the agreement of pain. However, Brussels should also Ludwigkirchplatz 3–4 10719 Berlin with Libya entitles Turkey to become active make offers to cooperate with Turkey, such Telephone +49 30 880 07-0 south-east of Crete in waters that will be as modernising the customs union with the Fax +49 30 880 07-100 part of the Greek EEZ once an agreement EU and/or mediating the dispute over gas in www.swp-berlin.org between Athens and Nicosia is signed. Tur- the Mediterranean. Otherwise, Turkey has [email protected] key is already stating that the EastMed little to lose by further escalating the con-

ISSN 1861-1761 pipeline – planned by Greece, the Repub- flict in the eastern Mediterranean. doi: 10.18449/2020C06 lic of Cyprus, and Israel, and foreseen to run south-east of Crete – can now only (English version of be realised with Ankara’s consent. Ankara SWP-Aktuell 6/2020) will make every effort to bring Israel, Egypt, Lebanon, and Syria in line with its own

Dr Günter Seufert is Head of the Centre for Applied Turkey Studies (CATS) at SWP.

The Centre for Applied Turkey Studies (CATS) is funded by Stiftung Mercator and the German Federal Foreign Office. SWP Comment 6

February 2020

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