Cyprus: Collapse of the Zurich Agreement Author(s): Nancy Crawshaw Reviewed work(s): Source: The World Today, Vol.

20, No. 8 (Aug., 1964), pp. 338-347 Published by: Royal Institute of International Affairs Stable URL: http://www.jstor.org/stable/40393645 . Accessed: 26/12/2011 10:31
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Cyprus: collapse of the Zurich Agreement

NANCY CRAWSHAW

At the time of the Cyprus settlement 1959 many Cypriotswere rein lieved thatthe emergency had ended and did not inquire too closelyinto the provisionsof the Zurich and London Agreements. But a small group of Greek Cypriots,the fanaticalfollowers the EOKA leader, General of Grivas,was bitterly opposed to ArchbishopMakariosforhavingaccepted to theseAgreements and regardedthemas an interim arrangement be rejected at the earliestopportunity.1 1963 the demand forthe revisionof By the Constitution had become almostunanimouson the partof the Greek Cypriots. The Turkish Foreign Minister, Mr Erkin, recentlydescribed the Republic of Cyprus as a formof federalState withoutthe geographical The inseparationusually associated with this systemof government.2 to herentcomplexity the Constitution contributed the breakdown has of of the settlement, the main reason forits collapse must be soughtin but which the lack of goodwill betweenthe Greek and Turkish communities has persisted since the communal fighting 1958. The Greeks, on of occasions, discriminatedagainst the Turks, and much tactlessnesswas shownby PresidentMakarios and certainGreek Ministersin theirtreatment of the Turkish Vice-Prsident,Dr Kutchuk; the Turks, fortheir part, made excessive and imprudentuse of their wide constitutional powers. The twenty-sevenpermanent articles, drawn up by Greece and

posts in the civil service and the securityforcesshould be allocated to 1Forfurther writer TheWorld in see Today, by background articles thepresent April1959and Decemberi960. 3 2B.B.C., 29 January See Cmnd.679. 1964.

fell of at form basicstructure theRepublic,3 the which Turkey Zurich, short Turkey's of demands. Nevertheless, gavetheTurkish they original whichwere disCypriots strongsafeguards, powers,and advantages This hasbeena source in totheir numbers thepopulation. proportionate the ofmounting Troublearosefrom outthe resentment among Greeks. setof independence. that30 percentofthe The Constitution requires

to book MrsCrawshaw theauthor a forthcoming on Cyprus be published is of byEyre& Spottiswoode. 338

CYPRUS

difficulties ran Turks.At timesthe CyprusGovernment intogenuine of obviousproblems overthis provision, whichpresents irrespective the racialcomplications. occasions, On however, Greeksblockedthe to of appointment Turksto postswhichtheywerequalified fill.Conunderthe basic also scheduled troversy aroseoverthe Cyprusarmy, to Turkish. and articles number 60 2,000men, percentGreek 40 percent vetoed The Turksdemanded and Dr Kutchuk units, legislation separate of for passed by the House of Representatives the formation mixed units.The Greeks, always to who objected thearmy planonthegrounds of expenseand the highproportion Turks,welcomed deadlock, the of and the strength the army remained about300 men,mainly of at has officers. The first crisiscame in December1961. Exmajor constitutional the failure the Greeksto implement certain clauses of asperated by Turkishinterests, Turksrefused vote forthe budget. to the affecting Since thatdate,therefore, Republic beencompelled operate to has the three of are at rates;foreigners taxedby systems taxcollection different means legislation of and Greeks passedbytheHouse ofRepresentatives, Turksthrough their The island'seconomy ownCommunal Chambers. fiscal suffered thelackofa co-ordinated policy from has,in consequence, directed theCentral aroseatthe crisis The Government. second by major endof 1962overthemunicipalities. had existed municipalities Separate since1958andprovision madeatZurich their for was defacto legalisation, with right thePresident Vice-President review position the of the to and attheendoffour theMixedMunicipal two After anda half years. years, Commission couldnotagreeon thefinal still In boundaries. December to refused remembers theHouse ofRepresentatives in 1962theGreek newthemunicipal and thePresident the abolished municipalities. law of was to Speciallegislation introduced meettheproblem localgovernment. The Turksimmediately their Turkish enacted through legislation Communal Both actions Chambersetting separate municipalities. up weredeclared Court. Constitutional illegalbytheSupreme The political of situation after deteriorated thesummer 1963. sharply In August President Makarios to announced intention seektherehis vision theConstitution. September Afroof In Asianconference was an held in Nicosia under the chairmanship Dr Vassos Lyssarides, a of the andunofficial adviser Leftist, personal prominent physician political to thePresident. Statements madethere several including by speakers, Greek couldnotfail alarm Turksandweregenerally to disthe Cypriots, for in of as interests a whole. couraging theprospects Cyprus Western The Turkish leadersnowadopteda morebelligerent Touringthe line. to their to and districts, warned they compatriots be ready fight hinted
339 Proposed amendments to the Constitution

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withthe of at the possibility intervention Turkeyin accordance by of Treaty Guarantee.4 thirteen submitted In Novemberthe President proposalsto Dr with of for Kutchuk theamendment theConstitution, a viewtoremoving and to of 'someatleast theobstacles thesmooth functioning development of the included abolition theright The oftheState1.5 recommendations and and to ofvetogranted thePresident theVice-President oftheprothe of for for vision separate legislation; majorities theenactment certain the and of unification theJudiciary ofthemunicipalities; amalgamation and of and ofthepoliceand thegendarmerie; theparticipation Greeks in forces ratios and Turksin thecivilservice thesecurity proportionate for heldadvantages Several in numbers thepopulation. totheir proposals in technical werepurely the Turksas well as forthe Greeks;others at interests. to went the Nothing character; rest right thecoreofTurkish covered the of thisstageimpinged by uponthewiderinterests Turkey howThe Turkish and Government, of Treaties Guarantee ofAlliance. to as theproposals which, an attempt amend ever, rejected immediately wereseenas a dangerous basicarticles, thepermanent likely precedent to to be followed by a wholeseriesof changesharmful Turkish up settlement was Thus thelastopportunity lostfora negotiated interests. with its numerous of withinthe framework the Zurich Agreement for advantages theTurks. The Greekcampaign against the Turks has the of In spite political progress difficulties, Republic madestriking The desireforhighliving fieldsince independence. in the economic whichdistinguish and and standards theenergy efficiency many aspects in Greekfrustration, life of Cypriot are impressive. especially financial the is particularly diplomats, matters, understandable. Many Western demandsforconstito supportreasonable have been ready British, for in decline sympathy thecaseofthe The subsequent tutional changes. to reckless is GreekCypriots due to their policyof trying imposesuch under for in obligations changes force, totaldisregard theRepublic's by andtotheruthand the treaties for international consequences, existing civilians. Turkish havepersecuted withwhich lessness they last The Christmas stagein the Greek fighting yearopenedthefirst had Bothcommunities been to by campaign settlethe problem force. and armssinceZurich, thePresident's merely preproposals stockpiling
4 For detailsof theTreatiesof Establishment, see and Guarantee, Alliance, common of that, Cmnd.1093.Article oftheTreaty Guarantee stipulates should 3 Powers each of the threeguaranteeing actionproveimpossible, or concerted the 'with soleaim to the reserves right takeaction Greece,andTurkey) (Britain, established thepresent of the ofre-establishine state affairs Treaty*. by 6 Cyprus p. 1963,Vol. 1, No. 6, Supplement, 1 Today,November-December Chamber, Cyprus). Dept., GreekCommunal (Publications
340

CYPRUS cipitateda clash which was bound to come sooner or later. The major offensivelaunched against the Turks in Nicosia was sanctioned by PresidentMakarios and his Cabinet, but he and certainMinisterswere EOKA memtaken aback by the excesses committed.Bands of former in bers and otherirregulars, groups of about a hundred usually led by includingwomen and police, took part in the operation; 700 hostages,6 wereseized in the northern children, suburbs,and Turks were murdered in their homes. The Greeks aimed at subjugating the Turkish communityin Nicosia with a swiftknock-outblow, therebysecuring the of in automaticsurrender the small Turkish communities the restof the island. Before the fightingstarted, many of the Turkish police and had been disarmedas the resultof a ruse on the part of the gendarmerie Greek Minister of Interior, Mr Polycarpos Georgatzis. The Turkish leaders underestimated strength the Greek forcesand placed too of the much faith in Turkey's early intervention;the Greeks, on the other hand, made a serious errorof judgment in ignoringthe possibilityof airstrongreaction fromTurkey. On Christmas Day Turkish fighter craft from mainlandflewlow overNicosia, and theTurkisharmyconthe stationedin Cyprusunderthe Treaty of Alliance,leftits normal tingent, barracks and took up strategic positions in the Turkish villages of Ortakeuyand Guenyeli northof the capital. The Greek Cypriots feared that this action was the prelude to a Turkish landing. Aftersome hesitation,Makarios agreed that a Joint Truce Force, composed of Britishtroopsand membersof the Greek and Turkish army contingents,should be set up under Major-General Young.7 Troops were moved up fromthe SovereignBase Areas and the firstBritish patrol became operational on 27 December. Permanent * cease-fire lines,knownas Green Lines', were establishedin Nicosia and held Larnaca, and by the end of the year the tacticalpositionsformerly by Greeksand Turks were takenover by Britishtroops.Britain'sspeedy action, made possible by the presence of troops in the bases, averted much bloodshed at the time and staved off Turkey's intervention. Political tension rose, however, with the President's statement on 1 January that he wished to terminate but the the Cyprus Agreements, crisis abated temporarily pending the outcome of the abortive London Conferenceheld by Britainwith representatives fromGreece, Turkey, and Cyprus. Once the immediate danger of Turkish intervention had passed, the Greek Cypriotscame to look upon the Britishsoldiersas defenders the of Turks and the last remainingobstacle to a total Greek victory.By the

6 The release of over 500 was later secured throughthe personal intervention of Mr Duncan Sandys. 7 The bruntof the peace-keeping operation was borne by the Britishtroops. But Greek and Turkish officers useful liaison workand acted as interpreters did withthe joint patrols.

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of the started accusetheBritish favouring to middle January press of the near the 'Green Line' in an Turks,and earlyin February incident Britishcampaignof exceptional Nicosia unleashedan antiferocity. that Greekantagonism also fanned reports Mr Duncan Sandys, was by of had the during LondonConference, gonebackon promises support at to leaders thetimeofhisvisitto theisland. given theGreekCypriot to The * GreenLine*in Nicosia,which roughly corresponds thenatural No ethnic of has division thecapital, beena majorcauseofresentment. of has outbreak fighting taken significant place in NicosiasinceChristthe officers madeit clearfrom outsetthatanyattack mas,and British acrossthe * side wouldbe resisted thepeace GreenLine*by either by thatthe * force.The GreekCypriots Green Line*is claim,however, benormal intercourse and facilitating partition thatit aloneprevents tween communities. fact, and as the In Greeks Turksareas free foreignof or ersto cross fear attack abduction one to from sector theother; only that themfrom prevents doingso. It is significant in townswhereno formal in remains itsownquarter. cease-fire exist eachcommunity lines ForceandtheGreek theobjectives theBritish of ByFebruary Cypriot had authorities completely variance. at The GreekCypriots made were full oftheJanuary toimport use arms a massive on scale.The Turks, lull sometimes and outnumbered poorly although prohopelessly equipped, to the voked incidents therisk heavy in at of casualties theattempt obtain intervention Turkey.The second round of violenceopened on of withthe battleof Ghaziveran. Greekoperations may be 4 February divided those into are with somemilitary andthose which mainly purpose The or of to the punitive designed reduce morale thecivilian population. massattack the dislodged February against Turksin Limassolduring from positions them but the by key dominating port, wasfollowed wanton of A destruction Turkish of domestic commercial and part property. large after theTurkish in of of quarter Ktimawasdestroyed a spirit vengeance an incident believedto have been started the Turks.Greektactics by a Turkishvillages follow set pattern. Greekforces, against policeand in overwhelming attack withheavyweaponsfrom irregulars strength, saferange, wear downan ill-defended community, finally occupythe village,and completethe action with mopping-up operations.At Limassoland elsewhere to British werecompelled standaside. troops the to would haveledtoanopenclashwith the Any attempt protect Turks hosGreekCypriot metwithincreasing British police.In fact, troops and in to incidents thecourseoftheir tility weresubjected humiliating routine duties.8 of for force, Proposals an enlarged composed possibly peace-keeping from UnitedStatesandother the met the NATO countries, with troops
8 See 'Cyprus : Britain's role' by AnthonyVerrierin The WorldToday, security March 1964.

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to President's refusal. Makariosis committed thepolicyof non-alignin are relationsmoreover, Greek ment international ; Cypriots convinced the of thattheir can objectives bestbe reached through machinery the abandoned UnitedNations.Britain, her finally supported Turkey, by the initiative earlier to from objections a U.N. Forceand,seizing political on theGreeks, Council 16 February. U.N. The appealedto theSecurity Force was slow to materialize, and however, in the middleof March of threatened exercise right intervention to her unlessallfighting Turkey ceasedforthwith. from UnitedStatesand the Urgent appealsto Turkey from U.N. Secretary-General, the that combined withassurances proin of gress thedispatch theU.N. Forcehadatlastbeenmade,forestalled this and on action; theU.N. Forcebecame operational 27 March.Bythis timemuchof thefighting over.The situation Nicosiahad been in was contained theeffective ofthe* GreenLine* theTurkshad ; by manning suffered seriousdefeatsin Limassol,Ktima,Polis, and manysmall frommixed villages.Thousandsof Turks had uprootedthemselves either or villagesand the smallerTurkishhamlets, spontaneously on orders from TMT (TurkMudafa the Turkish Defence Teskilat, Organiin zation),and had now concentrated larger groups.In theabsenceof between communities, riskof sporadic the the incidents, dailycontact which marked early the oftheconflict, considerably was reduced. stages The U.N. Force The U.N. Forcehasmet with to of difficulties similar those theBritish. Bothhavefunctioned theconsent theMakarios with of and Government on theprinciple minimum of to Without out force. powers carry arrests, and the searches, disarmament, contribution havebeenabletomake they totherestoration lawandorder beenvery of a has limited. The needfor mandate widely is in the but, thelastresort, activities stronger recognized, oftheU.N. andtheeffectiveness control be ofits must determined the by smallsize of its own forces of withthevastnumbers armed compared mencirculating theRepublic.9 in The U.N. presencereducedtension GreekCypriot circlesfora in short time.The GreekCypriots madea sharpdistinction immediately the between functions theU.N. and theprevious of Force.The British roleof theBritish, was to keepGreeks and Turksapart, claimed, they whereas taskoftheU.N. wastoassist legalforces theState'to the of 'the restore and order.The U.N., in fact, law to the was expected disarm Turks thisconvenient is basedon paragraphs and 5 of 2 ; interpretation theSecurity Council'sresolution 4 Marchsetting theForce.10 of up

9 On 7 July, after months negotiations, was reported of it thatthe Cyprus Government Turkish and leaders had agreed a neutral to zonein theareaofthe 'GreenLine*in Nicosia,whichwouldbe patrolled policedsolelyby U.N. and forces nowempowered search makearrests. to and 10 U.N. Doc, S/5575. 343

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for of The initial enthusiasm theGreekCypriots theU.N. was soon from the Theirdisillusionment primarily sprang by replaced criticism. of Forceto takeovercontrol theNicosiaof theinternational inability issue whichmany roadfrom Turks.This is an explosive the Kyrenia but alonefor timebeing, the the as observers diplomatic regard bestleft to the thattheGreekCypriots try recover roadby may danger persists meana clashwith Turkish the Sucha movewouldalmost force. certainly and has and still entrenched Guenyeli Ortakeuy, Turkey at army firmly in on that issueda warning anyattack theTurkish army Cyprus already herself. willbe treated an attack Turkey on as which was exthe The UnitedNations notreceived co-operation has the Makariosabrogated President pectedfromthe Greek Cypriots. Mr of Alliancethe day the U.N. Mediator, Tuomioja,arrived Treaty to the intheisland he work, President and,evenbefore hada chance start the Governof hinted thepossibility hisfailure announcing Cyprus at by at to ment's intention thisevent raisethequestion theU.N. General in of the At whileGeneral Gyani, Commander Assembly. theendofApril, side of the on theU.N. Force,was negotiatingcease-fire theeastern a attack a wereplanning large-scale leaders Pass, GreekCypriot Kyrenia side. The of the against Turkishstronghold Hilarinon the western cameas a surprise of led attack, personally bytheMinister theInterior, to to theU.N., and indicated theGreekCypriots intended cothat only Council to when suited it them do so. In hisreport theSecurity to operate whichwere of 29 April,U Thant condemned senseless the shootings was whichhe stated and theactionat Hilarin, in Cyprus taking place and organized a serious'sinceit was clearly planned military especially effort'.11 of The UnitedNationsrapidly the confidence the Turks. The lost in took first anti-U.N.Turkish demonstration place early Aprilduring when Dr Bundle'svisitto Ktima;thesecondat theend ofthemonth, who Turkish of General women, Gyaniwas confronted crowds angry by effecand demanded accusedtheU.N. ofpartiality towards Greeks the No tiveactionforthe return Turkishhostages. easingof political of and can tension be expected until Turksareabletoliveinsafety, here the theU.N. theU.N. has failed.In fact, someofthemeasures by adopted and insecurity. the onlyserveto intensify Turkishsense of injustice the Measures discriminate arms for against against smuggling, instance, on individuals the so and Government private Turks, longas theCyprus of side are allowedto import quantities armswithcomplete Greek vast freedom. Plans for dismantling Greek and Turkish fortifications, so Turkish weaken defences, long although ostensibly merely impartial, as theU.N. cannot and security 30,000or moreGreek adequate provide decision the A remain and out armed often ofcontrol. recent by Cypriots
"U.N. Doc. S/5671.

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after cameshortly a wave U.N. to withdraw for escorts Turkish convoys oflarge-scale of abductions Turks. months the three of the the however, first action, Exceptfor Hilarin of The outbreaks fighting. general from U.N. mandate werefree major In to continued deteriorate. May, the situation nevertheless security fatalcasualty whenTurks in a its forcesuffered first peace-keeping a at of villagenorth Nicosiaattacked patrolof Finnishsoldiers night, two from them Greeks. The samemonth officers theGreek mistaking for wereshot dead by and armycontingent a GreekCypriot policeman ofFamagusta. camequickly; Turksinside Turkish the Revenge quarter withinthreedays thirty-two Turks in the area had been seized as of The arrest SeniorAircraftsman hostages. Marleyand his wifeon for a 26 May on a charge gun-running theTurksprecipitated fresh of of waveofanti-British and incidents an intensificationthehostile press of two members theU.N. Force,Major campaign.1* inJune British Early in Macey and his driverCorporalPlatt,disappeared the Famagusta district. haveintensiWarlike on preparations thepartoftheGreekCypriots fiedduring period, of armsand theintrothe withthepurchase heavy to duction conscription theTurkshavemanaged obtain of arms and ; and insist thattheir The Greeks measures are reinforcements clandestinely. and to directed Turkishinvasion, refuse recognize exclusively against thatit is suchactivities intervention which military maymakeTurkish ofthe in The unavoidable. over-confidence Greek Cypriots their present mood is one of the mostdangerous facetsof the present belligerent crisis in theeventof a warbetween overCyprus, Greeceand Turkey ; in takethe view thatthe odds are heavily observers foreign military of favour Turkey. of The military economic and in community the position theTurkish islandis precarious, The Greekscontrol mainpointsof the however. the and entry, publicservices, mostof theroads.Deprivedof normal or andtelegraphic unableto enter leaveCyprus without facilities, postal or therisk arrest abduction, Turkssee their of the as position a struggle for survival. SinceChristmas havelivedin isolated in they groups a state ofsiege; nearly their and 60 per centof these homes, 17,000haveleft are conditions the Nicosia and in refugees now livingin congested of comdistricts; Kyrenia 55,000members theTurkish approximately from on rely munity largely foodandmedical shipped supplies Turkey.13 With exception thejudges,no Turkish of the havebeen publicservants salariessince Christmas. The withdrawal their in the New paid early Year of theTurks from Government, theground the on thattheyno
12 6 July, On and sentenced a Nicosiacourt to Marleywas foundguilty by fifteen and fined as imprisonment hiswife years' acting an accessory. 100for 11 U.N. Doc. S/5764,15June1964.

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has Greekefforts eliminate to its longer recognized legality, facilitated themfrom of and their statusfor positions importance has weakened most in practical purposes theeyesoftheU.N. In hisreport theSecurity on Council 15June,14 U.N. Secretarythe to General of stressed seriousness thesituation the owingto thebuild-up of armsand the factthatbothsides had used the comparative to lull in Nicosia and to improvetheir theirmilitary strengthen position for He 'theuniversally recognized capacity future operations. deplored warcrime* killing causesoftension of serious hostages oneofthemost and distrust of between twocommunities. totalnumber Turks the The on reported missing 8 Junewas 483, and thatof Greeks52. U Thant renewed appealtoTurkey placehercontingent Cyprus his to in under the if U.N. command, stepwhich a was to would Greece willing take Turkey do likewise. to Greecehas nothing losebysuchan arrangement, so but, and long as lawlessness violenceprevailin the island,Turkeyis not to of whichwouldmeanthe return the likely concedeto thisrequest Turkish from and Guenyeli Nicosiaand,as a result, to army Ortakeuy an increase thesenseof insecurity by theTurkishCypriots. U in felt Thantwas able to report of under in progress thecollection theharvest of U.N. auspices;heemphasized, the however, serious consequences the crisis other in As were sectors theeconomy. yettheTurkish of Cypriots thegreater but sufferers, theeconomic by pinchwouldsoonbe felt the GreekCypriots well. as The politicaldeadlock threat invasionby Turkeyprompted of Earlyin Junea renewed in a American After intervention. narrowly obtaining voteofconfidence to theNational Prime Mr Inn, went theTurkish Minister, Assembly, to the at of Johnson discuss Cyprus Washington theinvitation President A invitation issuedat thesametimeto theGreek was question. similar Prime who closeon hisheels.On Mr Inn'sreturn Minister, followed the he obtained in Government assurances Londonfrom British journey thatit stillrecognized validity theCyprus the of Intensive Agreements. efforts have sincebeen made to tryand bringGreeceand diplomatic herself for talks. sinceGreecehasaligned But together bi-lateral Turkey of to the withMakarios refusing recognize validity theZurichsettlein the of the reconciliation between twocountries ment, prospects an early seemremote. of The Turks In Cyprus itself attitude bothsideshas hardened. the form government are convinced, of and after insiston a federal their of short partition, of at this recent that, experiences thehands theGreeks, alone can give themadequate physicalsecurity. The Greek system are to Stateinwhich Turkshave the Cypriots determined setup a unitary
14U.N. Doc. S/5764. 346

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and to In minority rights return their original villages. the absenceof effective international the actionor a Turkish landing, GreekCypriots to now have the military on strength imposea settlement theirown Greek terms. to that this Statearebasedon thefear objections a federal willpave thewayto partition, also on thefact and other that, amongst socialand economic would about40,000Greekfamilies disadvantages, haveto leavethenewTurkish area. The situation complicated further thereappearance the is still in by islandof GeneralGrivas.Pledgedto the irreconcilable of objectives Enosis friendship theTurks, General and on with the embarked an early intensive after in became political campaign shortly hispresence Cyprus known. Sincemany influential of no groups GreekCypriots longer supthe refusal compromise welleventually to lead EnostSy General's port may todissension bloodshed and theGreeks themselves. amongst

Basic facts on the U.N. Force in Cyprus

ROSALYN HIGGINS The creation UNFICYP was recommended theSecurity of Council by in itsresolution 4 March1964; theauthority determine comof to the and size of the Force was, however, position givento the SecretaryGeneral consultation theGovernments Cyprus, 'in of with TurGreece, and After establishmenttheU.N. Force the of key, theUnitedKingdom*. intheCongo, SovietUnionhadcontended theSecretarythe that General wasexceeding authority his the in the under Charter determining partiStates thesizeoftheir and The Unionargued cipating contingents. Soviet before International the Court Justice1 these of that were reserved powers totheSecurity Councilalone.The Court this and rejected contention, the on the viewofthepro4 Marchresolution UNFICYP confirms Court's in General.However, thecase of theYemen perroleofthe Secretaryinsisted thattheactualestablishForce,theSovietUnionsuccessfully ment a Force(evenonerequested paidfor thedisputing of and by parties) should subject Security be to Council Under 4 Marchresothe approval.
1 Case of Certain Expenses of U.N., I.C.J. Reports,1962. Dr Higgins is an internationallawyer at Chatham House: author of The Law through Political OrgansoftheU.N. (London, the of Development International

O.U.P. for R.I.I.A., 1963).

347