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Counter-terrorism and the Prospects
of Human Rights
Ipek Demirsu
Counter-terrorism
and the Prospects
of Human Rights
Securitizing Difference and Dissent
Ipek Demirsu
Faculty of Arts and Social Sciences
Sabanci University
Tuzla, Turkey
Striking the right balance between security and liberties has never been an
easy task for policymakers. Particularly in the context of terrorism marked
by the perception of a ubiquitous threat, the act of balancing seems to be
ever more challenging. The purpose of this book is not to downplay the
consequences of terrorist violence, or the heavy toll of innocent lives and
the suffering of loved ones. On the contrary, as an individual witnessing
the incubus that has come down upon the country I live in, one which we
incessantly fail to wake up from, taking more than 200 lives in a single year
with devastating attacks almost every month, I am more than aware of the
gravity of brute violence. This book seeks to investigate in a critical light
how we respond to such atrocities in a democratic setting, without losing
the spirit of democracy. In an attempt to counter terrorism, established
liberal democracies have been institutionalizing security measures that
corrode the democratic pillars the society is built upon, muddying the
definition of threat to include non-violent displays of difference or dissent,
bypassing principles of due process; meanwhile, other countries still strug-
gling to consolidate their democracies follow their footsteps. In the end,
what the majority of the population is left with is more insecurity in the
public sphere and less guarantees for their liberties.
During the writing of this book, the situation has gone from bad to worst
throughout the world. There have been horrendous attacks in Ankara,
Bagdat, Beirut, Brussels, Dhaka, Istanbul, Nice, Orlando, and Paris. The
realities of the Syrian civil war has demonstrated that we are all intercon-
nected to a magnitude greater than we have previously imagined, as the
horrors of war proved to be not only the concern of the Syrian population
v
vi PREFACE
alone, fleeing their conflict-torn countries, but also ours, the relatively more
‘privileged’ part of the world, living with the bogus sense of security behind
the walls we have erected. As Europe has remained lethargic in finding a
plausible course of action for the growing wave of refugees reaching its
shores in search of a safe future, usually at the risk of their lives, a con-
comitant upsurge in far-right politics channeled diligently by opportunist
demagogues has twisted the public debate, equating refugees with those
they have been running away from. It was precisely in this conjuncture that
the Brexit vote came as a shock to many, who have underestimated the
rising tide of far-right, with the majority of the British population voting to
leave the European Union. The murder of the MP Jo Cox, known for her
advocacy for the rights of minority groups and refugees, by a far-right zealot
tainted the process leading to the referendum. Although the ramifications of
the decision to leave is yet to be seen, British politicians have been on a
number of accounts voicing their discontent with European institutions
previously, inter alia the European Court of Human Rights, mostly in
the context of counter-terrorism for intervening in matters concerning
immigration and deportation of individuals believed to pose a threat to
national security.
In the meantime, the EU has endeavored to externalize its challenge
with the arrival of refugees by revitalizing the Readmission Agreement
with Turkey, promising to liberalize visa requirements for Turkish citizens
in exchange of sending back those refugees who have arrived in Europe
through Turkey. Packaged as ‘reinvigorating’ the long-inert accession
process, the intensifying exchanges between both sides to find a joint
solution to the ‘refugee crisis’ during a period when the human rights
record of Turkey has been persistently deteriorating, was observed with a
skeptical eye by the erstwhile supporters of Turkey’s EU membership bid
and democratization. The delicate peace process and ceasefire in the
southeast region came to a sudden halt in 2015, drifting back to the
escalation of clashes along with long periods of curfew, thousands of
displaced people, and a rising death toll; practices that have been likened
to the infamous 1990s. Against this backdrop, the political space has been
ever more paralyzed, as oppositional figures are increasingly being silenced
by terror-related charges. I must repeat myself in stressing that the threat
of terrorist attacks is real. Yet, so is the impact on our democracy the way
in which we choose to respond to acts of violence, how we talk about
important notions such as ‘threat’ or ‘enemy’, how we opt to frame and
define terror. These choices not only bear implications on security policies
PREFACE vii
but also how we come to understand the polity we live in. This has indeed
been the case in the aftermath of the shocking coup attempt in Turkey on
the 15 July, 2016, which could have been an devastating blow to Turkish
democracy like its antecedents, fortunately failing to succeed. Many have
rejoiced the prevention of the coup attempt and the victory of democracy
with ripe memories of earlier military coups still in mind. That being said,
the following extended periods of the state of emergency with tens of
thousands of mass arrests have raised serious concerns about the course of
democracy in the country. Once again, this dire experience has demon-
strated that the issue of balancing rights and security will be critical in
determining the future of the political regime.
It is in this troubled murky environment that I have written this book
painstakingly, hoping that it can shed light on how language plays an
indispensable role in shaping policies, and how such policies ultimately
shape the society we live in. To this end, the book is also a plea for the
indivisible and inalienable human rights, with all its imperfections, still the
most reliable anchor of freedoms, not only in terms of European bureau-
cracy and legal formalities, but also how we deliberate fundamental mat-
ters such as security, how we think and talk about the legitimate scope of
sovereignty. I believe human rights continues to be the strongest instru-
ment in the international political arena to challenge the vicious cycle of
violence, and to ensure our democracies do not degenerate into a security
state. The release of the long-awaited Chilcot report and the standstill of
the ‘refugee deal’ between the EU and Turkey due to the perturbing
human rights records of the latter attest to the power such norms still
exert even in key security matters. All in all, by presenting a detailed
comparative analysis of the UK and Turkey, the former an established
democracy while the latter still struggling in its path to democratization,
both hanging on the margins of the EU, the book offers significant
insights on the intersection of counter-terrorism and human rights.
There are a number of influential people that have played a role in my
intellectual life and the materialization of this book that I would like to
share my gratitude. One person who has been important in my early
studies is Dr. Adnan Akçay from Middle East Technical University, who
was the first person to encourage me in questioning established truths and
to search for untold histories. Undoubtedly, the person to whom I owe
my deepening interest in and advocacy for human rights is Dr. Andrew
Fagan from the Human Rights Centre at University of Essex, who has
continued to extend his support in every phase of my studies. I would like
viii PREFACE
to thank Prof. Dr. Meltem Müftüler-Baç from Sabanci University for her
ceaseless guidance, not only throughout my academic life but also life in
general. Her diligence has been inspirational for all her students, including
myself. I would also like to express my gratitude to Prof. Richard Jackson
for his hospitality at the University of Otago National Centre for Peace
and Conflict Studies during my research visit, whose insights have been
invaluable for this research. Another important person in this journey has
been Dr. Bahar Rumelili from Koç University, who has shown me the
strength of this book even before its conception. Moreover, I would like
to thank my editors and my reviewers for their constructive and encoura-
ging inputs that have been indispensable for the book to arrive at its final
version.
Lastly, I would like to thank my dear family and friends, who have been
there at the best of times and the worst of times; but most of all, I owe
special thanks to my extraordinary husband, my inspiration, Dr. Andrea Di
Biase, who has been the biggest support throughout this process.
ix
x CONTENTS
Bibliography 253
Index 279
LIST OF FIGURES
xiii
xiv LIST OF FIGURES
xv
xvi LIST OF TABLES
xvii
CHAPTER 1
Introduction: Counter-terrorism
and Human Rights Norms
in World Politics Today
Since the end of the cold war, human rights has become the dominant
moral vocabulary in foreign affairs. The question after September 11 is
whether the era of human rights has come and gone.
Michael Ignatieff, New York Times 5 February 2002
In the aftermath of the 9/11 events, with the decision to pass the Anti-
Terrorism, Crime and Security Act 2001 the UK became the only European
country to derogate from the European Convention on Human Rights by
introducing the notorious provision of indefinite detention for non-nationals.
The implementation of this provision ensued in HM Belmarsh Prison in
London being referred to as ‘Britain’s Guantanamo Bay’ (Winterman, 2004)
premised on a legal lacuna. In a different setting in Turkey, by the end of 2012
the country has been characterized as the ‘world’s biggest prison for journal-
ists’, most of whom are charged under counter-terrorism legislation, either
allegedly being member of a terrorist organization or promoting such ideals
(Reporters Without Borders, 2012). In a revealing report the Associated Press
has indicated that for arrests due to terror-related crimes, among 350,000
people convicted since 2001 worldwide, Turkey accounted for one-thirds of
such arrests (Mendoza, 2011). As the concept of ‘terrorism’ has come to be
Michael Ignatieff (2002) ‘Is the Human Rights Era Ending?’ New York Times.
agenda does not occupy the political space without a challenge: even in the
hard-core realist terrain of fighting terrorism, human rights norms still
exert their moral weight, from political rhetoric all the way to policy-
making. As such, this study argues that the confrontation, negotiation,
and bargaining between the security and the rights narratives at this critical
nexus work to redefine one another, while concomitantly reshaping the
way we understand sovereignty – still primarily through its function to
provide security, yet ever more constrained by the legitimacy of universally
accepted norms.
In this regard, the book focuses on the interplay between language and
policy in an attempt to investigate how these two terrains shape the status
of rights vis-à-vis security. The relationship between counter-terrorism
policies and the security narrative is a mutually constitutive phenomenon:
while the language on terrorism (and hence counter-terrorism) shapes
perceptions of threats to national security, these perceptions are in turn
translated into policy outcomes with real and often severe consequences.
In other words, the legitimization and institutionalization of security
policies are two interconnected processes that reinforce one another.
Conversely, the security narrative is challenged by the discourse of rights
which confronts the stronghold of exceptionalism by invoking commit-
ment to democratic norms and values. These principles are endorsed as
international standards that state parties ought to follow, often signaling
membership to the ‘civilized nations’. As a result, the conflicts and nego-
tiations among these two narratives, at times borrowing from each other’s
symbolic repertoire, ultimately produce policies that shape the ‘balancing’
of human rights and security concerns, as well as redefining the pillars of
sovereignty.
In order to shed light on the intertwined workings of policy development
and political discourse, this study undertakes a dual investigation of the
phenomenon at hand. Employing a multi-method qualitative research
design, the study is comprised of a comparative analysis of policy develop-
ment and a frame analysis of the legislative process to offer a comprehensive
picture of different dynamics at work. Also known as triangulation, this
methodology is conducive to linking discourse to policy output by building
on the centrality of context in the analysis. Thus, the first part of the study
seeks to trace and map out the historical development of human rights and
counter-terrorism policies, in light of international and domestic trends, key
events, and actors involved. Moving on from this background, the second
part of the analysis aims to investigate the official representation of issues
INTRODUCTION: COUNTER-TERRORISM AND HUMAN RIGHTS NORMS . . . 5
the military dimension and the security dilemma. Realism has long desig-
nated a trivial role to any form of norms, ideas and values, rendering them as
epiphenomena that are ultimately manifestations of power politics. Realist
scholars view the nation state as the main actor in world politics upholding
their exclusive right to sovereignty, and therefore, international politics (as
implied in the wording) is a domain of state interaction underscored by
competing national interests and power struggles. As famously put by
Waltz, “ . . . discussions of foreign policy have been carried on since 1945,
in the language of political realism-that is, the language of power and
interest rather than of ideals or norms” (1979: 9). Congruently,
Morgenthau indicates that ethics and politics belong to analytically distinct
domains, where the former is evaluated by moral norms and the latter
assessed by its political consequences (Morgenthau, [1967] 1993: 13). In
a realist world order marked by distrust, since there is no higher authority to
resort to, states ultimately pursue security via self-help at the risk of inciting
insecurity on part of other states. Other states or institutions are not to be
trusted, since the anarchic system fuels uncertainty and suspicion regarding
others’ motives (Waltz, 1979). While gains for one actor translates as losses
for another, cooperation through international institutions or regimes is
perceived as promoting the interests of powerful actors, thereby reflecting
the extant power relations (Mearsheimer, 1994). Hence, realism has usually
depicted world politics as premised on an anarchic order where might and
power capabilities are essential in determining each actor’s place.
Although the realist school has historically been the dominant paradigm
in international relations (IR) literature, particularly with respect to security
matters, it has nonetheless remained indifferent toward the growing influ-
ence of international norms and how they exert power through logic of
appropriateness in world politics. As such, this approach fails to explain why a
notion such as human rights that by and large challenges the traditional
understanding of sovereignty and meddles with a state’s relationship with its
citizens on normative grounds has become widely recognized and institu-
tionalized in international politics. This tendency is premised on the main
tenets of realism that on the whole overlook other equally compelling yet less
tangible dynamics in world politics such as beliefs, values, norms, and
identities, in addition to those evident material factors that constitute
national interests. Thus, since the 1980s prominent figures from different
camps of IR theorizing have undertaken to redefine the concept of security
and propose alternative conceptualizations of world politics to those pre-
sented by the realist paradigm. As an ‘essentially contested concept’ security
2.1 THE CONCEPT OF ‘SECURITY’ AND ITS STUDY 11
Since the political realm is not exempt from considerations of morality, CSS
undertakes the task of discovering possible niches for social progress through
the use of ‘immanent critique’. In line with this stance, security within the
contours of CSS theorizing is conceptualized as “an instrumental value” in
world politics that does not consist of a military dimension, but rather
includes other equally pressing issues such as poverty, environmental degra-
dation, communal identities that are under threat . . . etc. (Ibid.: 23). It is
claimed that the concept can be utilized to promote emancipatory politics if
it is adopted to different issue areas that are not present in the realist agenda.
As put by Booth, “[w]hile never neglecting the military dimension of
security, students of CSS must seek above all to try to overcome the tradi-
tional prioritizing of the victims of politics (wars/tyranny) over the victims of
economics (poverty/oppression)” (Ibid.: 110).
In a similar vein, Buzan (1983) argues that the concept of security is a
multifarious phenomenon that cannot be adequately grasped through a
unidimensional vantage point. Instead, he offers an account of security
that encompasses five interwoven sectors, namely the military sector along
with the political, the economic, the societal, and the environmental
sectors. According to Buzan, the neorealist agenda posits that any for-
mulation of security, be it national or international, is set against the
background condition of anarchy, which in turn endorses three precondi-
tions: states are the main referent object of security, national security is a
relational and interdependent phenomenon, and hence security can only
be relative not absolute (1983: 22–23). Buzan disagrees with this stance,
contending that security has many referent objects on different levels of
actors that cross-cut the abovementioned five sectors, from the subna-
tional individual level to the international system as a whole (Ibid.: 26).
What is novel about this multifarious perspective is that by including the
individual dimension into the analysis, Buzan illustrates the ways in which
the state might be both a major source of and a major threat to the security
of the individual. As such, it can be argued that inter alia two salient
14 2 SOVEREIGNTY BETWEEN SECURITY AND HUMAN RIGHTS PRINCIPLES
On the evening of that day which saw Mrs Wallace enter Park a
bride, Robin Kinniburgh and a number of his cronies met at the
village alehouse to celebrate the happy event. Every chair, stool, and
bench being occupied, Robin and his chum, Tammy Tacket, took
possession of the top of the meal girnel; and as they were elevated
somewhat above the company, they appeared like two rival provosts,
looking down on their surrounding bailies.
“It’s a gude thing,” said Tammy, “that the wives and weans are
keepit out the night; folk get enough o’ them at hame.”
“I wonder,” said Jamie Wilson, “what’s become o’ Andrew
Gilmour.”
“Hae ye no heard,” said Robin, “that his wife died yesterday?”
“Is she dead?” exclaimed Tammy Tacket. “Faith,” continued he,
giving Robin a jog with his elbow, “I think a man might hae waur
furniture in his house than a dead wife.”
“That’s a truth,” replied Jamie Wilson, “as mony an honest man
kens to his cost.—But send round the pint stoup, and let us hae a
health to the laird and the leddy, and mony happy years to them and
theirs.”
When the applause attending this toast had subsided, Robin was
universally called on for a song.
“I hae the hoast,” answered Robin; “that’s aye what the leddies say
when they are asked to sing.”
“Deil a hoast is about you,” cried Wattie Shuttle; “come awa wi’ a
sang without mair ado.”
“Weel,” replied Robin, “what maun be, maun be; so I’ll gie ye a
sang that was made by a laddie that lived east-awa; he was aye
daundering, poor chiel, amang the broomie knowes, and mony’s the
time I hae seen him lying at the side o’ the wimpling burn, writing on
ony bit paper he could get haud o’. After he was dead, this bit sang
was found in his pocket, and his puir mother gied it to me, as a kind
o’ keepsake; and now I’ll let you hear it,—I sing it to the tune o’ ‘I hae
laid a herrin’ in saut.’”
Song.
It’s I’m a sweet lassie, without e’er a faut;
Sae ilka ane tells me,—sae it maun be true;
To his kail my auld faither has plenty o’ saut,
And that brings the lads in gowpens to woo.
There’s Saunders M‘Latchie, wha bides at the Mill,
He wants a wee wifie, to bake and to brew;
But Saunders, for me, at the Mill may stay still,
For his first wife was pushioned, if what they say’s true.