Turkey: From “NATO’s Anchor” to What?

On Monday, the Turkish newspaper Hürriyet Gazetesi published the backstory to President Recep Erdoğan’s meeting in St. Petersburg with Russian President Vladimir Putin on 9 August.[1] The report credited two persons for acting as go-betweens in the eventual “rapprochement,” Ramazan Abdulatipov and Cavit Çağlar. A number of Russian[2] and regional[3] media outlets published accounts of the Hürriyet Gazetesi report.

Welcoming Turkey’s “restoration of legitimate and constitutional order,” Mr. Putin said in St. Petersburg, “We have always opposed anti-constitutional actions.”[4] The Kremlin used that same term—anti-constitutional actions (antikonstitutsionnykh deystviy)— in its official statement after Mr. Putin spoke to Mr. Erdoğan on 17 July in the aftermath of the attempted coup (a conversation, the Kremlin hastened to point out, Russia initiated):

“Vladimir Putin…stressed the principled position of Russia regarding the categorical inadmissibility in the conduct of public affairs of anti-constitutional actions and violence.”[5]  

Turkish press reports emphasized Mr. Putin’s “decisive opposition to unconstitutional actions”[6] against Mr. Erdoğan’s government, some repeating Mr. Putin’s phrase verbatim.[7] That phrase is also the same one Mr. Putin used after Ukrainian President Viktor Yanukovych’s ouster.[8] It was echoed then by other members of his government—for example, Foreign Minister Sergey Lavrov’s condemnation of “radical unconstitutional actions of Ukrainian oppositionists.”[9]

The Hürriyet Gazetesi account of events leading up to the meeting in St. Petersburg is worthy of a spy novel, and Ramazan Abdulatipov and Cavit Çağlar are among its central characters. Mr. Abdulatipov is said to have taken his directions from Yury Ushakov, a long-time Russian diplomat and aide to Mr. Putin. In September 2013, Mr. Putin appointed Mr. Abdulatipov to his second four-year term as Head of the Republic of Dagestan, a Russian federal republic located in the North Caucasus.

Mr. Abdulatipov ‘s counterpart, Cavit Çağlar, is said to have taken his directions from General Hulsi Akar, Turkey’s Chief of the General Staff since April 2015. Mr. Çağlar’s usual description as “a Turkish businessman” does not do him justice. In 1999, he was a central figure[10] in a covert operation in Kenya conducted by the Millî İstihbarat Teşkilâtı (Turkey’s National Intelligence Agency, aka “MIT”) to interdict and capture Abdullah Öcalan, a founding member of Turkey’s outlawed Kurdistan Workers’ Party known as the PKK (Partiya Karkerên Kurdistanê‎). Mr. Çağlar’s private aircraft was used to spirit Mr. Öcalan from Nairobi to Turkey. In late April 2001, he was arrested by the United States Federal Bureau of Investigation in a parking garage at New York’s JFK Airport and extradited to Turkey, which had issued an Interpol Red Notice pursuant to his conviction in the collapse of Turkey’s Interbank. 

The precursor to the St. Petersburg meeting was President Erdoğan’s letter to President Putin. In it, Turkey apologized for the 24 November 2015 downing of a Russian warplane in Turkish airspace that was taking part in a combat mission in Syria.[11] Hürriyet Gazetesi reported a 30 April meeting in Istanbul, during which President Erdoğan authorized General Akar and Mr. Çağlar to open discussions with Russia about “normalizing” relations. Messrs. Abdulatipov and Çağlar then spent several weeks shuttling successive drafts of the letter (written by prior agreement in Turkish and Russian, not English) back and forth, with the support of Kazakh President Nursultan Nazarbayev. This led to a 24 June meeting in Tashkent, Uzbekistan, where President Putin was scheduled to meet President Nazarbayev at the conclusion of the Shanghai Cooperation Organization (SCO) summit. The Kazakh ambassador to Turkey contacted an aide to President Erdoğan, Ibrahim Kalyn, to set the meeting in Tashkent. After several last minute hitches—there were problems reconciling the Turkish and Russian versions of the letter, and Uzbekistan had closed its airspace due to the SCO summit so Kazakh President Nazarbayev had to ask Uzbek President Islam Karimov for permission to fly “his friends from Turkey” (whose aircraft, low of fuel, had landed in Shymkent) to Tashkent—President Putin and President Erdoğan agreed to the final wording. The timing was uncanny, coming a fortnight before the attempted coup in Turkey. As the Hürriyet Gazetesi report points out, the first leader to phone President Erdoğan with a message of support was President Putin.

The St. Petersburg meeting, write Gallia Lindenstrauss and Zvi Magen,[12] “is likely to be a beginning of a new phase in Turkish-Russian relations.” It may very well mark the beginning of something wider, given the pivotal Kazakh and Uzbek roles in brokering the rapprochement between their neighbors. There is another, less noticed factor as well: as Mr. Erdoğan met with Mr. Putin in St. Petersburg, Turkish Foreign Minister Mevlüt Çavuşoğlu declared his country would suspend its migration agreement[13] with the European Commission unless the Commission established a definitive date to abolish visa requirements for Turkish citizens.[14] Where that goes is anyone’s guess. What is certain, however, is that Turkey’s traditional role as NATO’s “anchor” on the Black Sea is indeed ripe for revision, exactly how much and to what extent nobody today can know.


The translation of all source material is by the author.

[1] ” Türk-Rus krizini bitiren gizli diplomasinin öyküsü.” Hürriyet Gazetesi [published online in Turkish 8 August 2016].

[2] See for example: “Ramazan Abdulatipov yakoby okazal sodeystviye v vosstanovlenii otnosheniy mezhdu liderami Rossii i Turtsii.” Seryy zhurnal [published online in Russian 9 August 2016]. http://kopomko.ru/ramazan-abdulatipov-yakobyi-okazal-sodeystvie-v-vosstanovlenii-otnosheniy-mezhdu-liderami-rossii-i-turtsii/. Last accessed 9 August 2016.

[3] “Negocieri secrete. Cum au reuşit Turcia şi Rusia să-şi restabilească relaţiile.” Publika.md [published online in Romanian 9 August 2016]. http://www.publika.md/negocieri-secrete-cum-au-reusit-turcia-si-rusia-sa-si-restabileasca-relatiile_2708501.html. Last accessed 9 August 2016.

[4] “Putin: Rossiya i Turtsiya vystupayut za vozobnovleniye dvustoronnikh otnosheniy.” Novaya Gazeta [published online in Russian 9 August 2016]. http://www.novayagazeta.ru/news/1705969.html. Last accessed 9 August 2016.

[5] ” Putin v razgovore s Erdoganom zayavil o nedopustimosti antikonstitutsionnykh deystviy.” TASS [published online in Russian 17 July 2016]. http://tass.ru/politika/3462009. Last accessed 9 August 2016.

[6] ” Putin’den Erdoğan’a telefon.” Hürriyet Gazetesi [published online in Turkish 17 July 2016]. http://www.hurriyet.com.tr/putinden-erdogana-telefon-40150943. Last accessed 9 August 2016.

[7] See for example: “Putin’den Erdoğan’a: Anayasaya aykırı hiçbir eylem kabul edilemez.” İleri Haber [published online in Turkish 17 July 2016]. http://ilerihaber.org/icerik/putinden-erdogana-anayasaya-aykiri-hicbir-eylem-kabul-edilemez-56902.html. Last accessed 9 August 2016.

[8] For example see: “Putin po telefonu obsudil s Merkel’ i Netan’yakhu ukrainskiye sobytiya.” Vesti.ru [published online in Russian 16 April 2014]. http://www.vesti.ru/doc.html?id=1483262. Last accessed 9 August 2016.

[9] “Ukraina na krayu. Vozmozhnyye stsenarii razvitiya sobytiy.” Vechernyaya Moskva [published online in Russian 24 January 2014]. http://vm.ru/news/2014/01/24/ukraina-na-krayu-232373.html. Last accessed 9 August 2016.

[10] One of the best descriptions of the events surrounding Mr. Öcalan’s flight and capture was published in the United States Central Intelligence Agency’s Studies in Intelligence series. See: Miron Varouhakis (2009). “Fiasco in Nairobi: Greek Intelligence and the Capture of PKK Leader Abdullah Ocalan in 1999.” Studies in Intelligence. 53:1. https://www.cia.gov/library/center-for-the-study-of-intelligence/csi-publications/csi-studies/studies/vol53no1/fiasco-in-nairobi.html. Last accessed 9 August 2016.

[11] A Russian language report about the Hürriyet Gazetesi article stated that the language of President Erdoğan’s letter in Russian used words that were ” stronger than ‘sorry’ but not as strong as ‘apology’.” Mr. Putin, it wrote, “approved the text, despite the fact that he found it a little closer to the Turkish position, because he read it as a request for forgiveness.” See: “Ramazan Abdulatipov vsplyl v istorii s izvineniyami Redzhepa Erdogana pered Vladimirom Putinym.” On Kavkaz [published online in Russian 9 August 2016]. http://onkavkaz.com/articles/2781-ramazan-abdulatipov-vsplyl-v-istorii-s-izvinenijami-redzhepa-erdogana-pered-vladimirom-putinym.html. Last accessed 9 August 2016.

[12] Gallia Lindenstrauss & Zvi Magen (2016). “The Russian-Turkish Reset.” FPRI E-Note 8 August 2016. http://www.fpri.org/article/2016/08/russian-turkish-reset/. Last accessed 9 August 2016.

[13] According to the European Commission Fact Sheet dated 4 April 2016, “On 18 March 2016, EU Heads of State or Government and Turkey agreed to end the irregular migration from Turkey to the EU and replace it instead with legal channels of resettlement of refugees to the European Union. The aim is to replace disorganised, chaotic, irregular and dangerous migratory flows by organised, safe and legal pathways to Europe for those entitled to international protection in line with EU and international law. The agreement took effect as of 20 March 2016.” It provides for unauthorized migrants to be returned to Turkey and for Turkey to block “nee sea or land routes for irregular migration.” In exchange, Turkey received a payment in the amount of EU payment of €3bn (USD3.3bn). http://europa.eu/rapid/press-release_MEMO-16-1221_en.htm. Last accessed 9 August 2016.

[14] “Turtsiya postavila EC ul’timatum po bezhentsam.” Lenta [published online in Russian 9 August 2016]. https://lenta.ru/news/2016/08/09/stop_implementing_agreement/. Last accessed 9 August 2016.

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