SEPTEMBER 28, 2014
SUMMARY
Even though tensions over Ukraine will inevitably cast a shadow over the bilateral relationship, Russia and Turkey—a NATO member—continue to share a range of important interests.
GRF–Carnegie Moscow Center Working Group
Memduh Karakullukรงu and Dmitri Trenin, editors
WORKING GROUP ON RUSSIAN-TURKISH COOPERATION
In 2013, Global Relations Forum in Istanbul and the Carnegie Moscow Center established a Working Group dedicated to exploring the potential for regional cooperation between Turkey and Russia. The Working Group was tasked with generating new thinking on how cooperation between the two countries could be practically advanced. It aims to facilitate a better understanding of the mutual interests in bilateral relations and to help build a more practical working relationship. The Working Group includes former senior government officials, diplomats, military officers, and leading experts from both countries. From the outset, members of the group have been working as one team. This paper is a product of their cooperation.
SUMMARY
Even though tensions over Ukraine will inevitably cast a shadow over the bilateral relationship, Russia and Turkey—a NATO member—continue to share a range of important interests. Indeed, there are a number of areas in which the two can work together in their common neighborhood, which stretches from the South Caucasus and the Levant to Central Asia and Afghanistan. A high-level working group on Russian-Turkish regional cooperation has sketched a forward-looking approach for Russia and Turkey in tackling regional challenges.
Key Issues
Russia and Turkey’s vast common neighborhood is a source of multiple threats, including terrorism, extremism, and drug trafficking, which can affect both countries.
Both countries have compelling reasons to work together to promote geopolitical and social stability and economic prosperity in their overlapping neighborhoods, particularly in the South Caucasus and Central Asia.
Moscow and Ankara have their differences on regional issues, rooted in their respective national interests, outlooks, and perceptions. Yet, they can manage those differences with a modicum of goodwill, shared respect for the tenets of international law and states’ territorial integrity, regular and open dialogue between their political leaderships, and support from both countries’ elites and societies.
Next Steps for Russia and Turkey
Russia and Turkey should work together to enhance stability in the South Caucasus, particularly on issues related to the conflicts over Nagorno-Karabakh, Abkhazia, and South Ossetia.
Moscow and Ankara should strive to find a political solution to the conflict in Syria. Such a solution would help lay the foundation for future stability in the region.
Russia and Turkey need to work to prevent the proliferation of nuclear weapons in the Middle East and to help bring about an acceptable final agreement on Iran’s nuclear program between Tehran and its international negotiating partners.
In Afghanistan and Iraq, both Turkish and Russian interests demand that the two cooperate to combat extremism and help to create political stability.
Central Asia would benefit from Russia and Turkey working together, rather than at cross-purposes, to enhance the economic well-being of countries in the region and prevent radicalism from undermining regional stability.
PROLOGUE
The crisis over Ukraine, which entered an acute phase in February 2014, has greatly affected Russia’s relations with the West. It effectively ended a quarter-century of generally cooperative relations and periodic attempts to integrate Russia into an expanded West. It also opened a new period of antagonistic rivalry and confrontation, particularly between Washington and Moscow. Although the future cannot be foreseen with any certainty, Russia is now likely to focus on itself; its relations with the former Soviet Republics; and its outreach to China and Asia. This has important implications for Russia’s neighbors, including Turkey.
Committed to the principle of territorial integrity of states, Turkey has not recognized the Russian Federation’s recent incorporation of Crimea, which has altered the geopolitics of the entire Black Sea region. Turkey has been particularly interested in the situation of Crimean Tatars, a sizable minority in the peninsula. Turkey also believes that the security and stability of Ukraine is critical to the region. Turkey has taken due note of the formation of the Eurasian Economic Union of Belarus, Kazakhstan, and Russia, to which Armenia and Kyrgyzstan are due to accede soon. Turkey is a U.S. ally, a member of the North Atlantic Treaty Organization (NATO), and a partner of the European Union (EU), negotiating full membership. The United States and these institutions are significantly hardening their positions vis-ร -vis Russia.
Prior to the Ukraine crisis, bilateral relations between Turkey and Russia had gained significant momentum. The two countries had reaffirmed their desire to expand their bilateral trade to $100 billion within a few years. Russian-Turkish energy cooperation had been proceeding, from the Blue Stream gas pipeline and the South Stream project to the nuclear power station. Economic cooperation in other areas, such as construction, has been moving forward, as is humanitarian, cultural, and intellectual contact. Political dialogue continues all the way up to the top level. Maintaining this momentum in the new environment is a challenge faced by authorities on both sides.
Turkish-Russian relations had thrived in the broad context of cooperative relations between Russia and the West. Reversion to such a cooperative context remains the first-best and thus aspirational scenario for the bilateral relationship. In the absence of that benign trajectory, the two countries will need to reimagine and reshape their present positive relations within a new set of constraints.