Cyprus Negotiations: The Evolution of the Annan Plans
The quest for a comprehensive settlement to the Cyprus problem intensified at the turn of the millennium, driven largely by the island's impending membership in the European Union (EU). The prospect of Cyprus joining the EU created a complex diplomatic landscape, as the United States, the United Kingdom, and Turkey were concerned that a divided island might obstruct Turkey's own aspirations for EU membership. Furthermore, the strategic importance of British military bases on the island added another layer of urgency to the negotiations.
Under the guidance of UN Secretary-General Kofi Annan and his Special Advisor, Álvaro de Soto, a series of diplomatic efforts known as the Annan Plans were developed. These plans sought to bridge the gap between the Greek Cypriot and Turkish Cypriot communities through a series of proximity talks and direct negotiations.
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Key Facts
- Primary Goal: To achieve a comprehensive, legally binding settlement for the Cyprus problem before EU accession.
- Key Figures: Kofi Annan (UN Secretary-General), Álvaro de Soto (Special Advisor), Glafcos Clerides and Tassos Papadopoulos (Greek Cypriot leaders), and Rauf Denktaş (Turkish Cypriot leader).
- EU Influence: Cyprus officially joined the EU on May 1, 2004, though the acquis communautaire (the body of common rights and obligations that are binding on all EU member states) was suspended in the northern part of the island.
- The Process: Five distinct versions of the Annan Plan were proposed between 2002 and 2004.
The Early Efforts: Annan Plans I and II
Negotiations began in earnest following UN Security Council Resolution 1250 in June 1999. Initial proximity talks—negotiations where parties are in the same building but separate rooms—took place in New York and Geneva. However, progress stalled in November 2000 when Turkish Cypriot leader Rauf Denktaş withdrew, insisting that no progress could be made until two separate states were recognized.
Diplomacy resumed in late 2001 after European Commission President Romano Prodi clarified that Cyprus would join the EU regardless of whether a settlement was reached. This prompted a meeting in Nicosia on December 4, 2001, where leaders agreed to direct talks without preconditions, adhering to the principle that "nothing would be agreed until everything was agreed."
By November 11, 2002, the UN presented Annan Plan I. A revised version, Annan Plan II, followed on December 10, 2002, intended to serve as a basis for agreement before the EU Copenhagen summit. Despite intense pressure, no agreement was reached. The EU subsequently confirmed that Cyprus would join the Union on May 1, 2004, but expressed a strong preference for a united Cyprus.
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The Collapse of Annan Plan III
In a final attempt to reach a deal before Cyprus signed the EU accession treaty on April 16, 2003, the UN developed Annan Plan III. This version aimed to address the basic requirements of the Turkish side while maintaining balance for Greek Cypriot concerns, particularly regarding security.
The process reached a critical point in March 2003. Following the election of Tassos Papadopoulos as President of the Republic of Cyprus, the plan was presented in The Hague. However, the effort collapsed on March 10, 2003, when Rauf Denktaş refused to submit the plan to a referendum, declaring it unacceptable. Secretary-General Annan subsequently announced that the process had "reached the end of the road."
The Final Push: Annan Plans IV and V
As the May 2004 EU deadline approached, renewed diplomatic activity emerged. The United States, led by Special Coordinator Thomas Weston and President George Bush, urged an immediate restart of talks. Simultaneously, a political shift occurred in Turkey and Northern Cyprus; Prime Minister Recep Tayyip Erdoğan in Turkey and Mehmet Ali Talat in Northern Cyprus adopted more pro-settlement stances, criticizing the uncompromising approach of Rauf Denktaş.
In February 2004, Kofi Annan proposed a three-phase process to finalize a plan by March 31 for a referendum on April 21. While technical committees achieved some success, political progress remained stalled. A "mini-crisis" occurred when Denktaş initially refused to attend Phase 2 talks at the Swiss Bürgenstock, eventually delegating authority to Talat and Serdar Denktaş.
The final stages were marked by significant revisions. After Turkey submitted a list of "Final Points," the UN team incorporated these demands into Annan Plan IV and subsequently Annan Plan V. The final version, tabled on March 31, 2004, was designed to meet the requirements of the Turkish side to ensure the process could move toward a referendum.
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Summary of the Annan Plan Timeline
| Phase/Plan | Date | Key Outcome/Status |
|---|---|---|
| Proximity Talks | 1999–2000 | Stalled due to demand for two-state recognition. |
| Annan Plan I & II | Nov–Dec 2002 | Proposed before Copenhagen Summit; no agreement reached. |
| Annan Plan III | Feb–Mar 2003 | Collapsed in The Hague after Denktaş refused a referendum. |
| Annan Plan IV & V | Feb–Mar 2004 | Finalized after incorporating Turkish "Final Points." |
| EU Accession | May 1, 2004 | Cyprus joins EU; acquis suspended in the north. |
Frequently Asked Questions
Why was EU membership a catalyst for the negotiations?
The EU's impending membership of Cyprus created pressure because Turkey feared that a divided island joining the EU would hinder Turkey's own accession hopes. Additionally, the US and UK wanted to ensure Turkey's path to the EU remained open and that British military bases on the island remained secure.
What does "nothing would be agreed until everything was agreed" mean?
This was a negotiating principle adopted in December 2001. It meant that no individual part of the comprehensive settlement would be considered final or binding until the entire package of agreements was completed and accepted by both sides.
Why did Annan Plan III fail?
The plan failed primarily because the Turkish Cypriot leader, Rauf Denktaş, refused to commit to putting the plan to a referendum, stating that the proposal was unacceptable to his community.
How did the political landscape change before Annan Plan V?
The election of Mehmet Ali Talat in Northern Cyprus and the rise of Recep Tayyip Erdoğan in Turkey shifted the dynamic. Both leaders were more open to the peace process and the Annan Plans than their predecessors, viewing a settlement as a way to improve relations with the EU.
What happened to the northern part of Cyprus when it joined the EU?
While the entire island of Cyprus became an EU member on May 1, 2004, the application of the EU's acquis communautaire (the body of EU law) was suspended in the northern part of the island due to the absence of a political settlement.