The Makarios-Denktash Talks, 1977

Makarios reported that during the meeting the climate was satisfactory and without signs of enmity. Mr. Denktash spoke in a conciliatory spirit and expressed his desire that the two communities should live together because, as he said, "we are in the same boat." He also referred to the "regrettable" fact that new generations of Cypriots have no contact with each other.

The discussion was opened by a short introductory statement by Mr. Perez de Cuellar [the U.N. Special Representative] and then His Beatitude spoke first, saying approximately the following:

"I accept a federal solution to our problem under conditions safeguarding the independence and the unity of the Cyprus State. Freedom of movement, freedom of settlement and the right to property are basic prerequisites of a federation. It is my impression that the Turkish Cypriot side, when it uses the term "federation" it means "confederation ". We should not enter into details unless agreement on certain basic principles is first reached. If the talks will be resumed the interlocutors must not play with words but must be able to express clear views on the various aspects of the problem. The most constructive approach is that of a package deal. The extent of territory to be administered by each community and the powers of the Federal Government are of great importance.

You sign your letter to me [January 9, 1977] as "President of the Turkish Federated State". Needless to say I am not meeting you in that capacity, which I do not recognise, but as leader of the Turkish Cypriot community.

You write that "you will give me your views on a federal solution and other matters" and your views will help me to gain a better understanding of the position of the Turkish Cypriot side. Our view has always been that the two sides can live and work together and it is our earnest wish that a solution will be found to make this possible".

The discussion which followed with Mr. Denktash at the meeting was as follows: Denktash answering Makarios' observation regarding "federation" stated that the Turkish side "speaks of federation". During the talks Denktash, challenged by His Beatitude, repeated at least three times that the Turkish side aims at the creation of "a federal state" and not of a "confederation".

On the territorial aspect Denktash stated: "We are talking about areas and not percentages of territory and in fact about areas marked on a map. We have in this respect stated certain criteria by which the areas could be defined".

His Beatitude replied that he had in mind the criteria which were mentioned, but these could lead also to an area of 50%. "Consequently", His Beatitude added, take into consideration your criteria and state what you propose with regard to territory because the territorial aspect is most significant. Certainly equally significant are also the principles of freedom of movement, freedom of settlement, respect of ownership and home. I have already declared that I am ready to examine any form of solution either multiregional or bizonal and I propose an area of 20% of the territory of the Republic to be under Turkish Cypriot administration, i.e. a percentage of area based on the ratio of the population. It must, however, be understood that each proposal is under the condition that it becomes binding if a total agreement is reached on all the issues.

Denktash pressed by Makarios, replied. "Since you insist I mention a percentage, I say 32.8% which corresponds to Turkish Cypriot ownership of land." When His Beatitude stated that there was a very great and unbridgeable gap, Denktash observed "This percentage is negotiable, it remains open for discussion."

His Beatitude, stressing again that the distance was too great, observed: "There are hopes of an agreement being reached if the negotiation on the territory is limited within the framework of 20% - 25%".

Mr. Denktash replied: "I cannot reply. Our proposal is the one I made."

His Beatitude then turned the discussion to the various principles which ought to rule the solution and the freedom of the citizens and on which the Greek Cypriot side based a solution. To each question Denktash answered as follows:

a. Freedom of movement? A. Accepted. To a question by His Beatitude if Mr .Denktash meant that the citizens would be free, like tourists, to travel and look at their properties Denktash replied "Of course not, but this belongs to another category of issues."

b. Right to property? A. Accepted.

c. Right of Settlement? A. Agreed. But not such so that the purpose of the federation would be lost.

d. Right of refugees to return to their homes? A. This is open to discussion. In any event it is impossible that all refugees will return.

e. Right to work? A. Acceptable.

f. Right to reside? Depends on the overall agreement to be reached.

His Beatitude told those present that he had not considered it appropriate that during the meeting with Mr. Denktash he should enter into a detailed discussion of the above subjects, which was also in accordance with the views expressed during the unofficial meeting with members of the National Council on 25th January 1977. Those present agreed that it would not have been desirable that during His Beatitude's meeting with Denktash a detailed discussion of any issues should have been made.

His Beatitude and Mr. Denktash discussed next the possibility of future meetings between them. His Beatitude told Mr. Denktash that he did not wish a change in the status of the intercommunal talks, nor to create an impression that progress was made, if in fact there was no progress. During the Vienna meetings, His Beatitude said, no progress was made, but a different impression was given.

Mr. Denktash agreed to keep the status of the talks but also said that "if there are difficulties we two will assist in their removal by meeting, if it is necessary". Makarios agreed with this, and repeated that the resumption of talks depended on the Secretary-General, Dr. Waldheim. Mr. Perez de Cuellar said that the Secretary-General would be in the area on 12th February 1977 and that he was willing to come to Cyprus. After a discussion it was agreed between His Beatitude and Mr. Denktash that they should meet at the same place again in the presence of the Secretary-General on the 12th and perhaps on the 13th, of February 1977, and that the interlocutors, Messrs Onan and Papadopoulos would participate if it was considered necessary.

Further, Makarios continuing the briefing, said that during the meeting the following subjects where mentioned:

(a) Denktash stated at length his well known allegations regarding the alleged sufferings of the Turkish Cypriots.

(b) On the subject of the missing persons, which was raised by His Beatitude, Mr. Denktash said that he had repeatedly stated that the Turkish Cypriots were not holding undeclared prisoners, he stressed that the Turkish Cypriot side had no reason to hold undeclared prisoners and thus give others the excuse to bring accusations against the Turkish Cypriot community. . .

(c) Regarding those enclaved Greek Cypriots in areas under Turkish control, Denktash gave assurances that those who leave submit applications, that their leaving the area is voluntary and that sometimes they bribe Turkish Cypriots in order to secure priority in having their applications examined. Denktash proposed that the applications of Greek Cypriots to leave the areas under Turkish control be sent to His Beatitude in order to establish if they were genuine.

(d) To an observation by Makarios that Mr. Denktash had not said whether he accepts a single state, Denktash replied "Yes, it depends on the conditions of the agreement".

(e) His Beatitude declared that he was not meeting Mr. Denktash as "President of the Turkish Cypriot State", because he did not recognise him as president. Denktash replied "Neither do I recognise you as President of the Republic of Cyprus" to which Makarios replied "I know it. Others, however, throughout the world, do recognise me."

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The Second Meeting, February 12, 1977.

The meeting with Mr. Denktash lasted from 7 p.m. to 15 minutes past midnight and it was rather constructive. Some progress was made, but it was not satisfactory. The U.N. Secretary-General opened the discussion briefly, and then gave the floor to His Beatitude, who inter alia, said the following:

He expressed his thanks to the Secretary-General and his appreciation for the task performed in Cyprus by the Special Representative of the Secretary-General Mr. de Cuellar.

"For the talks to be substantial, " His Beatitude said, "we must define clearly the framework within which the interlocutors will try to find a solution, and this must be the purpose of this meeting today. Otherwise the talks will prove fruitless. During the first meeting common ground was established, but not sufficiently to form a satisfactory basis. We have agreed that Cyprus will be an independent, non-aligned federation, in which each community will have a certain area under its administration and that there will be a federal government. On the issue of the extent of the respective areas I proposed 20% for the Turkish Cypriot area and Mr. Denktash claimed 32.8%, but I do not see any basis for Mr. Denktash's proposal of 32.8%. By accepting a federal solution at the same time we propose certain prerequisites, such as freedom of movement, freedom of settlement and the right of property. On these principles which secure the unity of the country there are differences of opinion. Mr. Denktash accepted the first principle, he considered the acceptance of the others as depending on the final solution.

"It is possible that the argument will be advanced that the acceptance of these principles presents practical difficulties for the Turkish Cypriot side, but if the principles are accepted in principle, the negotiators could discuss ways to overcome the difficulties.

"I stress that I cannot give up these principle which have been sanctioned by international conventions. If the framework for the talks is not clearly defined it will not be possible for the talks to be of substance and fruitful, and in such a case I doubt whether the talks ought to be resumed. Certainly the Secretary-General will decide. I am approaching the talks with every good will and I believe that a compromise is not difficult if a spirit of good will prevails."

After a few comments from the Secretary-General, Denktash spoke and referred at length to the well known Turkish allegations about the so-called ills which the Turkish community had suffered in the past four years. He also referred to information that after a solution Greek Cypriot refugees, moving through areas under Turkish Cypriot control, would take violent action .

On the territorial aspect he said that his demand for 32.8% was based on the land ownership of the Turkish Community. His Beatitude said that there were objective statistics and archives from 1934. To an observation by Mr. Denktash that the Greek Cypriot side must state reasons and arguments why it demands the return of those areas, His Beatitude said that no arguments are needed because the owners of properties must receive back their property, which was taken from them by force.

After a long discussion the following text of guide-lines were agreed for the interlocutors:

"(1) We are seeking an independent, non-aligned bicommunal. Federal Republic.

(2) The territory under the administration of each community should be discussed in the light of economic viability, or productivity and land ownership.

(3) Questions of principle like freedom of movement, freedom of settlement and the right to property and other specific matters are open for discussion taking into consideration the fuundamental basis of a bicommunal federal system and certain practical difficulties, which may arise for the Turkish Cypriot community.

(4) The powers and functions of the Central Federal Government will be such as to safeguard the unity of the country having regard to the bicommunal character of the state.

(a) On the issue of the powers and functions of the Federal Government His Beatitude stated that he does not wish that the term "strong" or "weak" government be used, but that the "Federal Government would have such powers as are needed to safeguard the unity of the Country."

(b) On this issue certain powers were mentioned such as foreign policy, defence, monetary policy etc.

(c) Certain discussion took place on the issue of guarantees. However no common ground was established because Denktash insisted that for the Turkish Cypriots the only effective guarantee was that of Turkey. It was, therefore, agreed that the discussion of this issue be postponed, since in reality it was not certain that an object for which guarantees will be needed would result.

(d) It was agreed that the talks would be resumed in Vienna at the end of March. The talks would be of some duration. The Secretary-General would be present at the first stages, later, however, Mr. de Cuellar would take over since the Secretary-General could not stay in Vienna for long. Some subjects could be discussed later in Cyprus. Mr. Denktash did not accept New York as the place where the talks would be held and had strong objections to this proposal, which was made by His Beatitude.

(e) The question of the missing persons was discussed and it was agreed that an investigating body be created consisting of representatives of the Cyprus Red Cross and representatives of relatives of the missing persons. No terms of reference were defined. Denktash made two conditions for the creation of this body which were accepted by His Beatitude:

(i) The Greek Cypriot side to submit a complete list of all those it considered as missing persons, and

(ii) to give certain information regarding the fate of missing Turkish Cypriots. Denktash stated that it is possible that at a later stage exhumation of bodies could take place.

(f) The subject of enclaved persons was discussed and it was agreed that no expulsions would be made except where the Greek Cypriot side gave its consent. Applications would be examined by the U.N. Peacekeeping Force. According to Mr. Denktash those enclaved had a sufficient number of priests, satisfactory medical care and elementary schools. He did not agree to a Gymnasium (secondary school) to be established because even the Turkish Cypriots of the area did not have a secondary school. The Greek Cypriots of the north could attend secondary schools in the south and would be allowed to return to their homes during school holidays.

(g) The subject of the withdrawal of Turkish forces was not mentioned.

(h) No reference was made to the subject of the participation of the two communities in the Central Government. However, at the previous meeting Mr. Denktash had made it clear that he did not claim equal numerical representation, but equal saying on certain subjects.

(i) Mr Denktash, when repeatedly asked by His Beatitude, emphatically stated that he aims at the creation of one state and not two.

. . . His Beatitude clarified that the text was drafted after many discussions and long "monologues", and under the circumstances, was the optimum point which could be achieved without wrecking the talks. For instance. His Beatitude said, in the guidelines Denktash insisted on adding criterion of "security" and after a lengthy and intense discussion it was agreed that the term "security" would not be included in the text, but Denktash made it clear that despite this he reserved the right to raise the issue of "security" as affecting the territorial aspect. Equally, His Beatitude said, I made it absolutely clear that I cannot depart from the principles, which I declared as necessary preconditions for a solution. . .

Mr. Denktash, His Beatitude said, admitted that there were certain limiting factors for the Turkish side, as for example, the Turkish elections, which had been fixed for July 1977, but he added that while the talks were continuing and progress was made the two leaders must guide public opinion. Finally, Mr. Denktash assured that there was agreement between Turkey and the Turkish Cypriot community that they must proceed to find a solution.