Identifier
Created
Classification
Origin
07ANKARA2467
2007-10-04 12:06:00
CONFIDENTIAL
Embassy Ankara
Cable title:  

TURKEY: U/S BURNS CONSULTATIONS WITH MFA

Tags:  PREL PARM TU IZ IR 
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C O N F I D E N T I A L ANKARA 002467 

SIPDIS

SIPDIS

DEPT. FOR P AND EUR/SE

E.O. 12958: DECL: 10/04/2017
TAGS: PREL PARM TU IZ IR
SUBJECT: TURKEY: U/S BURNS CONSULTATIONS WITH MFA


Classified By: Ambassador Ross Wilson for reasons 1.4(b) and (d)

C O N F I D E N T I A L ANKARA 002467

SIPDIS

SIPDIS

DEPT. FOR P AND EUR/SE

E.O. 12958: DECL: 10/04/2017
TAGS: PREL PARM TU IZ IR
SUBJECT: TURKEY: U/S BURNS CONSULTATIONS WITH MFA


Classified By: Ambassador Ross Wilson for reasons 1.4(b) and (d)


1. (C) SUMMARY: Under Secretary Nicholas Burns consulted with
senior Turkish MFA officials on a broad array of issues
during bilateral meetings in Ankara September 19. They
discussed Iraq, the PKK, Iran, U.S.-Turkey bilateral
relations and the impact of a Congressional Armenian genocide
resolution (AGR). END SUMMARY


2. (C) U/S Burns met with Turkish MFA U/S Apakan for nearly
five hours. Apakan was joined by MFA Deputy U/S Feridun
Sinirlioglu (Middle East/South Asia),Haydar Berk
(Americas/N.E. Mediterranean),Rafet Akgunay (Multilateral
and Security),Unal Cevikoz (Central Asia/Caucasus/Eastern
Europe/Africa, East Asia),GOT Iraq Coordinator Oguz
Celikkol, DG for Americas Vefahan Ocak, DG for Security
Hayati Guven, and others.

IRAQ/PKK
--------------


3. (C) U/S Apakan emphasized Turkey,s desire for the U.S. to
be successful in Iraq; if the U.S. fails, Turkey fails. The
GOT fully supports a strong central government under Maliki
and has told Arab countries to follow suit. Turkey continues
to urge broad Sunni participation in politics and in
reconciliation efforts. Apakan welcomed the postponement of
the Kirkuk referendum. As a further show of commitment to
Iraqi unity, Turkey will open a new consulate in Basra. The
Turks talk to all groups, directly or indirectly, and believe
that they can play a facilitative role. They welcome an
increased UN role, seeing it as complementary to U.S.
efforts. They view the upcoming Istanbul neighbors,
ministerial as a &joint venture8 with the U.S. and want to
work with us to make it a success. The GOT expects Iraqi
Interior Minister Bolani to travel to Ankara the week of
September 24 to negotiate bilateral agreements on counter
terrorism and border security that it hopes to conclude prior
to the conference.


4. (C) Regarding refugees, Apakan said Jordan and Syria are
shouldering a large burden. Turkey has given USD 3 million
to UNHCR to assist with refugees and will provide additional
bilateral humanitarian aid to Jordan and Syria for this
purpose. The refugees, largely middle class and

professionals, represent Iraq,s future. U/S Burns
acknowledged Turkey,s efforts, especially as so many other
nations had held back. The U.S., too, needs to do better at
taking in more refugees; this is a priority for Secretary
Rice.


5. (C) Apakan stressed how difficult the PKK problem is for
the Turkish public. It affects MFA efforts to encourage the
Turkish military and others within the GOT to act with cool
heads Iraq. Apakan focused on the need for tangible results.
He expressed appreciation for the U.S. investigation into
weapons smuggled from Iraq into Turkey. The Ambassador
stressed that U.S. officials had been very clear with
President Talabani and Kurdistan Regional Government (KRG)
leader Barzani on the need to crack down on the PKK. Turkish
casualties are down substantially this year from last. There
may be many causes of this, and we would not claim credit,
but the change was noteworthy. U/S Burns reminded Apakan
that part of the solution is Turkish dialogue with Iraq and
with Iraqi Kurdish officials in the north. He encouraged
Turkey to invite President Talabani Turkey.


6. (C) U/S Burns thanked Apakan for Turkey,s engagement on
Iraq and for hosting the neighbors ministerial. He
reiterated the U.S. commitment to Iraq expressed by the
President several days earlier. He called disappointing the
behavior of Syria and Iran. Neither is helping Iraq, for
example by limiting foreign fighters from transiting across
its borders. Ambassador Crocker told the Iranians that we
will judge them based on the continued flow of foreign
fighters and Iranian-origin EFP technology into Iraq. We see
no diminution of either. The U.S. military is now taking
more casualties from EFP attacks than from Shi,a militants.

IRAN
--------------


7. (C) U/S Burns said that after Iraq, Iran and the Iran
nuclear problem are our greatest global concerns. We want
diplomacy to succeed, but currently see no progress. He
described three ways to increase pressure to convince Tehran
of the need to negotiate:

-- Passage of a third UNSC resolution, which the U.S. has
drafted with the UK, but which Russia and China are currently
blocking. El-Baradei,s recent agreement with the Iranians
has been very unhelpful, focusing on the past and failing to
require that the Iranians halt enrichment which the UNSC
demanded. IAEA board members have expressed dismay to
El-Baradei. Apakan said that Turkey will approach El-Baradei
too.

-- French FM Kouchner,s approach that countries adopt
individual economic sanctions against Iran. Within the EU,
at least France and the UK are prepared to ratchet up
bilateral sanctions on Iran. Perhaps Japan, South Korea, and
Australia could be prevailed upon to do so as well. It is up
to the world to tell Iran that business as usual cannot go
on. Turkey should join this effort.

-- Banks and financial institutions shut down lending to
Tehran. If financing stops flowing, perhaps Iran will start
to negotiate seriously.

The three tracks must produce success. The military option
remains on the table, but we are focused on diplomacy. DG
Guven reported that Turkish banks, including Is Bankasi and
Garanti Bankasi, took to heart the message on cutting off
lending delivered by U.S. Department of Treasury U/S Levey
during his December 2006 visit to Turkey.


8. (C) U/S Burns also reported that Iran has violated UNSCR
1747 by providing conventional arms to groups in Gaza,
Lebanon, Syria, Iraq, and Afghanistan. Apakan said that FM
Babacan will see Iranian FM Mottaki on the margins of UNGA
and will raise the issue. He had some hope that Iran has
started to understand that constantly playing the Hezbollah,
Hamas, and similar cards will eventually have a boomerang
effect and impact Iran's long-term stability.


9. (C) Apakan said that Turkey is cognizant of the threat a
nuclear-armed Iran poses to the region and the world. Turkey
supports the overall thrust of U.S. policy on Iran. In
practice, though, sanctions on Iran pose great difficulties
for Turkey in its overall trade relationship with nations to
the east. Transit of Iran is key to trade with Central Asia.
One million Iranian tourists visit Turkey each year, and
this exposure to freedom and prosperity must be helpful for
promoting reforms we want to see in Iran. Only a small
proportion of Turkey,s natural gas originates in Iran, but
supply shortfalls and a lack of good alternatives force a
look at increasing supply from Iran. Apakan underscored that
Iran is not a strategic partner and that Turkey's "foreign
policy horizons" have no Iranian dimensions. Apakan also
noted that Turkey has repeatedly followed up on USG requests
to inspect Iranian aircraft suspected of ferrying weapons to
Hezbollah and Hamas via Syria. The GOT had also reported to
the UN on Iranian weapons apparently bound for Syria that
were found on a derailed train in southeastern Turkey earlier
this year.

ARMENIA GENOCIDE RESOLUTION
--------------


10. (C) Apakan expressed appreciation for Administration
efforts to counter a Congressional Armenian genocide
resolution (AGR). He said the GOT would like to take this

issue off the bilateral agenda altogether. At a recent
in-house meeting GOT diplomats considered which issue poses
the greatest danger to Turkey ) Iraq or AGR/Armenia. To a
person, they concluded it was Armenia (an AGR). U/S Burns
reiterated the Administration's opposition to the AGR and
described high-level efforts on the issue. He urged Turkey
to consider a serious gesture toward Armenia, such as
establishing diplomatic relations or opening the border. If
Turkey takes a step, we will encourage Yerevan to
reciprocate. Such a step would be helpful in Congress,
without which it will be difficult to counter momentum in
favor of a resolution. If the resolution does pass, our
governments must work together to protect the U.S.-Turkish
relationship, which is too important to fall victim to a
non-binding resolution stating the sense of one chamber of
Congress.


11. (C) Deputy U/S Akgunay responded that if the AGR passes,
it will be impossible to explain to Turkish public opinion.
It will be a bomb in our relations. The GOT will have no
option but to react. It could affect joint U.S.-TU efforts
in other parts of the world as well. Deputy U/S Cevikoz said
that Turkey is at a critical juncture with Armenia. A new
government has taken office that is sufficiently strong and
confident to make new openings, which the GOT now plans to
undertake. Director General for Security Guven pointed out
that the Turkish public would fail to distinguish between the
Administration and Congress.

MIDDLE EAST
--------------


12. (C) Apakan expressed interest in the Middle East peace
conference planned for November. Turkey would like to
contribute and participate as a concerned party. Turkey,s
role would be that of a facilitator and not a mediator. The
Middle East peace process is a major component of Turkish
foreign policy. Apakan added Turkey and the U.S. share
similar foreign policy goals in the region. Burns thanked
Apakan for Turkey's earlier offer to host the meeting and
explained the importance of a U.S. venue to demonstrate
American commitment. Burns encouraged Deputy U/S Sinirlioglu
to discuss this when he sees NEA A/S Welch in Washington in
October.


13. (C) Apakan asked whether Syria will be invited to join
the conference in November as well. Following Syrian FM
Mouallem's recent visit to Turkey, Apakan saw potential for
Israel and Syria to come closer together. U/S Burns
explained that the peace conference will focus on the
Israeli-Palestinian issue in order to capitalize on ongoing
momentum. We have made no decisions on participation. Syria
would need to demonstrate a greater level of responsibility
to earn a seat at the table.


14. (C) U/S Burns emphasized the dire need for international
assistance to the Palestinian Authority (PA). The USD 200
million in customs duties released by the Israeli Government
to the PA would run out in three months. It would be helpful
for Turkey to encourage other Middle East countries,
especially the Gulf States, to make a donation. U/S Apakan
agreed to convey the message and offered to act as a
facilitator with Palestinian leaders. Apakan added that the
GOT, in partnership with the Turkish, Israeli, and
Palestinian chambers of commerce, is working to develop
industrial zones in Gaza and the West Bank for the purpose of
increasing economic sustainability.

AFGHANISTAN AND PAKISTAN
--------------


15. (C) Apakan stated that Turkish policy in Afghanistan and
Pakistan complements U.S. interests. Turkey does not want to
lose Pakistan and supports Bhutto and Musharraf,s objective
of democratization to prevent the &talibanization8 of
Pakistan. On Afghanistan, Apakan emphasized the need for
reconciliation, including with Dostum, who can still
contribute to stability. Apakan added that Turkey,
Afghanistan, and Pakistan will hold a trilateral at UNGA to
discuss, among other topics, an economic development project
along the Pakistan-Afghanistan border. Noting the imminent
departure of Dutch and Canadian forces from ISAF, Burns
emphasized the need for Turkey, the U.S. and the UK to
continue our military responsibilites and for other NATo
allies to do more to prevent the Taliban from winning.

CYPRUS
--------------


16. (C) Apakan complained about hard-line and unhelpful
Cypriot Government positions and statements. Despite this,
Turkey and Turkish Cypriots still aim for a comprehensive
settlement under UN auspices, and the Annan Plan should be
the starting point. In the long term, the two sides need to
find a way to cooperate, share power and create a partnership
arrangement. Apakan elaborated on the Talat-Papadopoulos
September 5 meeting and presented a copy of the Turkish
Cypriot proposal that UN Special Rep Moller had allegedly
agreed is compatible with the July 8 Gambari process. Apakan
also urged an end to Turkish Cypriot isolation.


17. (C) Burns responded that our diplomatic relations with
the Republic of Cyprus will remain strong and that our goal
is a reunited island. Our ambassador in Nicosia sees Talat
as a reasonable, credible interlocutor who, if he had
substantial leeway to negotiate, could make progress. Burns
also noted tentative plans to visit Cyprus and said he will
seek Apakan,s advice before going. Among others, he will
meet with Talat. Burns agreed on the importance of the Annan
Plan, but said that a final settlement will require new ideas
and a new approach.

KOSOVO
--------------


18. (C) U/S Burns outlined the USG position on Kosovo. He
argued that the Kosovar Albanians have waited eight years for
their status to be determined and cannot wait longer. The EU
is not of one mind on this, but we expect key members,
including France, the UK, Germany and Italy to recognize at
the right time. This should pull many other EU members
along. In response to a question, U/S Burns said that
partition of Mitrovica is not an option. Russian suggestions
along that line are a cynical game, and adjusting borders in
the Balkans could be dangerous. KFOR must be prepared to
stay and defend the peace. When recognition happens, we will
have to reach out to Serbia and urge it toward the EU and
NATO. Burns suggested it would be useful if Ambassador
Wisner, the USG special envoy on Kosovo, could come to Ankara
for consultations. Apakan responded that Turkey,s Kosovo
policy remains in line with ours. Ankara supports
Ahtisaari's recommendations. Kosovar independence should not
be used against peace in the Balkans nor as an anti-Serb
move.

NATO/ESDP
--------------


19. (C) Advocating a NATO strategy for the 21st century, U/S
Apakan stated that the U.S. and Turkey share a common view on
the future of the organization. He bemoaned Turkey's
problems with the EU over ESDP. NATO solidarity cannot be
reached when EU solidarity comes first. Apakan added that,
as one of the top troop contributing countries to EU
peacekeeping missions, Turkey deserves to be able to
participate in ESDP decision making and planning. Burns
assured Apakan that the U.S. will never ask Turkey to do
anything against its national interest in this regard. He
added that the U.S. continues to try to find a way forward on
the Cyprus issue in order to improve Turkey's relationship
with the EU.

20. (C) On NATO expansion, U/S Burns noted the U.S.
commitment on Croatian membership and said we have not made
up our minds on Albania and Macedonia. There is no country
more enthusiastic than Albania, but corruption remains high
and the judiciary needs reform. In Macedonia, all forward
movement has ceased. Perhaps a preliminary decision can help
motivate them. The Turks, Apakan said, support membership
for all three, which they believe will help bring stability
to the Balkans. Deputy U/S Akgunay said Turkey supports a
Georgian Membership Action Plan, but has reservations about
moving to NATO membership in the current context.


21. (U) U/S Burns has cleared this cable.

Visit Ankara's Classified Web Site at
http://www.state.sgov.gov/p/eur/ankara/

WILSON