T.C. Ankara Yildirim Beyazit University the Institute of Social Sciences the Department of International Relations
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T.C. ANKARA YILDIRIM BEYAZIT UNIVERSITY THE INSTITUTE OF SOCIAL SCIENCES THE DEPARTMENT OF INTERNATIONAL RELATIONS THE INSTITUTIONAL EVOLUTION OF MINISTRY OF FOREIGN AFFAIRS AND ITS ROLE IN FOREIGN POLICY DECISION MAKING PROCESS MASTER THESIS ONUR BİRKAN JUNE 2019 THE INSTITUTIONAL EVOLUTION OF MINISTRY OF FOREIGN AFFAIRS AND ITS ROLE IN FOREIGN POLICY DECISION MAKING PROCESS A THESIS SUBMITTED TO THE INSTITUTE SOCIAL SCIENCES OF ANKARA YILDIRIM BEYAZIT UNIVERSITY BY ONUR BİRKAN IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF ARTS IN THE DEPARTMENT OF INTERNATIONAL RELATIONS JUNE 2019 Approval of the Institute of Social Sciences ________________________ Doç. Dr. Seyfullah Yıldırım Manager of Institute I certify that this thesis satisfies all the requirements as a thesis for the degree of Master of Arts. ________________________ Prof. Dr. Birol Akgün Head of Department This is to certify that we have read this thesis and that in our opinion it is fully adequate, in scope and quality, as a thesis for the degree of Master of Arts. ________________________ Prof. Dr. Birol Akgün Supervisor Examining Committee Members Prof. Dr. Birol Akgün (AYBU, IR) _______________ Prof. Dr. Mesut Özcan (ASBU, IR) _______________ Dr. Öğr. Üyesi Muhammed H. Mercan (AYBU, IR) _______________ PLAGIARISM “I hereby declare that all information in this thesis has been obtained and presented in accordance with academic rules and ethical conduct. I also declare that, as required by these rules and conduct, I have fully cited and referenced all material and results that are not original to this work; otherwise I accept all legal responsibility”. Onur Birkan iii ABSTRACT THE INSTITUTIONAL EVOLUTION OF MINISTRY OF FOREIGN AFFAIRS AND ITS ROLE IN FOREIGN POLICY DECISION MAKING PROCESS The Ottoman State had adopted ‘unilateral diplomacy’ for a long time and avoided reciprocity. However, in the historical process, there had been breaks that required a new diplomatic understanding/attitude. Therefore, the Ottoman Empire had adopted ‘mutual diplomacy’ in the last decade of the eighteenth century and sent permanent ambassadors to the European capitals. In this sense, this thesis attempts to understand the reasons of changing diplomatic methods and understanding of the Ottoman State and modern republican era. Moreover, the thesis claims that adapting new concept of diplomacy and its practices were mostly result of two level of analysis: internal and external factors. The thesis argues that these changes of diplomatic understanding that occurred at two level of analysis paved the way for institutionalization of foreign policy and diplomacy, which culminated in the establishment of Ministry of Foreign Affairs in 1836. At this point, the thesis reveals that the ‘changes’ and ‘continuities’ in the institutional structure of the ministry also took place at two levels of analysis. This newly institutionalized diplomatic and foreign policy understanding increasingly became more effective in foreign policy decision-making process and has left the organizational memory and the tradition of institutional structure to the modern Turkey. Herein, the thesis affirms that in the early Republican era, particularly in single-party period, although the primary objectives of foreign policy remained almost the same with that of the last century of Ottoman Empire, the role of the ministry in foreign policy decision-making process weakened. Furthermore, the thesis tries to show forth that the ultimate decision unit and the role of the ministry in foreign policy have varied with changing time and issue not only in the period of Ottomans but also in the Republican Era as well. KEY WORDS: Foreign Policy, Ministry of Foreign Affairs, Decision-Making Process, Ottomans, Republic of Turkey BİRKAN, Onur MA, Department of Political International Relations Supervisor: Prof. Dr. Birol Akgün June 2019 iv ÖZET DIŞİŞLERİ BAKANLIĞININ KURUMSAL EVRİMİ VE DIŞ POLİTİKA YAPIM SÜRECİNDEKİ ROLÜ Osmanlı Devleti uzun süre tek taraflı diplomasiyi benimsemiş ve karşılılıktan kaçınmıştır. Bununla beraber, tarihsel süreç içerisinde, yeni bir diplomatik anlayış/tutum gerektiren kırılmalar olmuştur. Bu nedenle, Osmanlı Devleti ancak on sekizinci yüzyılın son on yılında “karşılıklı diplomasi” yi benimsemiş ve Avrupa başkentlerine daimî elçiler göndermiştir. Bu anlamda, bu tez Osmanlı Devleti’nin ve modern cumhuriyet döneminin diplomatik yöntem ve anlayış değişiminin nedenlerini anlamaya çalışmaktadır. Ayrıca, tez, yeni diplomasi kavramını ve uygulamalarını benimsemenin çoğunlukla iç ve dış faktörler olmak üzere iki analiz düzeyinde gerçekleştiğini iddia etmektedir. Tez, iki analiz düzeyinde ortaya çıkan bu diplomatik anlayış değişikliklerinin, 1836'da Dışişleri Bakanlığı'nın kurulması ile sonuçlanan dış politika ve diplomasinin kurumsallaşma sürecinin önünü açtığını savunmaktadır. Bu noktada, tez, bakanlığın kurumsal yapısındaki "değişim" ve "sürekliliğin" de iki analiz düzeyinde gerçekleştiğini ortaya koymaktadır. Bu yeni kurumsallaşmış diplomasi ve dış politika anlayışı, dış politika karar alma sürecinde giderek daha etkili hale gelmiş ve kurumsal hafızayı ve kurumsal yapı geleneğini modern Türkiye'ye bırakmıştır. Bu noktada tez, Cumhuriyet döneminin başlarında, özellikle tek partili dönemde, dış politikanın temel hedeflerinin, Osmanlı Devleti’nin son yüzyılınkiyle neredeyse aynı kalmasına rağmen, bakanlığın dış politika karar alma sürecindeki rolünün zayıfladığını ileri sürmektedir. Ayrıca, tez, sadece Osmanlı döneminde değil aynı zamanda Cumhuriyet döneminde de nihai karar biriminin ve bakanlığın dış politika kararlarındaki rolünün değişen zaman ve konuya bağlı olarak farklılık gösterdiğini açıklamaktadır. ANAHTAR KELİMELER: Dış Politika, Dışişleri Bakanlığı, Karar Alma Süreci, Osmanlılar, Türkiye Cumhuriyeti BİRKAN, Onur Yüksek Lisans, Uluslararası İlişkiler Anabilim Dalı Danışman: Prof. Dr. Birol Akgün Haziran 2019 v vi DEDICATION To my friend Mehmet Ali Çevik, who reached to the mercy of God in the summer of 2017 and who I have been longing for vii ACKNOWLEDGMENTS Firstly, I want to thank my mother and father. Although they were not fully aware of the process that I went through, they constantly prayed that the process would be more comfortable for me. I also want to thank my older brother Eyyup Birkan who put his hand on my back and said “this will also pass” and my aunt Gülşen Birkan for her suggestions and wholehearted wishes to advance my performance. My brother Yusuf Birkan who regularly called and motivated me also deserves many thanks. Even though he lives more in his own world, I don't doubt that my oldest brother İsmail Birkan also wanted me to be successful. Therefore, I have to offer my thanks to him as well. I would also like to thank my cousin Erdal Eşsiz for drawing the tables showing the institutional structure of the Ministry. Additionally, I want to express my heartfelt gratitudes to Prof. Dr. Mesut Özcan for his valuable advises, guides and times allocated for me. Last but not least, I want to offer my special thanks to my advisor Prof. Dr. Birol Akgün who offered his continues support and help. This thesis would not be written without his assist in determining thesis topic and feedbacks. viii Table of Contents PLAGIARISM ...................................................................................................................... iii ABSTRACT ........................................................................................................................ iv ÖZET .................................................................................................................................... v DEDICATION .................................................................................................................... vii ACKNOWLEDGMENTS .................................................................................................. viii LIST OF TABLES ............................................................................................................. xiv LIST OF FIGURES ............................................................................................................ xiv INTRODUCTION ................................................................................................................. 1 CHAPTER I: FOREIGN POLICY ANALYSIS ................................................................... 3 1.1. What is Foreign Policy ........................................................................................... 3 1.2. Foreign Policy Decision Making ............................................................................ 4 1.3. General Approaches and Evaluations of Foreign Policy Analysis ......................... 4 1.4. Factors Affecting FPDM ........................................................................................ 8 1.4.1. Internal Factors ................................................................................................ 9 1.4.1.1. Political factors ......................................................................................... 9 1.4.1.1.1. Electoral Cycles ..................................................................................... 9 1.4.1.1.2. Political settings .................................................................................. 10 1.4.1.2. Cultural and Social Factors .................................................................... 10 1.4.1.2.1. Social and Cultural Forms ................................................................... 10