US embassy cable - 05ANKARA2555

C O N F I D E N T I A L SECTION 01 OF 05 ANKARA 002555 
 
SIPDIS 
 
STATE FOR EUR/SE 
 
E.O. 12958: DECL: 05/04/2015 
TAGS: PREL, MARR, MOPS, TU 
SUBJECT: TURKEY APPROVES USE OF INCIRLIK AIR BASE AS 
MULTIDIRECTIONAL CARGO HUB 
 
REF: 16 JUNE 2004 WALD/BASBUG LETTER 
 
Classified by Ambassador Eric S. Edelman, reasons 1. 5 (b) 
and (d). 
 
1. (C) SUMMARY:  Ten months after the US requested to 
establish a multi-directional cargo hub at Incirlik Air Base 
to support Operation Enduring Freedom (OEF) and Operation 
Iraqi Freedom (OIF), the Government of Turkey (GOT) has 
agreed to the establishment of a cargo hub on terms slightly 
more restrictive than those requested.  Despite the delay and 
the operational limitations, the approved hub should increase 
the efficiency of US cargo movement to Iraq and Afghanistan, 
reduce the strain on C-17s currently supporting those 
operations and free up some for other missions.  Hub 
operations are expected to begin no earlier than June 1, 
2005.  Text of the Diplomatic Note containing agreed-upon 
parameters included in para. 8.  END SUMMARY. 
 
2. (C) Major General Sefer Ozturk, Turkish General Staff 
(TGS) J-5 Agreements Division Chief, on April 26-27, 2005 
convened meetings with Office of Defense Cooperation (ODC) 
Chief Major General Sutton, ODC Agreements and Operations 
Division representatives, the Assistant Air Attache and 
Deputy PolMilCouns to work out the modalities of a cargo hub 
at Incirlik AB to support US efforts in Iraq and Afghanistan. 
 Joining him was MFA Deputy Director General (DDG) for 
Americas Affairs Suna Ilicak who announced that PM Erdogan 
approved the hub request on April 24 and the GOT was anxious 
to finalize the agreement as quickly as possible.  According 
to Ilicak, the government had determined that the US request 
was actionable under the current UN resolutions covering 
Afghanistan and the TU Decree of Ministers covering US 
overflight and sustainment flights in support of OIF, which 
was first approved on June 22, 2003 for one year and renewed 
again in 2004.  However, because the one-year OIF decree will 
expire in six weeks the GOT wanted to renew it for an 
additional year before announcing its decision.  Once 
President Sezer signed the renewal decree, the GOT would 
announce the hub approval.  (Note: Ilicak expected the decree 
to be signed on April 27 but ultimately Sezer did not sign it 
until April 29. The MFA provided written approval that 
evening but did not announce it until May 2, following the 
return of the PM and FM from travel.  End Note.) 
 
3. (C) Using European Command (EUCOM) Deputy Commander 
General Wald's June 16, 2004 letter of request as the basis 
for discussion, General Ozturk outlined the GOT-approved 
modalities, which were accepted with several minor changes: 
The GOT offer prohibited all weapons, including crew 
sidearms, but TGS agreed to allow crew members to transit 
with personal sidearms as long as appropriate security 
procedures are followed; the number of ground support 
personnel was increased from 130 to 150; it was agreed that 
flight schedules could be provided on a monthly basis and all 
changes to the flight schedule, with the exception of 
additional flights, could be notified by the 39th Air Wing at 
Incirlik Air Base to the TU 10th Tanker Base Command at 
Incirlik.  Formal notification to the MFA and Turkish Air 
Force will only be required for any additional flights. 
 
APPROVED PARAMETERS 
------------------- 
 
4. (C) The final agreed-upon parameters, while falling short 
of the original request, allow establishment of a cargo hub 
that will help alleviate pressure on the military airlift 
aircraft currently servicing Afghanistan and Iraq.  By 
allowing the on/off-loading of cargo to/from contract 
commercial craft, it will reduce wear and tear on military 
airlift aircraft and free up some for other missions.  The 
six Incirlik-based C-17s will be able to provide the same 
airlift to Iraq as 9-10 aircraft based in Germany with fewer 
aircrews. 
 
5. (C) Parameters: 
 
- Incirlik AB will serve as a hub for cargo flights between 
the US and US military installations in Europe and 
Afghanistan and Iraq; 
 
- Transit of non-lethal cargo only is permitted; 
- Aircraft crew can carry sidearms and ammunition; 
 
- Six military airlift aircraft (C-17) and up to 150 related 
temporary duty support personnel can be stationed at Incirlik 
AB to support intra-theater cargo movements; 
 
- Contract commercial aircraft can transit the base; 
 
- Monthly flight schedule must be provided in a reasonable 
time period in advance of the flights.  Any flights beyond 
those included in the monthly schedule must be notified in 
advance via a Diplomatic Note and notice to the Turkish Air 
Force.  The Incirlik AB hub operators must provide each day's 
flight schedule one day in advance; 
 
- Streamlined process for customs and visa requirements, 
using the aircraft and/or passenger manifest as the passport 
control document; 
 
- Cargo will be imported/exported using "manifest only" 
procedures; 
 
- Flight crews RON; 
 
- All cargo will be considered bonded and therefore exempt 
from taxes, duties and other fees and charges; 
 
- All cargo aircraft will be considered military or state 
aircraft and therefore exempt from taxes, duties and other 
fees and charges. 
 
INITIAL USG REQUEST 
------------------- 
 
6. (C) The original US request was for a hub to service the 
CENTCOM Area of Responsibility (AOR) and process general 
military cargo, including lethal cargo (i.e. weapons), but 
not ammunition, under a single blanket clearance.  Following 
MFA indication in September '04 that it would be difficult to 
gain Cabinet approval for a hub to service the entire CENTCOM 
AOR, the US request was revised to limit the final 
destinations to Afghanistan and Iraq.  While the GOT did not 
approve the transit of all general military cargo or a 
blanket flight clearance, we understand that the approved 
terms are acceptable to TRANSCOM and EUCOM.  The GOT did 
agree to all other elements of the initial request. 
 
7. (C) Outstanding details:  The framework agreement has been 
approved but several details remain to be worked out in 
mil-mil channels, including the amount of flight information 
to be submitted in advance and how to address a requirement 
for advance notification of the nationality of contract 
carrier crew.  We do not anticipate any difficulty in 
resolving these issues. 
 
DIPLOMATIC NOTICE OF APPROVAL 
----------------------------- 
 
8. (C) Following is the text of the Diplomatic Note dated 
April 28 which provides GOT approval of the cargo hub.  The 
Embassy was not provided with the Note until April 29, 
following President Sezer's signature of the Cabinet decree 
extending the current overflight agreement for Operation 
Iraqi Freedom until June 22, 2006. 
 
BEGIN TEXT OF DIPLOMATIC NOTE: 
 
CONFIDENTIAL 
 
SIPDIS 
 
     The Ministry of Foreign Affairs of the Republic of 
Turkey presents it compliments to the Embassy of the United 
States of America and with reference to the US request 
regarding the use of the 10th Tanker Base Command in Incirlik 
as a logistical cargo hub to support operations in 
Afghanistan and Iraq, has the honour to inform the following: 
 
     Taking into account the UNSC Resolutions NO: 1368 
(2001), 1373 (2001), the North Atlantic Council Resolution 
No:  SG (2001) 1147 dated October 4, 2001 concerning 
Afghanistan, the Decision of the Turkish Grand National 
Assembly No: 722 dated October 10, 2001, the Turkish Council 
of Ministers' Decree NO; 3240 (2001), and the UNSC 
Resolutions No: 1483 (2003), 1511 (2003) and 1546 (2004) 
concerning Iraq and the Turkish Council of Ministers' Decrees 
No: 5755 (2003) and 7515 (2004), the said request has been 
approved. 
 
     The rules and principles to be applied during the 
logistical cargo hub operation, as well as an appendix 
regarding flight information to be provided by the US side, 
are enclosed herewith.  The Ministry kindly requests the 
Embassy to bring the enclosed document to the attention of 
the pertinent US authorities with a view to assuring their 
full compliance. 
 
     The modalities of the facilities accorded in line with 
the said request should be discussed and concluded with the 
Turkish General Staff. 
 
     The Ministry of Foreign Affairs of the Republic of 
Turkey avails itself of this opportunity to renew to the 
Embassy of the United States of America the assurances of its 
highest consideration. 
 
 
 
                                                Ankara, April 
28, 2005 
 
Encl: As stated. 
 
Embassy  of the United States of America 
ANKARA 
 
                              CONFIDENTIAL 
 
END TEXT. 
 
 
9. (C) Below is text of the noted attachment to the 
Diplomatic Note which outlines the approved modalities of the 
cargo hub.  Paragraph 16 mentions Appendix 1, which is a grid 
containing the flight information to be submitted in advance 
on the monthly flight schedule, including: flight date, 
aircraft nationality, type of aircraft, aircraft 
registration, call sign, number of crew, name and four letter 
ICAO location codes of departure/destination airports, and 
the estimated times (UTC) of departure and arrival to and 
from these airports. 
 
BEGIN TEXT OF RULES AND PRINCIPLES ATTACHMENT: 
 
 
CONFIDENTIAL 
 
SIPDIS 
 
THE RULES AND PRINCIPLES TO BE APPLIED DURING LOGISTICAL 
CARGO HUB OPERATIONS 
 
1.  The UNSC Resolutions 1368 (2001) and 1373 (2001) 
regarding Afghanistan, the Decision of the Turkish Grand 
National Assembly dated 10 October 2001 No: 722, the Decree 
of the Council of Ministers dated 21 November 2001 No: 3240, 
the UNSC Resolutions 1483 (2003), 1511 (2003) and 1546 (2004) 
regarding Iraq and the Decree of the Council of Ministers 
dated 22 June 2004 NO: 7515 constitute the legal basis for 
the US use of the 10th Tanker Base-Incirlik. 
 
The inbound and outbound trans-shipment activities 
(hereinafter referred to as the hub operation) at 10th Tanker 
Base-Incirlik for general military cargo originating from 
and/or bound for the US and/or US military installations in 
Europe, solely be destined for Iraq and Afghanistan to 
support Operation Iraqi Freedom and Operation Enduring 
Freedom.  The territory of Turkey and its airspace shall not 
be used by US assets involved in the hub operation for 
offensive actions against any country.  The hub operation 
shall note include troop rotations. 
 
2.  The activities to be carried out during the hub operation 
shall be in conformity with the National Law of the Republic 
of Turkey, international law and courtesy rules as well as 
10th Tanker Base-Incirlik regulations. 
 
3.  The US side is permitted to deploy 6 military airlift 
C-17 aircraft to 10th Tanker Base-Incirlik to conduct the 
inbound and outbound cargo movements of the hub operation. 
The activities to be carried out by the US for the purpose of 
the hub operation and their outcome shall create no financial 
burden for the Republic of Turkey.  Any compensation arising 
directly or indirectly from activities carried out by the US 
personnel involved in the hub operation shall be fully borne 
by the US. 
 
4.  The number and the duties of the personnel expected to be 
temporarily prepositioned to support cargo movements in 10th 
Tanker Base-Incirlik shall be communicated to and approved by 
the Turkish General Staff. 
 
5.  The status of these prepositioned personnel, the number 
of which shall not exceed one hundred and fifty at any one 
time, will be subject to the same rules and principles 
applied to the US personnel currently deployed at the 
aforementioned base, unless otherwise specified herein. 
 
6.  The necessary documentation for the US personnel as well 
as the bill of lading concerning the cargo shall be submitted 
by the US to the 10th Tanker Base-Incirlik.  During the 
aforementioned activities, no weapon (private weapon, 
chemical weapon, photo-reconnaissance equipment) or 
ammunition shall be carried. 
 
7.  Technical arrangements regarding the activities related 
to hub operation that are not covered by this document shall 
be concluded between the US 39th Air Base Wing and the 10th 
Tanker Base Command-Incirlik under the coordination of the 
Turkish General Staff. 
 
8.  In the event of accommodation within the Base of the 
personnel (except for those who are temporarily deployed) 
involved in the hub operation due to technical breakdowns or 
for any other emergency situations that may arise, necessary 
arrangements will be concluded between the US 39th Air Base 
Wing and the 10th Tanker Base Command-Incirlik. 
 
9.  In case the need arises, the Turkish Government shall be 
allowed to use the US aircrafts and other US assets and 
capabilities to provide the existing Turkish military 
presence in Afghanistan with logistical support under 
conditions to be mutually agreed upon. 
 
10. In case the need may arise, the Turkish side may suspend 
or permanently cease the utilization of the 10th Tanker 
Base-Incirlik by the US in the logistical hub operation, with 
72 hours prior notification. 
 
11. The flight crew shall not carry any side arms or weapons 
on their person and shall not take them into the Base.  The 
aforementioned weapons will be kept in the aircraft in a 
secure manner if the flight crew will continue their mission 
with the same aircraft.  If the flight crew will fly with 
different aircraft, the flight crew surrenders their personal 
arms to the U.S. armory with the attendance of the 10th 
Tanker Base Command Security Company personnel where they 
will be stored under lock until such time as the aircrew 
leaves the 10th Tanker Base Command/Incirlik on their next 
mission.  At no time will the aircrew be carrying side arms 
on their person while on the Base except for transit to and 
from the armory with the attendance of the 10th Tanker Base 
Command Security Company personnel. 
 
12. The force protection and security matters, including the 
VIP protection shall be in full responsibility of the Host 
country. 
 
13.  The inbound and outbound military support equipment to 
and from Turkey shall be subject to transit procedures.  The 
necessary documentation (bill of lading) regarding the crew 
and the equipment shall be submitted to the relevant Turkish 
authorities by the US side.  Military support equipment 
brought in transit to Turkey will be kept in temporary 
storage facilities designated for this purpose exclusively. 
The storage facilities within the 10th Tanker Base-Incirlik 
shall not be used for this purpose and the said equipment 
shall not be stored in these places. 
 
14. Search and Rescue (SAR) missions within the SAR 
boundaries of Turkey shall be performed by Turkish 
authorities. 
 
15. Refueling, electronic jamming shall not be carried out 
and chaff and flare shall not be used within Turkish Airspace. 
 
16. Flight clearance requests for all flights related to the 
logistical hub operation shall be submitted in advance to the 
TGS monthly via the Turkish Ministry of Foreign Affairs in 
line with the current procedures in consistence with the 
attached Appendix 1.  Any changes shall be notified to the 
Turkish Ministry of Foreign Affairs and to the Turkish Air 
Force. 
17. During the flights within the Turkish Airspace, the 
flight corridors specified in the Turkish Air Information 
Publication shall be used, the air traffic commands given by 
the relevant air traffic control units and existing NOTAMs 
shall be complied with and all flights will be carried out as 
IFR. 
 
18. An ICAO flight plan will be filed and the clearance 
number will be written in block 18th of the flight plan; 
during flights within the Turkish airspace while especially 
entering and exiting the Turkish airspace, wireless 
communication with the relevant air control unit shall be 
established and the "IFF"s will be kept "ON" at all times 
during the flight. 
 
19. The implementation of the rules and principles 
established herein shall not infringe upon or violate the 
sovereign rights of the Republic of Turkey.  Nor shall the 
said rules and principles be interpreted or applied in a way 
that runs counter to the national law of the Republic of 
Turkey. 
 
20. None of the articles in this document shall affect or 
restrict the Republic of Turkey's right to take the necessary 
measures she deems necessary with a view to protecting her 
national interests and security. 
 
21. Iraqi bound flights shall be limited to the duration of 
the "Decree of the Council of Ministers dated 22 June 2004 
and No: 7515" (until 22 June 2005) or to the other Decrees 
that may be issued to extend the duration of the said Decree. 
 
22. Unless otherwise agreed by the parties, no other 
bilateral or multilateral agreements to which Turkey and US 
are parties shall be applicable to this logistical hub 
operation. 
 
CONFIDENTIAL 
 
SIPDIS 
 
END TEXT. 
 
10. (C) Comment:  It took ten months of internal GOT debate 
to decide that the government already had the authority to 
allow the US to establish this cargo hub.  MFA DDG Ilicak 
explained the delay as a result of the FM's prerogative to 
take decisions to the PM even where an umbrella authority 
exists.  Given the GOT's unwillingness to go against the 
negative tide of public opinion toward the US in recent 
months, the positive trend of events in Iraq may have 
provided the political opening the GOT was looking for and 
the prospect of a US congressional resolution recognizing an 
Armenian Genocide in Turkey, or the PM's planned June travel 
to the US may have dictated the timing.  Whatever the 
rationale, US cargo operations to Afghanistan and Iraq will 
benefit, and the decision is welcome.  End Comment. 
 
11. (U) Kabul minimize considered. 
EDELMAN