(2)
3. Field: The Pattern of Geopolitical Control
As a result of the violent inter-communal conflict, new de facto geopolitical fields evolved within Cyprus. The breakdown of inter-communal government had altered political processes; the military confrontations and the movement of refugees had redefined the territory within which such processes could function.
The Cyprus Government had become a Greek-Cypriot administration, but it claimed to be no less of a state government Just because the Turk-Cypriots had 'withdrawn' from it. The government maintained that the Turkish-Cypriot Leadership's claims to control certain population centres and lands were illusory. Firstly, the government held that the Turkish-Cypriot Leadership did not exist as a legal entity. Secondly, the government alleged that the Turkish-Cypriot armed force was a 'paper tiger', and that the Cyprus Police, the National Guard and the Greek Army in Cyprus could over-run any Turkish-Cypriot area at the government's bidding. Therefore, the Turk-Cypriot Leadership's claim of de facto coercive control over certain areas was as weak as its legal standing.
However, such reasoning was fallacious because it avoided the obvious fact that strength of the Greek and Greek-Cypriot forces was overshadowed by the military might of Turkey and that precipitous action by the Cyprus Government would trigger a Turkish invasion. It was also a moot point as to the degree of control which the government could exert over the National Guard and the Greek Army in Cyprus. Following the battle at Kokkina in August 1964, the leaders of both Cypriot communities implicitly recognized that a balance of coercive force had, for the time being, stabilized a new de-facto geopolitical pattern on the Is land.[71]
The author's field research Indicates that of 233 Turkish-Cypriot centres, 98 stood abandoned by 10 August 1964. Of the 135 that were partially or fully occupied at that time, 20 were under government control and accounted for approximately 8,000 of the Turkish-Cypriot population. By 1971 about 2,000 refugees had returned from 22 additional centres under government control. Although a number of Turk-Cypriot centres were under government control, these villages and quarters were not integrated into the government's administrative structure. In the first place, Turkish-Cypriot mukhtars refused to take an oath of allegiance to the Republic. The government refused therefore to recognize that these mukhtars had any de jure authority. Secondly, since most of the Turk-Cypriots in these 20 villages refused to recognize the de jure existence of the Cyprus Government, the government dissociated itself from any responsibility towards their social welfare. Turkish-Cypriot villages under government control were, for the most part, left to their own devices. The government's only concern was that they remain quiet and that they pay all required taxes and fees owed to government bodies or to Greek-Cypriots. In mixed centres under government control, the representatives of the Turkish-Cypriot quarters were not allowed to sit on a village board or commission, or on a municipal council. At the same time, the Greek-Cypriot members who had gained complete charge of these authorities imposed taxes and fees on the Turk-Cypriot quarter for public utilities.
The Turk-Cypriot centres under government control in fact depended to a large extent on the limited facilities which the Turk-Cypriot Leadership could provide. Such dependence arose both because of the lack of government involvement and because Turk-Cypriots spurned government officials. For example, although Greek-Cypriot police regularly patrolled these centres, the villagers took their complaints to Turk-Cypriot police and to Turkish-Cypriot courts.
During the first months following 23 December 1963, the central administration of the Turkish-Cypriot community was almost completely disrupted. By the Spring of 1964, this administration had been reorganized. In the Turk-Cypriot quarter of Nicosia a 'General Committee' was formed, headed by Vice-President Kuchuk, and initially consisting of 13 members drawn from amongst the Turkish-Cypriot members of the Republic's Council of Ministers, House of Representatives and Judiciary, and from the Executive Committee of the Turkish-Cypriot Communal Chamber. The General Committee held its first meeting on 21 May 1964. In Nicosia, Famagusta, Larnaca, Limassol and Paphos, District Committees were established under the control of the General Committee. Village and municipal councils reported in turn to the District Committee. This system of government was essentially a matter of executive decree by Vice-President Kuchuk and by his District Officers.[72] However, the Communal Chamber continued to function and the area of its concern, as well as that of the Turk-Cypriot members of the House of Representatives, overlapped that assumed by the General and District Committees.
The structure of government in the Turkish-Cypriot community should not be equated solely with the various legislative and executive organizations outlined above. In many cases, the de facto leadership at the level of the village and quarter, of the district, and of the community as a whole, was assumed by the Fighters. Therefore, the community's government structure was in fact a civil-military synthesis.
The administrative boundaries used by the Turk-Cypriot civil and military authorities did not always coincide. Civil districts were based on those that had been in existence In December 1963, with some modifications. Nicosia District was subdivided into eastern and western halves; the western half was administered from Lefka and known as Lefka District, whilst the eastern area and Kyrenia District were amalgamated under a district officer in Nicosia. The Fighter's administrative boundaries were based primarily on tactical considerations, and therefore reflected the altered pattern of ethnic settlement much more closely than did those of the civil districts.
If the Turkish-Cypriot government of August 1964 is viewed as a civil-military synthesis, five administrative levels can be considered. The first level was the village or quarter of a mixed village. The most influential members of a 'typical' village or quarter would usually include the mukhtar, the rural con- stable, the policeman, the teacher and the Fighter commander. The acknowledged leader of the village would in most cases be either the mukhtar or the Fighter commander, but it was not unusual for one man to fill both appointments. Such factors as the local intensity of inter-communal hostility, spatial proximity and layout, population numbers, and patterns of communication and transportation were relevant In the administration of a number of villages as a 'group'.
The group was the second level of local government organization, and the group headquarters was usually established in the most important or most central village of the group. Police and Fighter officers at this headquarters normally carried out their group duties in addition to their responsibilities for their own village. A typical group headquarters was manned by a police sergeant and a Fighter Officer in charge of a company. However, in an area which included some clusters of villages, some isolated villages and a large town, a simple group organization was not feasible.
The third level was that of the 'sub-region', usually the lowest level to which Turkish Army officers were posted, and a sub-regional headquarters became, in subsequent years, the lowest administrative centre at which full-time Fighter units were stationed.[73] At village and group levels, the Fighters were to spend very little time in training or on sentry duty. They tended to become farmers who wore uniforms as durable work clothes rather than as uniforms per se. The Fighter strengths of the various sub-regions, in 1964, differed greatly, depending as they did not only upon population densities but also upon local tactical situations. In simple terms however, a sub-region's garrison was a battalion.
The Turkish-Cypriot quarters of the district towns were administered as municipalities. Municipal government was more formalized than that in the villages, primarily because a larger population facilitated a more extensive division of labour and there was a clearer separation of responsibilities between civic officials and Fighter leaders.
The actual composition of the sub-regions depended primarily on the demographic distribution and the variable pattern of inter-communal hostility throughout the island. In some areas, a municipality constituted a sub-region; in other areas, it was a combination of village groups, or a municipality together with a number of scattered outlying villages and quarters.
The fourth level was the 'region', which was composed of two or more sub-regions. There were seven de facto Turkish-Cypriot local government regions: Nicosia, Chatos, Famagusta, Larnaca, Limassol, Paphos and Lefka. To a very large extent, the region boundaries reflected the boundaries of the six civil administrative districts. The civil affairs of the regions were directed by District Officers, who dealt directly with the village mukhtars and town mayors, bypassing the sub-region and group administrative levels which were primarily military subdivisions. Major police stations were maintained at the regional headquarters level. The regional Fighter commanders were Turkish army colonels, and the strength of each of their commands normally equalled two or more battalions.
The fifth level of Turkish-Cypriot government, based in Nicosia town, was the policy-making coalition for the island-wide community. For civil affairs, authority resided ostensibly in the General Committee. Military affairs on the other hand, were under the supreme command of a Turkish army general with a nom de guerre of 'Bozkurt'. This commander was attached to the Turkish embassy, but the relationship between him and the ambassador was unclear; most certainly it could not be assumed that Bozkurt was subordinate to the ambassador. In matters where civil and military considerations overlapped, there was close liaison between the General Committee and senior Fighter officers. Questions which were not resolved at this level were subject to mediation, arbitration or direction by the Turkish embassy or even by the Turkish government. In such instances, weight was given to considerations of security.[74] . . .
It should be appreciated that there existed a continuum range of control among the various Turk-Cypriot villages and quarters. Many locations might have best been labelled 'contested' rather than being definitely allotted to either the Cyprus government or to the Turkish-Cypriot administration. Both organizations on occasion attempted to clarify such ambiguity by altering the local status quo in their favour. For example, Greek-Cypriot farmers, owning fields immediately adjacent to a Turk-Cypriot village, may have attempted to work those fields without obtaining the usual prior permission of the local Turkish-Cypriot officials; or a Greek-Cypriot police patrol, which had regularly passed through a Turkish-Cypriot village without stopping, may have stopped and attempted to arrest a villager.
Local 'understandings' often represented a compromise, by local officials of both Cypriot communities, between instructions from distant superiors and a desire to live and let live. A Greek-Cypriot police sergeant may have been instructed to ensure that the Turkish-Cypriot quarter of the mixed village where he was stationed was kept under government control. The mukhtar of the Turkish-Cypriot quarter may have been ordered by his superiors to prevent any attempts by the Cyprus Police to patrol the quarter. Both men, who could be old acquaintances, might on their own initiative, have come to an understanding whereby the sergeant would drive, unarmed and at specified times, along the main road of the Turkish quarter on his way to another Greek-Cypriot village. It could also have been arranged that the sergeant would hand any summonses to the Turk-Cypriot mukhtar at a coffee-shop frequented by men of both communities. The mukhtar in turn would hand the summonses on to the appropriate villager in the Turk-Cypriot quarter. By such agreements, both the sergeant and the mukhtar could equally report to their superiors that the Turkish-Cypriot quarter was under their control. Difficulties could arise, however, if these superiors accepted such reports at face value and proceeded to formulate policies or to make claims based on the assumption that their subordinates were in exclusive control of the local situation.
It should not be thought that the boundaries separating Greek-Cypriot and Turk-Cypriot controlled areas were always precisely demarcated. In certain instances the limits of control exercised by the Cyprus Government and by Turkish-Cypriot authorities were marked by two concentric rings of fortified posts separated by a contested area patrolled by UNFICYP. However, around many other Turkish-Cypriot controlled villages. Fighter sentries posted only a nominal guard at the village's entrance, and the control boundary more nearly resembled a frontier zone in the unguarded fields around the village. Beyond this frontier lay an ill-defined 'contested zone' whose irregular shape depended on local patterns of ethnic settlement, land ownership, communications, transportation and inter-communal hostility. The contested zone gave way in turn to government controlled territory.
In summation, the general trends of the December 1963 - August 1964 period are clear. . . . Decisions were made to implement the conflicting ideas of enosis and taksim by various coercive movements. This activity created a field of violent inter-communal conflict. Violence induced a refugee movement which altered existing demographic fields. The two new fields, of armed confrontation and ethnic segregation, interacted to form fields of communally controlled territory. Subsequently a Turkish-Cypriot civil and military administration was developed to govern and protect Turk-Cypriots and the land they held. The result was the de facto partition of the Republic of Cyprus.
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