ARTICLE TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

Turkey’s Humanitarian Diplomacy

and Development Cooperation
CEMALETTİN HAŞİMİ*

ABSTRACTDuring the last decade international development assistance be-

came an indispensable aspect of Turkish foreign policy. While expanding
development cooperation activities both geographically and in the variety
of development programs, Turkey’s successful demand-driven aid policy
and effective responses to humanitarian crises gained global attention.
Displaying a systematic increase, Turkey has become the 4th largest do-
nor in development assistance and 3rd in humanitarian aid generosity in
2012, providing development assistance to 131 countries listed as aid recip-
ients in 2011. This study, providing the most up-to-date and comprehen-
sive data on Turkish developmental assistance, aims to provide a history
of Turkey’s international assistance policy with a focus on the last decade.

Distance Matters

O
ne way to examine Turkey’s quest for multi-dimensional and effective
foreign policy is to focus on the development assistance and responses
to humanitarian crisis. As poverty, inequality, human resource weak-
ness, economic vulnerability and humanitarian crisis continue to haunt global
politics, Turkey, in search of being a global actor, has become involved deeply
with such a policy and given a political priority to development cooperation
activities and humanitarian assistance. The political will of active engagement
with such issues, found positive responses, in less than a decade, and Turkey’s
efforts has become subject of numerous praises, particularly in terms of its
pace and effectiveness.1

“If I request computers from the UN, they will take months and require a num- * John Hopkins
ber of assessments. They will spend $50,000 to give me $7,000 of equipment. University
If I request computers from Turkey, they will show up next week” says Mo-
Insight Turkey
hamed Nour, the Mayor of Mogadishu, Somalia, in September 2013 when he Vol. 16 / No. 1 /
was asked about Turkish aid to Somalia.2 2014, pp. 127-145

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In January 2013, the President of Somalia, Hassan Sheik Mahmoud, elaborated

on what he defined as the features of the Turkish model in Somalia.

“The Turkish model in Somalia is very, very clear… They said we want to do this
thing in Somalia, and they do it. They are there. They come there, starting from
their top leadership, the prime minister of the country with his family, the rest,
deputy prime minister, ministries. There is a deputy prime minister who comes to
Somalia every other month just to monitor and see how the projects are going on.
They are building or implementing projects that are really tangible ones… They are
doing the work there. They are driving their own cars. They are moving the city.
They are building. They are teaching. They are – and there are a number of clinics
that provide a free service to the people in Mogadishu alone. They are doing the
same thing – they started doing the same thing in Puntland and Somaliland… To-
day Mogadishu is cleaner because of the support of the Turkish. They provided the
garbage collection trucks and everything and the city is cleaner today.”3

Neither the President nor the Mayor is alone in praising Turkish aid. Since 2011,
virtually all political actors, refugees, representatives of UN, and NGOs from
and outside of Turkey have made similar comments. Two years later today, Tur-
key’s humanitarian aid to Somalia has become one of the most well-known acts
that has gained the hearts and minds of people in Africa and elsewhere.4

There are reasons for Somalians to focus on the “being there” aspect of interna-
tional-humanitarian aid, as almost all urgent humanitarian aid to Somalia for
the last 20 years has been coordinated at a physical distance because of “security
concerns.” While there is no doubt that security matters, Turkey is not immune
from such a concern as, in addition to several other attacks and threats, its em-
bassy was recently subject to a deadly assault.5 Despite the security situation,
Turkey has been active in the re-building of Somalia, particularly since August
2011 with the historic visit of Prime Minister Recep Tayyip Erdoğan.6 Urgent
humanitarian aid has developed into a comprehensive program for rebuilding
Somalia and Turkey has been defined as the only country “investing in the sta-
bility of Somalia unlike other countries waiting for stability to invest.”7 Further,
Turkey has also been active to a varying degree in several countries with similar
security problems, such as Afghanistan, Iraq, Syria, Yemen, etc.8

While there is no doubt that the effectiveness of international aid suffers from
insecure political conditions, such a context is not unfamiliar to aid activities
and it cannot be the sole factor to explain the difficulties of international aid.
Apparently, what matters more is not simply the physical distance but what can
be defined as the affective distance.9

Turkey has managed to contextualize the very meaning of international aid

in a way that enables it to move beyond all “distances,” specifically emotional
detachment created by the established world-system of nation-states. The re-

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

ceiver is perceived not as “a foreign person in need

of help” but as a living individual that witnesses and
symbolizes the global injustice and mistaken poli-
cies of “other states” dominating the world-system. As poverty, inequality
In this context, international aid has been treated as and humanitarian
a natural part of the very meaning of Turkey itself,
rather than being a mere result of strategic calcula- crisis continue to haunt
tion, political alignment or expression of solidarity. global politics, Turkey
It is what defines the New Turkey as a whole, from
domestic politics to its vision of global politics and
has given a priority
the self-perception of Turkish political elites. Such a to development
perception can be seen in daily phrases and speech- cooperation activities
es delivered by the Turkish Prime Minister (PM),
Deputy PM’s or NGOs in Turkey. and humanitarian
assistance
The mobilization of NGOs, direct involvement of
virtually all political-official figures, re-organization of aid institutions and
continuous references given to aid organizations are expressions of such po-
litical re-writing of aid activities in Turkey. It is this institutional, procedural
and political deployment of “affect” that enabled Turkey to cultivate a different
form of international cooperation aid that has its own peculiarities, moving
beyond the limits of present international aid both in practice and procedure.

The case of Somalia and the success of Turkey is one of many examples but it
receives more attention because it is a triggering case that has made the im-
pact and effectiveness of Turkey’s international aid more visible. Furthermore,
the case suggests a full framework to examine the distinguishing features of
Turkish aid from other similar development cooperation.10 Nevertheless, as of
2013, Turkey has been active in more than 100 countries, ranging from Asia to
Africa, the Middle East to Europe and America to the Far East.

So questions remain: What is the political history of Turkish aid? How can the
success and distinguishing features of Turkey’s international development aid
be explained? Is it simply another example of newcomers to the list of donor
countries or is it more than that? How is the link between humanitarian diplo-
macy and aid maintained in the discourse of Turkish foreign policy? These are
crucial questions that need to be answered in order to contextualize Turkey’s
foreign aid policies.

“Foreign Aid” and International Politics

Just as Turkey’s humanitarian aid covers more than Somalia, official devel-
opment assistance (ODA) itself is more than urgent humanitarian aid, which

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TIKA aid worker

posing with
children in Africa.
AA only represents one subset of ODA. Foreign aid simply refers to the flow of
materials and resources in cash or in kind from a developed state to developing
or less-developed nations.11 However, the form and content of what is consid-
ered official aid is as complex as international politics. To resolve such difficul-
ty, the Organization for Economic Co-operation and Development’s (OECD)
Development Assistance Committee (DAC) provided a specific definition of
ODA in 1961, which has become standardized and suggests certain criteria to
distinguish between different forms of aid as the following:

“…flows to countries and territories on the DAC List of ODA Recipients and to mul-
tilateral development institutions which are provided by official agencies, including
state and local governments, or by their executive agencies; and each transaction of
which is administered with the promotion of the economic development and welfare
of developing countries as its main objective and is concessional in character and
conveys a grant element of at least 25 per cent.”12

Setting the framework for development aid, ODA includes three subsets of aid
as “official development assistance, official aid and other official flows.” The

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

first includes direct or indirect aid to the least or middle developed countries
with economic development and welfare as the main objective. The second re-
fers to aid given to multilateral development institutions and developing coun-
tries. In terms of reporting, there are certain specific requirements set by ODA
eligibility, such as the exclusion of direct military aid and enforcement aspects
of peacekeeping forces. The third area refers to aid that is not directly aimed at
development or conveys a grant element of less than 25%. In the third frame-
work, all activities including “projects and programs, cash transfers, deliveries
of goods, training courses, research projects, debt relief operations and con-
tributions to non-governmental organizations,” as well as humanitarian aid,
meets the ODA criteria.13 Despite this clear-cut framework the ODA criteria
have remained inadequate to cover all the different forms of assistance, spe-
cifically those given through and by NGOs, in parallel to transformations in
international politics. In the last two decades, NGOs have developed beyond
an “intermediary agent in the delivery of aid” into “a direct agent that delivers
and organizes aid” on the ground,14 challenging the established framework of
aid organizations particularly since the end of the Cold War.

Alongside the presence of an intense humanitarian discourse in international

aid literature, there is a direct relationship between priorities in a nation’s for-
eign policy agenda and international aid. In other words, “realistically” and
carefully crafted national interests, as a general tendency, form states’ policies
and priorities on international aid. This relationship, which does not necessar-
ily constitute a negative correlation by definition, has been well documented
and the response to the relationship varies. Some have defined this as part of
broader and “sinister” national interests and others have taken it as an essential
expression of humanity or global responsibility. However, the necessity for aid
has never been directly disputed or rejected.

Turkish aid can be contextualized as the overlapping of the geographical ex-

pansion of Turkish international assistance and strengthening of aid organi-
zations with the rise of Turkey in the regional and global context. Rather than
disputing or rejecting the relationship, Turkey has claimed to relocate the con-
nection between politics and aid activities in a way that allows the relationship
to become part of the discussion in forming a responsive new international
order. One way to display this is to focus on the history of development assis-
tance politics in Turkey, which will be discussed in the following section.

Relocating Turkey, Reorganizing Institutions

A quick glance at the history of Turkey’s institutions of development cooper-
ation reveals a direct relationship between the strength, depth and variety of
aid activities with political and economic stability and the self-defined role of

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Turkey in global politics. In terms of foreign aid, Akçay divides the Republican
period in Turkey into three phases: 1923-1992, 1992-1999 and 1999 to now.15
As well as implying economic-political capabilities, each period reflects the
depth and complexity of foreign policy options of Turkey.

The first period covered major parts of Turkey’s history and was mostly char-
acterized by personal and temporary initiatives. Beginning in the mid-1980s,
Turkey implemented aid “in parallel with DAC criteria for the first time” and
began an official reorganization and planning of aid activities with the for-
mation of the Turkish Cooperation Agency, affiliated with the State Planning
Organization.16 However, both the amount and variety of aid has remained
weak and there was no centralized institutional organization for the planning,
coordinating and distribution of international aid until 1992.17 In this period,
Turkey was absent from international aid discussions, aside from its role as a
receiver country.

The second period, according to Akçay, began with the founding of the Presi-
dency for Turkish Cooperation and Development Agency (TIKA), also known
as the Presidency for Economic, Cultural, Educational and Technical Cooper-
ation (EKETIP), to respond the problem of coordinating aid activities under
the Ministry of Foreign Affairs in 1992.18 Despite intentions, there was not
much progress in resolving the issues and Turkish international aid during
this period was mostly limited within Turkic countries of the Central Asia and
Caucasia.19 Furthermore, political instability and economic crises has influ-
enced Turkey’s international aid, which is apparent in the sudden increase in
the total amount of aid in 1992, followed by a visible decrease and then irreg-
ular rise and decline in subsequent years.

Table 1: Turkey’s International Aid (millions USD) Between 1992 and 200220

1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002
1.182 283 54 149 188 383,37 400.77 380,22 202,17 139,65 144,76

Beginning in 1992, due to the dissolution of the Soviet Union and the end of
the Cold War, Turkey was optimistic that it could take an active international
role. However, setting aside the discussion of such a role, political instability,
economic crises and the lack of institutional structure prevented Turkey from
reflecting this ambition in its international aid activities. It remained disorga-
nized and weak both in the amount and geographical scope. Despite all the
effort, TIKA had only 12 Program Coordination Office’s (POCs) and activities
in merely 28 countries between 1992 and 2002.21

Akçay refers to the year 1999 as the beginning of the third period, as TIKA22
was folded into the Prime Ministry and the State Ministry for Coordination

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

with Turkic Republics and Related Communities was appointed for the orga-
nization of all aid activities.23 While the relocation in the bureaucracy enabled
TIKA to increase the variety and geographical scope of its activities, the de-
crease in the amount of aid continued until 2003.

The systematic and structural change in international aid politics began with
the rule of the AK Party in November 2002. The governmental transition came
with specific references to the role of Turkey in global politics, paving the way
for developing a comprehensive cooperation strategy. The increasing role of
TIKA in foreign politics, as the aid organization responsible for implement-
ing Turkey’s development cooperation policy, in subsequent years reflects this
transition, as well as the expansion of aid activities in terms of area, depth and
strength. In other words, the reorganization of development-cooperation in-
stitutions and enrichment of capacities is both representative of Turkey’s trans-
formation and a necessary-consequence of the change.

Relocating Turkey in Global Politics: “TIKA is Turkey”24

Turkey has experienced the last decade with discussions on the re-location and
re-orientation of Turkey in the global political context. As stated by Foreign
Minister Ahmet Davutoğlu, the claim is to maintain a transition from Tur-
key’s role as a “frontier country” of
the Western bloc during Cold War As of 2013 Turkey has been
and a “bridge country” between the
East and the West during the 1990s active in more than 100
to become aware of Turkey’s poten- countries, ranging from Asia
tialities.25 According to Davutoğlu,
Turkey’s role, after 2000, should be
to Africa, the Middle East to
defined as “a central country with Europe and Far East
multiple regional identities that can-
not be reduced to one, unified character” in the complex global political order.
Turkey is identified both geographically and historically with more than one
region and one culture, enabling “the country to play a central country status”
and find the capability to “maneuvering in several regions simultaneously.”26

This framing has been followed and realized by three-dimensional transfor-

mation in Turkey. Political consolidation and stability combined with an ex-
tensive democratization program, multi-dimensional vision of foreign poli-
tics and economic success, have been identified as three essential aspects of
Turkey’s transformation in the last decade.27 Unlike previous political crises
caused by coalitions or weak governments, Turkey has been under single-par-
ty rule since 2002. Turkey has witnessed a decisive democratization process
with several amendments to the constitution, a referendum and the EU pro-

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Turkey has experienced the last cess. Economically, financial sta-

bility and large-scale investments
decade with discussions on the enabled Turkey to become the
re-location and re-orientation ‘rising star’ in the region, making
Turkey the 16th largest economy in
of Turkey in the global political the world and 6th biggest in Europe.
context Furthermore, Turkey paid back all
its loans to the IMF in May 2013. In
terms of foreign policy, Turkey has become an active stabilizing actor in both
regional and global politics, reaching out to new geographies ranging from
Asia to Latin America, in addition to increasing activities in Europe and the
Middle East. The transformation process has been defined as the transition
from the Old Turkey to the New Turkey.28 In short, Turkey has returned to the
scene of global politics as a pro-active agent and development assistance orga-
nizations and NGOs have been the most active agents in realizing ambitious
vision of Turkey.

In the realm of development cooperation, the sharp increase in the activities of

TIKA is a concrete sign of that transformation. As of September 2013, TIKA
has implemented development projects in 110 countries from all continents
and has 35 POCs in 32 countries.29 The countries in which TIKA implemented
projects, ranging from Asia to Africa, Europe to Latin America and Middle
East, displays the depth of geographical scope of Turkey’s aid activities.30 Like-
wise the number of projects has dramatically increased. The total number of
projects rose to 114,47 between 2002 and 2012 from the 2241 projects imple-
mented between 1992 and 2002, a five-fold increase in the average number of
projected implemented each year. The total amount of official assistance be-
tween 2004 and 2012 (nearly $7.5 billion USD) reflects the systematic priority
given to international aid in the New Turkey.31 Figure 1 displays the consistent
increase in the number of projects implemented since 2002.32

Figure 1: The Number of Implemented Projects by TIKA (2002-2012)

2000 1879

1500 1402 1447

1347 1344 1351

1000 891

594
511
500
360 321

0
2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

The methodical increase of Turkey’s ODA during this period gained world-
wide recognition and the growth in 2011 and 2012 ranked Turkey first among
OECD countries in international assistance.33 However, the increase in the
amount of ODA has been a characteristic feature of Turkey’s international aid
since 2003. Figure 2 displays this tendency.34

Figure 2: Turkey’s Official International Aid Between 2003 and 2012 (millions USD)

3000
2532
2500

2000

1500
1273
780 967
1000 712 707
601 602
500 339
85
0
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012

As previously stated, international assistance cannot be reduced to only

ODA. Direct investments, urgent humanitarian aid and NGOs are also
crucial parts of Turkey’s international aid agenda. Table 2 displays the total
amount of development aid (in millions USD) in comparison to ODA since
the 2009.

Table 2: Total Development Aid and ODA35

Total development aid Total ODA NGOs

2012 3324,83 2533,30 111,65
2011 2363,45 1273,01 199,52
2010 1718,18 967,42 105,68
2009 1519,65 707,17 109,00

Official humanitarian assistance has been a defining feature of Turkey’s inter-

national aid activities. It increased to $1 billion USD in 2012, comprising more
than 40% of Turkey’s total ODA. This increase enabled Turkey to become the
4th largest donor in humanitarian assistance and 3rd in generosity relative to
Gross National Income, which is maintained by the highest increase of $775
million USD in 2012. Figure 3 provides the most comprehensive and compar-
ative data on humanitarian assistance on a global scale.36

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ARTICLE CEMALETTİN HAŞİMİ

Figure 3: Humanitarian Assistance in Numbers

Nevertheless, the increase in humanitarian assistance is not particular to 2012,

as humanitarian assistance has constituted a good portion of Turkey’s ODA
since 2005 (see figure 4).37 Furthermore, TIKA has been careful to maintain a
broad geographical scope in implementing its projects to refrain from limiting
activities to a single region (see Figure 5).

Figure 4: ODA Flows from Turkey Between 2000 and 2012

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

Figure 5: Regional Distribution of TIKA’s Spending Between 2002 and 201238

1000

821
800 1992 - 2002 66.000 USD
2003 - 2012 755.000 USD
Total
600

400 365

213
200 177

52
14 0
0
Central Asia Balkans and Middle East
Caucausia Europe and Africa

A similar tendency can be seen in the regional distribution of ODA between

2004 and 2012 (see Table 3, millions USD)39

Table 3: Regional Distribution of Turkey’s Official Development Aid (millions USD)

2004 2005 2006 2007 2008 2009 2010 2011 2012 Total
Europe 30,19 95,59 83,108 83,94 133,5 126,37 139,84 77,18 87,83 858,548
Africa 3,84 11,755 24,789 30,967 51,73 46,96 38,08 269,47 249,47 727,371
America 0,18 0,04 0,144 1,118 7,63 2,9 11,2 1,87 2,42 27,50
Asia 195,46 422,49 536,02 430,606 575,54 509,59 730,35 876,87 1582,72 5859,65
Oceania 0 1,59 0 1,389 3,6 0,12 0,66 0,51 0,06 7,929

In short, Turkey has been characterized in the last decade by a systematic focus
on expanding development assistance and humanitarian aid both in geograph-
ical scope and variety. As well as the success story of Somalia, Turkey’s policy
toward the Least Developed Countries (LDCs) and “open-door policy” toward
Syrians since 2011 have been two prominent examples of this process.

Turkey was the first non-Western country to host the 4th UN Conference on
LDCs in May 2011. The number of participants reached 10,000 with the in-
volvement of NGOs, 36 heads of state and government, 96 ministers and 66
presidents of international organizations.40 The Conference is one of the most
crucial events as it addresses the needs of 48 states, with a combined popu-
lation of 900 million people, categorized as “displaying the lowest indicators
of Human Development Index (HDI) measured in terms of life expectancy,
literacy, standards of living and Gross Domestic Products per capita.”41 The
Conference ended with the declaration of the “Istanbul Program of Action,”

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which determined the main pathways for the LDCs global development for
the next decade. In addition to the Program, Prime Minister Erdoğan also de-
clared Turkey’s economic and technical cooperation package for the LDCs,
providing a framework and specific policies on trade, investment, education,
tourism, agriculture, forestry and technical cooperation for assistance.42 It is
crucial to note that Turkey pledged to provide $200 million USD annually to
LDCs for technical cooperation projects and programs but has already exceed-
ed that pledge by spending $359.91 million USD in 2012.43

The second case, the open-door policy toward Syrians, is another aspect of
Turkey’s humanitarian assistance, which has been praised by representatives
of several international organizations and NGOs.44 As of January 2014, the
number of Syrians in Turkey has reached 700.000, with over 200,000 refugees
living in 21 accommodation centers, known as Temporary Protection Centers
(TPCs), run by the Disaster and Emergency Management Presidency (AFAD).
All Syrians have access to free health services and their major needs, includ-
ing education, are being met in the TPCs through the coordination of AFAD.
Approximately 62,000 refugees have attended educational courses, including
primary education and the total number given ambulatory care service has
reached 2.1 million. It must be noted that Turkey has spent more than $2 bil-
lion USD and only received $140 million USD in external aid since 2011.45

Turkey: Conscience of Global Politics

On September 26th 2013, while speaking at the World Humanitarian Summit
of the 68th UN General Assembly, the UN Secretary General praised Turkey’s
international assistance and declared that Turkey will host the first World Hu-
manitarian Summit in 2016. The Summit is defined as “a multi-year process,
starting next year with regional consultations that will ask all actors to discuss
how humanitarian work is conducted, how we can improve delivery for those
in need.”46 Turkey’s Foreign Minister welcomed the declaration and defined
the Summit as “the most meaningful one to be held in Turkey.” Hosting the
first World Summit on Humanitarian Assistance, following the 4th UN-LDC
Conference, is another historic milestone that displays Turkey’s key interna-
tional assistance role. In that sense, Turkey has become an indispensable part-
ner and leading country on a global scale in providing contributions to fight
against humanitarian crises, poverty and global injustice.

Turkey’s new role is a consequence of the strategic priority given to inter-

national assistance in the last decade and the material success maintained
through the activities of official and civil aid organizations. The leading role of
Prime Minister Erdoğan has been one of the most constitutive effects in this
transition. The majority of aid campaigns, particularly for Somalia, Myanmar

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

TIKA drills
hundreds of
water wells
across Africa.
AA

and Syria, have been directly launched and followed by the Prime Minister
himself. The first announcement of these campaigns was put on the website of
the Prime Ministry as an official call to raise awareness of suffering in different
parts of the world. In addition to continuous references and support to aid
organizations that represent Turkey’s soft power,47 virtually all international
forum and summits, such as the UN General Assemblies, Organization of Is-
lamic Cooperation meetings and international conferences, have been used
as platforms to increase awareness of the necessity of international assistance
to maintain global justice. Certain themes have been continuously referred
to in virtually all speeches delivered on these platforms, as well as in domes-
tic politics, including need for justice, links between world order and poverty
(UN and leadership failure), need for a new world order, and empathy. 48 Fur-
thermore, in addition to the coordinating function of TIKA, a specific Deputy
Prime Minister is appointed to monitor the implementation of each major aid
campaign, with participation of all affiliated institutions and representatives of
relevant ministries, such as AFAD, Kızılay, the Ministry of Health, the Minis-
try of Education and so on.49

The most striking theme apparent in all these activities has been the direct
reference to the historical, cultural and political values that believed to identify
Turkey. Humanitarian assistance has been defined as a natural and indispens-
able part of Turkey’s identity, rooted in a long historical tradition, which is

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viewed as paving the way for the foundation of a new global order by reviving
the long-forgotten legacy of Turkish identity.

Furthermore, maintaining regional and global stability has been directly asso-
ciated with development cooperation targeting to reduce poverty and preserve
sustainable global development
Expanding the geographical in Turkish foreign policy. In that
sense, expanding the geographical
scope and increasing the scope and increasing the amount
volume of official aid is an and variety of official aid has been
an indispensable part of Ankara’s
indispensable part of Ankara’s pro-active foreign policy.50 On the
pro-active foreign policy one hand, this universal perspective
of aid policy has a globalizing effect
on both NGOs and official institutions. On the other hand, the policy is a con-
sequence of such a tendency in Turkish foreign policy-makers. These organi-
zations, which previously had limited activities by either focusing on a specific
region or on domestic aid campaigns, have made different parts of the world,
from Central Asia to sub-Saharan Africa or the Middle East and Europe, part
of their daily discussions and activities.51

In that sense, the main theme of the 5th Annual Ambassadors Conference in
2012, “Humanitarian Diplomacy” (HD hereafter), was an expression of Tur-
key’s position in the international politics. HD, in Turkey’s perspective, meant
to be a vision beyond humanitarian aid, aiming at developing “a new language
of diplomacy in policy areas related to the future of the whole of humankind”.52
In the final declaration of the Conference, the following reason was given for
selecting this theme:53

“Humanitarian diplomacy reflects the compassionate and competent character of

the Republic of Turkey and depicts the human oriented nature of our foreign policy
which merges our interests with our values. Turkish foreign policy takes human
dignity as a point of reference and remains determined to use all its means and ca-
pabilities in this direction. In this regard and in light of the historical transformation
taking place in our immediate neighborhood, the deliberations in the Conference
has confirmed the need for Turkey to continue to implement humanitarian diplo-
macy in an effective and decisive way in a broad geography stretching from Syria
to Afghanistan and Myanmar to Somalia in the forthcoming period. … It was also
confirmed that Turkey cannot be indifferent to the developments taking place in the
southern and northern basins of the Mediterranean, with which it enjoys special ties
stemming from history.”

In his inaugural speech, Foreign Minister Davutoğlu defined HD as a consti-

tutive part of the vision suggested by Turkey, which stemmed from political

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 TURKEY’S HUMANITARIAN DIPLOMACY AND DEVELOPMENT COOPERATION

values embodied by Turkey in global politics. Relying on historical traditions

and the cultural heritage of the country, HD is an essential expression of Tur-
key’s role, identity and quest for justice in international politics. The three di-
mensions of Turkey’s HD, elaborated by Davutoğlu, policies toward citizens
of Turkey, policies toward crisis zones regardless of geographical proximity
and policies concerning structures of global order, are representations of such
framing of Turkey’s role in the global transformation of international politics.54
First, Turkey’s HD is presented as a model to explain virtually all activities
in foreign policy, ranging from visa liberation policy to the opening of new
embassies, involvement with humanitarian assistance to maintaining positive
civilian-state relations, being pro-active during times of crisis and taking re-
sponsibility in international organizations such as UN. Second, it is defined
as a framework developed by Turkey to move beyond diplomatic models and
humanitarian visions formed by the Westphalian nation-state model.55 This
is why Davutoglu defined the essence of Turkey’s national identity as being a
“nation-in movement,” enabling Turkey to have a multi-dimensional identity
stemming from historical encounters, from the East to the West or from the
South to the North. Through this global framing of identity, Turkey’s HD relies
on a perspective that does not differentiate between citizens and the people
with whom Turkey shares a common history and looks for more inclusive and
representative international order, “reflecting the will of all participants”.56 The
new formulation suggested in these speeches is defined as a “grand restoration”
of identity, culture and political self-perception adjusted to the political space
of global politics.57 In that sense the affective-distance created by the Westpha-
lian model of international order is surmounted by a globalized vision derived
from re-defining of Turkey’s identity and role.

Turkey’s development cooperation has been established on the basis of re-lo-

cating of national-identity, critique of the established world system, re-descrip-
tion of international politics and the march of Turkey into the political space
of a globalized world. The material success characterizing Turkey’s official aid
and humanitarian assistance is both a consequence and representative of the
complex relationship between these themes. Turkey has won the hearts and
minds of people through this systematic and dedicated vision of humanitarian
aid and official assistance, as it has been treated as the only way to respond to
the suffering of others and move towards a just global order.

Endnotes
1. In February 2012 the then chairman of OECD/DAC Brian Atwood offered membership to Turkey in
the Development Assistance Committee (DAC) and in October 2013, Erik Solheim, the present chairman
of OECD/DAC, renewed the invitation, and stated that “Turkey’s steps in Somalia may set an example for
other DAC member countries. It would be useful for us to have Turkey on DAC’s executive committee.”
http://www.haber7.com/ic-politika/haber/1083599-zenginler-kulubu-turkiyeyi-ikna-etmeye-calisiyor.
http://www.tr.undp.org/content/turkey/en/home/presscenter/news-from-new-horizons/2012/05/
turkey-is-on-the-way-of-OECD-DAC-membership/

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2. Kyle Westaway “Turkey is poised to cash in on a stable Somalia.” http://qz.com/124918/turkey-is-

poised-to-cash-in-on-a-stable-somalia. September 17, 2013.
3. Hassan Sheikh Mahmoud, Speech delivered at CSIS “The Future of Governance in Somalia.” http://
csis.org/files/attachments/130117_HassanSheikhMahamud_transcript.pdf. 17 January 2013, pp. 18-19.
4. For some readings on Turkey-Somalia relationship see Amal Ahmad, “Understanding Somalia.”
http://www.opendemocracy.net/amal-ahmed/understanding-somalia. April 1, 2013. Osman Jama
Ali and Mohamed Sharif Mohamud. “Only Turkey is showing solidarity with Somalia’s people.”
http://www.theguardian.com/commentisfree/2012/jan/26/un-somalia-crisis. January 26, 2012.
Pinar Akdemir. “Turkish aid to Somalia: A new pulse in Africa.” http://www.aljazeera.com/indepth/
opinion/2011/08/20118288361981885.html. September 2, 2011. Abdi Ismail Samatar. “A new deal
for Somalia: How can it work.” http://www.aljazeera.com/indepth/opinion/2013/10/a-new-deal-for-
somalia-how-can-it-work-20131021392150694.html. October 12, 2013. Alpaslan Özerdem. “How Turkey
is emerging as a development partner in Africa.” http://www.theguardian.com/global-development-
professionals-network/2013/apr/10/turkey-development-partner-africa. April 10, 2013. Ahmed Ali.
“Turkish aid in Somalia: the irresistible appeal of boots on the ground.” http://www.theguardian.
com/global-development-professionals-network/2013/sep/30/turkey-aid-somalia-aid-effectiveness.
September 30, 2013. Julia Harte. “Turkey Shocks Africa.” World Policy Journal. vol. 29 , no. 4, Winter 2012 -
2013, p. 27-38. J. Campbell “Turkeys love affair with Somalia.” http://blogs.cfr.org/campbell/2012/11/07/
turkeys-love-affair-with-somalia. November 7, 2012. The distinctive features and the impact of Turkey’s
humanitarian assistance toward Somalia has been subject of positive comments with specific references
to the success, influence and peculiarities of Turkish policy. The following comments display the general
tendency of readings on Turkey’s initiative: “Somalia, a dead country brought back to life, by the Turks”,
“They have done differently, to win over the hearts of the people of Somalia.” “One country, Turkey,
has responded in a unique manner, demonstrating solidarity with the people of Somalia.” “The Somali
people wholeheartedly appreciate this act of bravery and nobility” “What can be learned from the
Turkish initiative is that when you provide sincere assistance directly and immediately to those who are
most in need, you gain the hearts and minds of the people.” “More than any other country, Turkey has
taken on a deeply influential role in bringing Somalia’s situation to international attention.”
5. Alongside previous incidents, staff building of Turkey’s embassy in Mogadishu was subject of a
deadly attack on 27 July 2013. http://www.aa.com.tr/en/s/208997--c
6. Prime Minister Erdogan, accompanied by his wife, children, and a large delegation of ministers,
journalists, celebrities and representatives aid organizations, composed of more than 300 people, visited
Mogadishu on 29 August 2011 and became the first leader in the last 20 years visiting Somalia. Right
after the visit, in November, Turkey has become the first non-African country by reopening the embassy
in the city and in March 2012 Turkish Airlines has begun direct flights from Istanbul to Mogadishu, again,
became the first major commercial airline in the last 20 years has landed at Mogadishu airport. Since
the visit, Turkey have been assisting Somalia in all sectors, from health services to infrastructure and
education. A documentary, “Somalia after two years,” provide a complete coverage of Turkey’s projects
in Somalia, see http://www.youtube.com/watch?v=iM6ZIrNqHHw. The documentary covers all aid
activities by the Government and all NGO’s since August 2011. Regarding the security concerns PM
Erdoğan has been quite clear: “By re-opening of our Embassy in Mogadishu, we have also showed the
world that claims of security challenges cannot be an excuse for delaying assistance” said in September
22, 2011 in his speech delivered to the 66th session of the UN General Assembly, by which the world’s
attention is taken to Somalia. http://gadebate.un.org/sites/default/files/gastatements/66/TR_en.pdf
7. Abdi Aynte, “Türkiye-Afrika İlişkileri Ankara’da Tartışıldı” http://kdk.gov.tr/faaliyetler/paneller/
turkiye-afrika-iliskileriortak-kaderortak-gelecek/124. 07 February 2013. For Turkey’s opening to Africa
see http://kdk.gov.tr/sayilarla/afrika-acilimi/11
8. TIKAvizyon. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 4.
9. The term “affect” here is used to describe complex set of relationship between actions or behaviors
and emotions, values and feelings, the former being characterized and formed by the latter. Minister
of Foreign Affairs Davutoğlu referred to “hemhal olmak” (being fellow in emotions and feelings) as one
of the defining feature of Turkish humanitarian assistance, which will be discussed in the last section.
In such a framework, “affective distance” refers to the relationship maintained between Westphalian
system of nation-state and individual-political awareness or blindness toward suffering of “foreigners”.

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The established forms of politics in the constellation of nation-states create structural obstacles toward
nourishing emotions, values or feelings conducive to such awareness on the global scale, with the
exception of depoliticizing humanitarian discourse. For related speech by Davutoğlu see http://www.
mfa.gov.tr/disisleri-bakani-sayin-ahmet-davutoglu_nun-yeni-atanan-baskonsoloslara-yonelik-hitabi_-
28-haziran-2013.tr.mfa
http://www.mfa.gov.tr/disisleri-bakani-sayin-ahmet-davutoglu_nun-v_-buyukelciler-konferansinda-
yaptigi-konusma_-2-ocak-2013_-ankara.tr.mfa
10. See all references in endnote 3.
11. Engin Akçay, Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları, (Ankara: Turgut Özal Üniversitesi
Yayınları , 2012), p. 7.
12. For summarized info on distinguishing features of ODA see OECD (Organization for Economic
Cooperation and Development) “Is it ODA.” OECD Publishing, Paris, 2008, p. 1.
13. OECD, (DAC). “Glossary of statistical terms,” OECD, Paris. 2007
14. Akçay, Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımlar, p. 16.
15. Akçay, Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları, p. 63
16. It must be noted that Turkey is both a recipient of ODA and a donor country and officially Turkey’s
international aid programme is launched on June 5th 1985 with a “comprehensive aid package worth
10 million USD, destined towards institutional capacity building in Gambia, Guinea, Guinea Bissau,
Mauritania, Senegal, Somalia, and Sudan.” In the realm of capacity building and technical assistance
TAC’s involvement continued until the late 1990s. see http://www.mfa.gov.tr/turkey_s-development-
cooperation.en.mfa
17. Akçay, Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları, pp. 65-67.
18. EKETIP is proto-form of TIKA founded under ministry of Foreign Affairs has been responsible
from development aid with priority given to Turkic countries. It must be noted that alongside TIKA,
AFAD (established in 2009, Disaster and Emergency Management Presidency) and Turkish Crescent
(established in 1868, the largest humanitarian organization in Turkey) have influential role in realizing
Turkey’s international-humanitarian aid, particularly in the case of emergencies. However, TIKA is
responsible for implementing Turkey’s development and aid cooperation policy with national actors,
international organizations. Further to that TIKA is also accredited to collect and report ODA statistics
of Turkey. Therefore telling the story of Turkey’s international aid policy is to tell the story of TIKA. For a
brief reading see http://www.mfa.gov.tr/turkey_s-development-cooperation.en.mfa
19. Akçay. Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları. pp. 73-76
20. Akçay. Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları. pp. 73, 76, 79. Until the early 2000 Turkey’s
international assistance has suffered from collecting proper data of the amount of aid. Relying on official
sources Akçay’s study provide the most comprehensive data beginning from 1990s.
21. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 4.
22. Alongside coordination and reporting of development assistance, fighting against poverty,
maintaining sustainable development, capacity sharing, technical assistance, cultural cooperation,
protecting and restoring cultural and historical legacy of Turkey and capacity building are described as
main tasks of TIKA. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” August 2013, p4.
23. Akçay, Bir Dış Politika Enstrümanı Olarak Türk Dış Yardımları, p. 78.
24. “TIKA is Turkey” is a frequently used phrase by all political elites in Turkey for describing all types of
development cooperation, capacity buildings and aid activities of Turkey. The first usage of the phrase
is unknown but since mid 2000 it became quite popular from Balkans to the Middle East and Africa. For
related stories see http://kdk.gov.tr/haber/bekir-bozdag-ve-cevdet-yilmaz-somalide/226
www.haberturk.com/dunya/haber/856320-gazzede-insan-olmak www.haberturk.com/dunya/haber/
823798-somalide-turk-mucizesi
Deputy Prime Minister Bekir Bozdağ, in charge of TIKA, told the press that he heard the phrase for the
first time from a woman in Macedonia, during an opening ceremony. “When she was asked what TIKA is
by her child, she replied: TIKA is restoring our mosques, give scholarship to our children. TIKA is Turkey.”
http://www.tika.gov.tr/haber/tika-turkiyedir/457

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25. Ahmed Davutoğlu, “Turkey’s Foreign Policy Vision: An Assessment of 2007,” Insight Turkey, Vol. 10. No.
1. (2008), pp. 77-80.
26. Ahmed Davutoğlu, “Turkey’s Foreign Policy Vision: An Assessment of 2007.” p. 78.
27. For a comprehensive reading on the last decade of Turkey in foreign politics see İbrahim Kalın (ed.),
2000’li Yıllar: Türkiye’de Dış Politika. (İstanbul: Meydan Yayıncılık, 2011) and Cemal Haşimi (ed.), 2000’li
Yıllar: Türkiye, Avrupa ve Avrupa Birliği. (İstanbul: Meydan Yayıncılık, 2011). The series entitled as “2000’li
Yıllar” consists of 10 edited studies covering the last decade of Turkey with different focus, ranging from
economy to culture, democratization, law, education, media and political parties and identities. See
http://www.2000liyillar.com/kitaplar.htm
28. See the firs annual conference of Insight Turkey: Debating New Turkey held in Washington DC in 2010.
http://www.insightturkey.com/first-annual-conference-debating-new-turkey/events/173
29. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 4.
30. Implemented projects include technical assistance and cooperation, programme assistance,
education (training and providing educational materials, school construction and renovation), health
sector improvements (hospital construction and renovation, providing medical equipments and
materials, surgical operations, vaccination campaigns), water and sanitation, improvement of public
and civil infrastructure, cultural cooperation, restoration activities, housing, and agricultural projects
(providing equipment and technical support). For a full list of activities see http://www.tika.gov.tr/en/
fields-of-activity/2 and for a detailed list countries see TİKAvizyon paper but some of these countries
are as following: Afghanistan, Azerbaijan, Georgia, Turkmenistan, Pakistan, Bhutan, Estonia, Romania,
Greece, Benin, Bostvana, Cibuti, Ethiopia, Nijer, Hungary, Cuba, Vanuatu, Sierra Lione, Palestine, Egypt,
Madagaskar, Mauritania, Togo, Eritrea and etc.
31. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), pp. 6-7.
32. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 6.
33. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 13.
34. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 13.
35. The statistics provided by TİKA Presidency and it must be noted that the data refers only assistance
met with ODA criterion. Numerous NGOs have been crucial part of Turkey’s humanitarian assistance
and several NGOs such as Humanitarian Relief Foundation, Kimse Yok mu, Cansuyu, Yeryüzü Doktorları,
Yardımeli, have managed to maintain a global outreach in their activities.
36. Global Humanitarian Assistance Report, 2013, p. 4. GHA provides the most comprehensive up-
to-date data for global humanitarian assistance. http://www.globalhumanitarianassistance.org/wp-
content/uploads/2013/07/GHA-Report-20131.pdf. It is crucial to note that Turkey maintained such an
increase in 2012 despite the worldwide tendency to reduce urgent humanitarian aid.
37. Global Humanitarian Assistance Report, 2013, p. 37.
38. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 8.
39. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 15. Then, here it must noted
that the perception of Turkey’s international assistance as being concentrated on small number of states
such as Pakistan, Syria and Somalia, at the expense of others is mostly related with urgent humanitarian
aid. It does not adequately provide a comprehensive picture of Turkey’s policy of international assistance.
40. See http://www.ldc4istanbul.org/
41. http://www.ldcwatch.org/index.php?option=com_content&view=article&id=2&Itemid=27&
lang=en
42. For Istanbul Declaration see http://ldc4istanbul.org/uploads/IPoA.pdf and for Turkey’s economic-
technical package for LDCs see http://ldc4istanbul.org/uploads/special_supplement120511.pdf
43. “TİKA Faaliyetleri ve Resmi Kalkınma Yardımları,” No.1 (August 2013), p. 15.
44. For some examples www.aa.com.tr/en/news/236474--un-praises-turkey-s-effort-on-syria-refugees
http://www.hurriyetdailynews.com/un-chief-visits-camps-and-praises-turkey.aspx?pageID=238&
nID=36378&NewsCatID=338
http://english.cntv.cn/program/asiatoday/20130313/100060.shtml

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45. http://english.sabah.com.tr/national/2013/09/12/pm-erdogan-islamophobia-is-a-crime-against-
humanity
46. See http://www.aa.com.tr/en/news/233245--turkey-to-host-first-ever-world-humanitarian-summit-
in-2016
47. see http://www.akparti.org.tr/english/haberler/ak-party-group-meeting-november-23-2010/25713
and http://www.haberturk.com/dunya/haber/661358-stklarla-somaliyi-degerlendirdi
48. Recep Tayyip Erdogan. “Tears of Somalia” Foreign Policy. (October 10 2011). http://www.foreignpolicy.
com/articles/2011/10/10/the_tears_of_somalia
For some of these speeches, see http://www.ldc4istanbul.org/uploads/newsletter2.pdf http://gadebate.
un.org/sites/default/files/gastatements/66/TR_en.pdf
http://www.thenewturkey.org/erdogan-a-new-order-of-justice-is-needed/new-world/1317
http://www.akparti.org.tr/english/haberler/ak-party-group-meeting-november-23-
http://www.akparti.org.tr/english/haberler/ak-party-group-meeting-october-9-2012/32934
http://www.haberturk.com/gundem/haber/784951-basbakandan-onemli-aciklamalar
http://news.gmu.edu/articles/2417
49. https://www.afad.gov.tr/EN/HaberDetay.aspx?ID=5&IcerikID=911
http://kdk.gov.tr/haber/basbakan-yardimcisi-bozdag-ankara-somaliye-2-yil-once-bugun-ses-
vermisti/284
50. Here it must be noted that in 2011 “Turkey provided development assistance to 131 countries that
appear on the OECD/DAC list of aid recipients” and implemented a “demand-driven aid policy.” http://
www.mfa.gov.tr/turkey_s-development-cooperation.en.mfa
51. See the latest news: “Eid al-Adha campaigns of Turkish foundations and associations attract attention
all around the world from Turkey to Asia, Africa, Balkans, and Far East.”
http://www.aa.com.tr/en/s/241036--turkish-eid-reliefs-reach-over-2-5-million-families
52. Ahmet Davutoğlu “Turkey’s Humanitarian Diplomacy: Objectives, Challenges and Prospects,”
Nationalities Papers: The Journal of Nationalism and Ethnicity, Vol. 41. No. 6 (2013), pp. 866.
53. The conference is one of the most crucial events for Turkey’s foreign policy as being held with
the participation of all ambassadors, it functions as a platform to discuss and determine the main
strategies of Turkey in global politics. See final declaration of the conference: http://www.mfa.gov.tr/
final_declaration_of_the_fifth_annual_ambassadors_conference.en.mfa
54. Ahmet Davutoğlu “Turkey’s Humanitarian Diplomacy,” pp. 866-870.
55. http://www.mfa.gov.tr/disisleri-bakani-sayin-ahmet-davutoglu_nun-v_-buyukelciler-
konferansinda-yaptigi-konusma_-2-ocak-2013_-ankara.tr.mfa
56. Ahmet Davutoğlu “Turkey’s Humanitarian Diplomacy,” pp. 868.
57. http://www.mfa.gov.tr/disisleri-bakani-sayin-ahmet-davutoglu_nun-yurtdisi-vatandaslar-danisma-
kurulu-toplantisi_-17_06_2013.tr.mfa
http://www.mfa.gov.tr/disisleri-bakani-ahmet-davutoglu_nun-diyarbakir-dicle-universitesinde-
verdigi-_buyuk-restorasyon_-kadim_den-kuresellesmeye-yeni.tr.mfa

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One of the fastest growing economies in the world A population of 76 million with half under
and the fastest growing economy in Europe with an the age of 30
average annual real GDP growth rate of 5% over Access to Europe, Caucasus, Central Asia,
the past decade (2002-2012) the Middle East and North Africa
The fastest growing economy among the OECD members with
Highly competitive investment incentives as well
an average annual growth rate of 5.2% (OECD 2012-2017)
as exclusive R&D support
16th largest economy in the world with over $1 trillion
GDP at PPP (IMF 2012) Around 600,000 university graduates per year

146 Insight Turkey