Country Reports on Terrorism 2015 - Turkey

Overview: Turkey has voiced increasing concern about terrorist groups near its border, including the Islamic State of Iraq and the Levant (ISIL) and al-Nusrah Front. In 2015, Turkey continued to face significant internal terrorist threats – including the deadliest attack in Turkey's history on October 10 – attributed to ISIL – and took strong action in response. Turkey is a source and transit country for foreign terrorist fighters wishing to join these and other groups in Syria and Iraq. The Government of Turkey intensified efforts to interdict the travel of suspected foreign terrorist fighters through Turkey to and from Syria and Iraq. These efforts included the development and implementation of a "banned from entry list;" standing up additional "Risk Analysis Units" to detect suspected foreign terrorist fighters at airports, seaports, bus terminals, and border cities; deploying additional military units to the border; and undertaking physical improvements to the security infrastructure along the border. Cooperation with other source countries increased during the year in response to the foreign terrorist fighter threat, with both Turkey and source countries seeking to improve information sharing. The United States and Turkey also improved their sharing of counterterrorism information. Turkey deported 2,337 suspected foreign terrorist fighters from 85 countries in 2015.

Turkey is an active member of the Global Coalition to Counter ISIL. It served as a co-chair of the Global Counterterrorism Forum (GCTF), with the United States and later with the Netherlands, and also co-chaired the Working Group on Foreign Terrorist Fighters (WGFTF) with the Netherlands. The WGFTF held three meetings in 2015, in Istanbul April 7, in The Hague June 9, and in Ankara November 23. Turkey opened Incirlik Air Base to Coalition partners in July and formally joined the Coalition's air operations against ISIL in August.

Prominent among terrorist groups in Turkey is the Kurdistan Workers' Party (PKK). Following three decades of conflict with the PKK, in late 2012 the Government of Turkey and PKK leader Abdullah Ocalan began talks for a peace process. The PKK called for a ceasefire in March of 2013, which both sides largely observed until July 2015. From January to mid-July 2015, the PKK carried out small-scale armed attacks against Turkey's security forces and military bases, which killed at least two security personnel. From mid-July to the end of 2015, more than 180 security personnel died from PKK-attributed attacks. On July 24, Turkish security forces launched large-scale operations against the PKK, as well as operations against ISIL-affiliated targets. Turkish military airstrikes against PKK camps, shelters, underground bunkers and weapon emplacements in Turkey's southeast and Northern Iraq continued through year's end.

In 2015, Turkey continued to face significant internal terrorist threats and took strong action in response. Activity by the Revolutionary People's Liberation Party/Front (DHKP/C), a terrorist Marxist-Leninist group with anti-U.S. and anti-NATO views that seeks the violent overthrow of the Turkish state, threatened the security of both U.S. and Turkish interests. So too did the actions of the Kurdistan Freedom Falcons/Hawks (TAK).

Another terrorist group in Turkey is Turkish (Kurdish) Hizballah (unrelated to the similarly-named Hizballah that operates in Lebanon). The Government of Turkey considers the Turkish Workers' and Peasants' Liberation Army, and the Marxist-Leninist Communist Party (MLKP), although largely inactive, to be threats. Turkey also considers the Syria-based Democratic Union Party and its military wing, The People's Protection Units, to be terrorist organizations. The Government of Turkey continued to engage diplomatically with Hamas political bureau chief, Khaled Meshaal.

According to Turkey's semi-official news agency, the Anadolu Agency, from July 24 to November 20, the Turkish National Police (TNP) carried out counterterrorism operations against 7,303 suspects belonging to PKK, ISIL, and other terrorist organizations. Of the 5,624 PKK suspects detained and officially questioned, 1,602 were arrested, while 2,908 were released by judicial order and 1,114 were released under judicial control. Of the 1,132 ISIL suspects detained, 346, including 63 non-Turkish foreign nationals were arrested, while 588 were released by judicial order and 198 were released on judicial control. Of the 386 DHKP/C, MLKP, and other terrorist suspects detained, 122 suspects were arrested, while 167 were released by judicial order and 97 were released on judicial control.

Turkey is a long-standing counterterrorism partner of the United States. It continued to receive U.S. assistance to address the terrorist threat posed by the PKK in 2015. The ceasefire between the PKK and the Turkish government ended in July. In October and November, the PKK issued a unilateral declaration of inaction, but small-scale incidents continued.

2015 Terrorist Incidents: Representative attacks included:

• On January 6, a female suicide bomber detonated her vest at a police station in Istanbul's central Sultanahmet district. The attack killed one police officer and injured another. The assailant was identified as a Russian citizen from Dagestan, who had links to ISIL.

• On June 5, four civilians were killed and more than 100 were injured in two bomb blasts at an election rally of the People's Democratic Party (HDP) in Diyarbakir. The assailant was subsequently identified as an ISIL member and arrested on charges of intentional homicide and membership in a terrorist organization.

• On July 20, 32 civilians were killed and 104 were injured in a suicide bombing at the Amara Culture Center in the Suruc district of Sanliurfa province. Victims were mostly members of the Socialist Party of the Oppressed (ESP) youth wing and the Socialist Youth Associations Federation (SGDF). The assailant, an ethnic Kurd from Adiyaman, was tied to ISIL.

• On July 23, ISIL opened fire on Turkish border elements in Kilis, which killed one noncommissioned officer. The incident prompted Turkey to launch "Operation Martyr Yalcin," a series of airstrikes against ISIL positions in Northern Syria. Four Turkish security personnel died as a result of ISIL attacks since July 20.

• On August 10, two individuals fired weapons at the U.S. Consulate in Istanbul. One assailant escaped, and the other was captured and subsequently identified as a member of the DHKP/C.

• On October 10, 102 people died and more than 400 were injured in twin suicide bombings outside Ankara's central railway station. The bombs targeted a "Labor, Peace and Democracy" rally organized by the Peoples' Democratic Party, the Confederation of Progressive Trade Unions of Turkey, the Union of Chambers of Turkish Engineers and Architects, the Turkish Medical Association and the Confederation of Public Workers' Unions. One of the two suicide bombers was identified as the younger brother of the perpetrator of the July 20 Suruc bombing. Both brothers had suspected links to ISIL and the ISIL-affiliated "Dokumacilar" group based in Turkey's Adiyaman province.

• On December 23, TAK conducted a mortar attack against Istanbul's Sabiha Gokcen International Airport. One person was killed, another wounded, and several passenger planes were damaged in the attack.

Legislation, Law Enforcement, and Border Security: Counterterrorism law enforcement efforts in Turkey remained focused on the domestic threat posed by several terrorist groups, including the PKK. Although resources have also been devoted towards countering threats posed by international terrorist organizations, Turkey's methodology and legislation are geared towards confronting this internal threat. Efforts to counter international terrorism are hampered by legislation that defines terrorism narrowly as a crime targeting the Turkish state or Turkish citizens, although courts have begun to interpret the term more broadly to include all activities associated with foreign terrorist fighters transiting Turkey to join ISIL, including facilitation networks. Turkey's definition of terrorism can be an impediment to operational and legal cooperation against global terrorist networks.

On August 31, the Ministry of Interior instituted a program providing monetary rewards to individuals who volunteer information to the government about suspected terrorists and terrorist-related activities. A seven-member interagency commission representing the police and gendarmerie may award up to approximately US $69,000 to an individual should the information lead to the apprehension of a terrorist or of an individual who provides information about a terrorist's identity or location. Information pertaining to the capture of a high-level terrorist or preventing significant criminal acts against society may be awarded up to approximately US $1.38 million upon the approval of the Interior Minister. Members of law enforcement, the military and employees of the Turkish government assigned to counterterrorism tasks are not eligible to benefit from the program.

On October 8, in support of these initiatives, the government launched a website (http://www.terorarananlar.pol.tr) that provides information on the identity of wanted terrorists categorized in order of importance, and the corresponding monetary award for information leading to their capture.

Due to amendments made in 2013, Turkey's counterterrorism legislation conforms more closely to EU freedom of expression standards, has a narrower definition of terrorist propaganda, and criminalizes propagation of the declarations of an illegal organization only if the content legitimizes or encourages acts of violence, threats or force. Nevertheless, the legislation remains broad-reaching and is still being widely applied. In 2015, Turkish authorities continued to use it to detain and prosecute politicians, reporters, and activists.

While Turkey's law enforcement capacity is advanced, criminal procedure secrecy rules continued to prevent Turkish National Police (TNP) authorities from sharing investigative information once a prosecutor is assigned to the case, which occurs almost immediately.

The Government of Turkey compiled a "banned from entry list" with a view to prevent travel into Turkey by individuals identified by foreign governments and internal security units as potential foreign terrorist fighters. Although the Turkish government does not have an automated Advanced Passenger Information/Passenger Name Record system, it has approached the U.S. Department of Homeland Security for technical assistance in developing its own automated system. Risk Analysis Units operated at major international and domestic airports, land border crossings, interior transit terminals, and border cities to identify and interdict potential foreign terrorist fighters. Border forces increased their ability to patrol and interdict persons and contraband from crossing the border. According to government statistics, during the April to November timeframe, Turkish military units along the Syria-Turkey border apprehended more than 110,000 individuals, mostly refugees, attempting to illegally cross the border.

The TNP has highly developed counterterrorism capabilities in a number of areas and is planning to expand its law enforcement training for other countries in the region. Notwithstanding police capacity, Turkey's criminal justice system is only beginning to show success in prosecuting and dismantling terrorist or organized crime organizations.

The Department of State provided select bilateral and regional trainings in the areas of border security, aviation security, and investigations, in partnership with Turkish law enforcement authorities and counterparts.

Countering the Financing of Terrorism: Turkey is a member of the Financial Action Task Force (FATF) and an observer of the Eurasian Group on Combating Money Laundering and Financing of Terrorism, a FATF-style regional group. In October 2014, the FATF cited improvements in Turkey's counterterrorism finance (CFT) regime and approved Turkey's exit from the targeted follow-up process of the third round of mutual evaluations. No terrorism finance cases were prosecuted in 2015.

While the Government of Turkey has issued freezing orders without delay (three to five days), it remains unknown whether any assets have actually been frozen. Freezing orders are published in the official Gazette. The nonprofit sector is not audited on a regular basis for CFT vulnerabilities and does not receive adequate anti-money laundering/combating the financing of terrorism outreach or guidance from the Turkish government. The General Director of Foundations issues licenses for charitable foundations and oversees them, but there are a limited number of auditors to cover the more than 70,000 institutions.

The Department of State supported a Resident Legal Advisor (RLA) from the Department of Justice's Office of Overseas Prosecutorial Development and Assistance Training, based in-country. The RLA partnered with Turkish counterparts on programs to enhance legal frameworks and the investigative skillsets of law enforcement officials to effectively counter the financing of terrorism.

For further information on money laundering and financial crimes, see the 2016 International Narcotics Control Strategy Report (INCSR), Volume II, Money Laundering and Financial Crimes: http://www.state.gov/j/inl/rls/nrcrpt/index.htm.

Countering Violent Extremism: The Turkish government has two significant programs to counter violent extremism. The first, administered by the Turkish National Police, is a broad-based outreach program to affected communities, similar to anti-gang activities in the United States. Police work to reach vulnerable populations (before terrorists do) to alter the prevailing group dynamics and to prevent recruitment. Police use social science research to undertake social projects, activities with parents, and in-service training for officers and teachers. Programs prepare trainers, psychologists, coaches, and religious leaders to intervene to undermine violent extremist messages and to prevent recruitment.

The second program, administered by the Turkish government's Religious Affairs Office (Diyanet), works to undercut violent extremist messaging. In Turkey, all Sunni imams are employees of the Diyanet. In support of its message of traditional religious values, more than 140,000 Diyanet religious officials throughout Turkey conducted individualized outreach to their congregations. The Diyanet similarly worked with religious associations among the Turkish diaspora to provide them with access to instruction and to assist them in establishing umbrella organizations. The Diyanet supported in-service training for religious officials and lay-workers via a network of 20 centers throughout Turkey.

On August 10, Diyanet released a report "DAESH's Basic Philosophy and Religious References" which provided a Quran-based refutation of ISIL's interpretation of Islam.

International and Regional Cooperation: Turkey is an active member of the UN, NATO, and the Committee of Experts on Terrorism. Turkey is a founding member of the GCTF and is co-chair with the Netherlands (previously with the United States); as co-chair, Turkey provided extensive secretariat support. It is also a co-chair for the GCTF's Horn of Africa Working Group. Turkey also participated in OSCE expert meetings on the Prevention of Violent Extremism and Radicalization that Lead to Terrorism organized by the OSCE/Office of Democratic Institutions and Human Rights and the OSCE Secretariat. It is also a founding member of the International Institute for Justice and the Rule of Law and seconded a judicial expert to the Institute to assist with trainings for judges and prosecutors who are handling terrorism cases.

The Government of Turkey is considering effective means to implement UNSCR 2178. As GCTF co-chair, it is developing policies in line with the framework of The Hague – Marrakech Memorandum on Good Practices for a More Effective Response to the "Foreign Terrorist Fighters" Phenomenon.

Turkey increased its cooperation with European countries regarding the activities of members of the DHKP/C. It also worked with countries from Asia, Europe, North Africa, North America and the Middle East to interdict the travel of potential foreign terrorist fighters planning to travel through Turkey to Syria.