Published online by Cambridge University Press: 09 October 2014
This article focuses on the years after World War I, especially the first decade following the 1923 establishment of the Republic of Turkey, in order to analyze the position of minorities in the developing “we” of the new nation as projected by its political elite. Situating the discussion in the context of the League of Nations interwar minority protection regime, I demonstrate that the Treaty of Lausanne, which the Ankara government and the Allies signed in July 1923, played an important role in the conflicting treatment that minorities have since received in Turkey. The treaty's minority protection clauses entrenched divisions that had already been formed in the Ottoman Empire during the violence of the preceding decade, including the Armenian genocide. Moreover, reminding Turkish leaders of how 19th-century European imperial powers had used the cause of Ottoman Christians’ suffering as an excuse to infringe on Ottoman sovereignty, these clauses alarmed the Turkish political elite, especially as the “Great Powers” themselves were not bound by such minority protection guarantees. The goal of preventing a repetition of this unbalanced international power dynamic, which, according to the new Turkey's leaders, had led to the demise of the Ottoman Empire, engendered paradoxical policies toward non-Muslim Turkish citizens; they have been largely excluded from a Turkness (Türklük) to which they were sometimes included, even forcibly included.
Author's note: I thank Betty Anderson, Mardiros Merdinoğlu, Abigail Jacobson, Nora Lessersohn, Hourig Attarian, Melissa Bilal, Gerard Libaridian, Christine Philliou, Ronald Suny, Fatma Müge Göçek, Molly Nolan, Elizabeth Wood, Beril Tezeller Arık, Christopher Capozzola, Howard Eissenstat, Elizabeth Frierson, Zeynep Kezer, Mustafa Aksakal, and IJMES editors Sara Pursley and Beth Baron for their valuable feedback.
1 See Çoker, Fahri, Türk Parlamento Tarihi: Millî Mücadele ve T.B.M.M. I. Dönem, 1919–1923, vol. 2 (Ankara: Türkiye Büyük Millet Meclisi Vakfı, 1995), 348Google Scholar.
2 The treaty was signed between “Turkey” (the Ottoman Empire) and “the Allied Powers,” meaning the British Empire, France, Italy, Japan, Greece, Romania, and the Serb-Croat-Slovene State. The full text is in The Treaties of Peace 1919–1923, vol. 2 (New York: Carnegie Endowment for International Peace, 1924), 959–1052.
3 Ibid., 973.
4 For recent studies on minority issues during the Conference of Lausanne, see Bayar, Yeşim, “In Pursuit of Homogeneity: The Lausanne Conference, Minorities and the Turkish Nation,” Nationalities Papers 42 (2013): 108–25CrossRefGoogle Scholar; and Al-Rustom, Hakem Amer, “Anatolian Fragments: Armenians between Turkey and France” (PhD diss., London School of Economics, 2012)Google Scholar.
5 Quoted in Eissenstat, Howard, “The Limits of Imagination: Debating the Nation and Constructing the State in Early Turkish Nationalism” (PhD diss., University of California, Los Angeles, 2007), 185Google Scholar.
6 According to the first census of Turkey, conducted in 1927, of the country's total population of about 13.5 million people, around 110,000 were Greek, 77,000 were Armenian, and 82,000 were Jewish. İçduygu, Ahmet, Toktas, Şule, and Ali Soner, B., “The Politics of Population in a Nation-Building Process: Emigration of Non-Muslims from Turkey,” Ethnic and Racial Studies 31 (2008): 368–69CrossRefGoogle Scholar. Note that the census figures are not completely reliable given how the questions were phrased, which categories were offered, and so forth. For more on this issue, see Dündar, Fuat, Türkiye Nüfus Sayımlarında Azınlıklar (Istanbul: Doz Yayınları, 1999)Google Scholar.
7 “Minority regime” refers to the interwar system that the League of Nations created for the newly established, expanded, or defeated eastern European states, wherein the concerned states accepted to formally commit to the protection of minorities and recognized the League as guarantor of that agreement. For the list of treaty-bound states and the minority stipulations common to all cases, see Preece, Jennifer Jackson, National Minorities and the European Nation-States System (Oxford: Oxford University Press, 1998), 73–75CrossRefGoogle Scholar.
8 Dr. Afetinan, A., Atatürk Hakkında Hâtıralar ve Belgeler (Ankara: Türk Tarih Kurumu Basımevi, 1959), 204Google Scholar.
9 These fears continue to inform Turkish policies. See Zarakol, Ayşe, “Ontological (In)Security and State Denial of Historical Crimes: Turkey and Japan,” International Relations 24 (2010): 3–23CrossRefGoogle Scholar.
10 For a representative sample, see Bali, Rıfat, Cumhuriyet Yıllarında Türkiye Yahudileri: Bir Türkleştirme Serüveni, 1923–1945 (Istanbul: İletişim, 1999)Google Scholar; Aktar, Ayhan, Varlık Vergisi ve “Türkleştirme” Politikaları (Istanbul: İletişim, 2000)Google Scholar; Okutan, Çağatay, Tek Parti Döneminde Azınlık Politikaları (Istanbul: Bilgi İletişim Grubu, 2004)Google Scholar; and Çetinoğlu, Sait, Ekonomik ve Kültürel Jenosit: Varlık Vergisi 1942–1944 (Istanbul: Belge Yayınları, 2008)Google Scholar.
11 For the first approach, see Eissenstat, “The Limits of Imagination”; for the second, see Rıfat N. Bali, Cumhuriyet Yıllarında Türkiye Yahudileri.
12 I do not suggest that religion, ethnicity, race, and language were not important to the construction of Turkness or that previous scholars have assumed them to be primordial. Rather, I emphasize that we should pay closer attention to the historical processes that made these factors politically important. For a sample of recent works in this subfield on Turkish nation-building, see Eissenstat, Howard, “Metaphors of Race and Discourse of Nation,” in Race and Nation: Ethnic Systems in the Modern World, ed. Spickard, Paul R. (New York: Routledge, 2005), 239–56Google Scholar; Çağaptay, Soner, Islam, Secularism, and Nationalism in Modern Turkey: Who Is a Turk? (London: Routledge, 2006)Google Scholar; Baer, Marc David, The Dönme: Jewish Converts, Muslim Revolutionaries, and Secular Turks (Stanford, Calif.: Stanford University Press, 2010)Google Scholar; and Üngör, Uğur Ümit, The Making of Modern Turkey: Nation and State in Eastern Anatolia, 1913–1950 (Oxford: Oxford University Press, 2011)CrossRefGoogle Scholar. With its attention to the Peace Treaty of Sèvres and the role of the “outside threat” framing the boundaries of the insider-national, the following work is closer to my analysis: İçduygu, Ahmet and Kaygusuz, Özlem, “The Politics of Citizenship by Drawing Borders: Foreign Policy and the Construction of National Citizenship Identity in Turkey,” Middle Eastern Studies 40 (2004): 26–50CrossRefGoogle Scholar.
13 I am not aware of any study of the League's minority regime that discusses the Treaty of Lausanne substantially. For example, Carole Fink's excellent and now classic book, Defending the Rights of Others: The Great Powers, the Jews, and International Minority Protection, 1878–1938 (Cambridge: Cambridge University Press, 2004)Google Scholar, does not have much to say about the Lausanne Treaty or Turkish Jewry. One exception that takes the Ottomans and the Lausanne moment seriously is Weitz, Eric, “From the Vienna to the Paris System: International Politics and the Entangled Histories of Human Rights, Forced Deportations, and Civilizing Missions,” American Historical Review 113 (2008): 1313–43CrossRefGoogle Scholar.
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16 On 1 May 1920, in the Grand National Assembly, Mustafa Kemal declared that within the national borders of the country for which they were fighting, “there are Turks, there are Circassians, and many other Muslim elements,” and that these borders were for “brother nations [kardeş milletler] who live in a mixed way and who have the same single purpose.” Atatürk, Mustafa K., Atatürk’ün Söylev ve Demeçleri, vol. 1 (Ankara: Türk Tarih Kurumu Basımevi, 1961), 73–74Google Scholar.
17 The emphasis on military service in definitions of true national belonging necessitates a discussion of women's citizenship in the early Turkish Republic, a topic that I had to leave out. For a recent sample in this vast literature, see Sancar, Serpil, Türk Modernleşmesinin Cinsiyeti: Erkekler Devlet, Kadınlar Aile Kurar (Istanbul: İletişim, 2012)Google Scholar.
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21 This does not mean that before the war, some Armenian groups did not work for an independent Armenia backed by Russia. But, for various reasons that had nothing to do with Armenians’ inherent, good-natured loyalty there was no wholesale, across-the-board “treachery” before World War I. Kaligian, Dikran, Armenian Organization and Ideology under Ottoman Rule (1908–1914) (New Brunswick, N.J.: Transaction Publishers, 2009)Google Scholar.
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28 For a discussion of how, in view of the failed minority protection regime and the perceived success of the Greek-Turkish exchange, European policymakers turned to population transfer (including partition) as the preferred medium for dealing with multiethnic coexistence, see Moses, A. Dirk, Genocide and the Terror of History: The Quest for Permanent Security (New York: Cambridge University Press, forthcoming)CrossRefGoogle Scholar.
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37 İsmet Pasha, the head of the Turkish delegation, emphasized this point at the Lausanne Conference but was not taken seriously, not only because of the orientalist biases of his audience but also because of the wartime massacres of Ottoman Christians. For a discussion of non-Muslims under Muslim rule, see Emon, Anvar, Religious Pluralism and Islamic Law: “Dhimmis” and Others in the Empire of Law (Oxford: Oxford University Press, 2012)CrossRefGoogle Scholar.
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46 Kidwai, The Future of Muslim Empire, quoted in S. Tanvir Wasti, “Mushir Hosain Kidwai and the Ottoman Cause,” Middle Eastern Studies 30 (1994): 255.
47 Kidwai, The Sword against Islam, quoted in Wasti, “Mushir Hosain Kidwai,” 259.
48 Ibid., 258.
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51 Note that Mehmed Şükrü did not deny that something bad had happened to religious minorities. He mentions that “they have been ruined” and that their existence came to an end. İsmet Pasha at Lausanne assumed this position, and later Mustafa Kemal replicated it. But they all also insisted that the minorities’ treachery necessitated and thus justified this treatment. Some contemporary scholars who do not accept that the wartime deportations of Armenians amounted to a genocide maintain a somewhat similar argument, claiming that because Armenians had provoked it (by creating rear-area security concerns in Eastern Anatolia) and because Ottomans were not prepared to devise a better military response to this challenge, the Ottoman counterinsurgency measures to relocate Armenians, as violent as they were, were understandable and justified, perhaps even deserved. See Erickson, Edward J., “The Armenians and Ottoman Military Policy, 1915,” War in History 15 (2008): 141–67CrossRefGoogle Scholar. For examples of works that analyze the intentions of the CUP without justifying them or shifting responsibility, see Bloxham, “Three Imperialisms and a Turkish Nationalism”; and Dressler, Markus, Writing Religion: The Making of Turkish Alevi Islam (New York: Oxford University Press, 2013), 100–112CrossRefGoogle Scholar.
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57 The other difference was that the 1924 constitution replaced the 1876 constitution's “sect” with “race.”
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73 Law No. 2510, “Iskân Kanunu,” 14 June 1934. This law mainly targeted Kurds.
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82 Law No. 1881, “Matbuat Kanunu,” 25 July 1931.
83 Quoted in İnce, Citizenship and Identity in Turkey, 78.
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87 Ibid., 249.
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