In August 2018, the Trump Administration levied sanctions against Turkey in connection with the continued detention of Andrew Brunson, an American pastor charged with terrorism. 1 Within the tense bilateral context, Congress has required the Trump Administration—in the FY2019 National Defense Authorization Act (NDAA, P.L. 115-232 )—to report on the status of U.S.-Turkey relations. While Turkish President Recep Tayyip Erdogan and other Turkish leaders have sharply criticized U.S. policies on many issues, questions in U.S. public debate about Turkey's status as an ally and its relationship with Russia have intensified. Turkey's domestic trajectory and financial distress . Erdogan's consolidation of power has continued. The U.S. sanctions related to Pastor Andrew Brunson's case (see " Sanctions, Pastor Brunson, and Other Criminal Cases " below) and the historic crisis they may augur for U.S.-Turkey relations could be speeding the lira's decline. Under the state of emergency enacted after the failed July 2016 coup attempt, Turkey's government cracked down on Turkey's Kurdish minority. The Turkish government controls or closely oversees religious activities in the country. In the context of concerns about Turkey's strategic orientation (see " Turkey's Strategic Orientation and Foreign Policy "), many Members of Congress are increasingly active in proposing legislation and exercising oversight on U.S.-Turkey matters that include arms sales and strategic cooperation, various criminal cases, and economic sanctions. Calculating the costs and benefits to the United States of a U.S./NATO presence in Turkey, and of potential changes in U.S./NATO posture, revolves to a significant extent around three questions:
To what extent does strengthening Turkey relative to other regional actors serve U.S. interests? As mentioned above, the planned S-400 acquisition could trigger sanctions under existing U.S. law. Parallel with nationwide efforts to imprison and marginalize those with connections to Gulen, Turkish authorities have detained Brunson (see textbox below) and a number of other U.S. citizens (most of them dual U.S.-Turkish citizens), along with Turkish employees of the U.S. government. The report will include
an assessment of the U.S. military and diplomatic presence in Turkey, including military activities conducted from Incirlik air base; an assessment of Turkey's potential S-400 purchase from Russia and the effects it might have on the U.S.-Turkey relationship, including on other U.S. weapon systems and platforms operated with Turkey (aircraft, helicopters, surface-to-air missiles); an assessment of Turkey's participation in the F-35 program, including how changing Turkey's participation could impact the program and what steps might mitigate negative impacts for the United States and other program partners; and an identification of potential alternative air and missile defense systems for Turkey, including military air defense artillery systems from the United States or other NATO member states. Turkey is a cooperative partner in developing the F-35, and as part of its involvement, several Turkish companies are assisting with development and manufacture of various F-35 components. Possible U.S. Opposition to Assistance to Turkey from Selected International Financial Institutions (S. 3248)

In July 2018, six Senators introduced the Turkey International Financial Institutions Act ( S. 3248 ), which would direct "the U.S. executive of the World Bank and the European Bank for Reconstruction and Development (EBRD) to oppose future loans, except for humanitarian purposes, to Turkey by the International Finance Corporation (IFC) and EBRD until the administration can certify to Congress that Turkey is 'no longer arbitrarily detaining or denying freedom of movement to United States citizens (including dual citizens) or locally employed staff members of the United States mission to Turkey.'" Assessment

Turkey's priorities in Syria appear to have evolved during the course of Syria's civil war. Since the rapprochement, the two countries have cooperated in a number of areas, most notably
the possible S-400 air defense deal (see " Possible S-400 Acquisition from Russia " above); some military and political coordination in northern Syria (see " Syria " above); and energy dealings (see " Energy " above). In connection with bilateral tensions, Israel has raised concerns with U.S. officials over Turkey's acquisition of the F-35 and has contemplated measures to limit Turkish influence over holy sites in Jerusalem. Questions persist about how these ties will develop in response to changes in Turkey. Appendix A. Profiles of Key Figures in Turkey
Appendix B.
Turkey, a NATO ally since 1952, significantly affects a number of key U.S. national security issues in the Middle East and Europe. U.S.-Turkey relations have worsened throughout this decade over several matters, including Syria's civil war, Turkey-Israel tensions, Turkey-Russia cooperation, and various Turkish domestic developments. The United States and NATO have military personnel and key equipment deployed to various sites in Turkey, including at Incirlik air base in the southern part of the country.
Bilateral ties have reached historic lows in the summer of 2018. The major flashpoint has been a Turkish criminal case against American pastor Andrew Brunson. U.S. sanctions on Turkey related to the Brunson case and responses by Turkey and international markets appear to have seriously aggravated an already precipitous drop in the value of Turkey's currency.
Amid this backdrop, Congress has actively engaged on several issues involving Turkey, including the following:
Turkey's possible S-400 air defense system acquisition from Russia. Turkey's efforts to acquire U.S.-origin F-35 Joint Strike Fighter aircraft and its companies' role in the international F-35 consortium's supply chain. Complex U.S.-Turkey interactions in Syria involving several state and non-state actors, including Russia and Iran. Over strong Turkish objections, the United States continues to partner with Syrian Kurds linked with Kurdish militants in Turkey, and Turkey's military has occupied large portions of northern Syria to minimize Kurdish control and leverage. Turkey's domestic situation and its effect on bilateral relations. In addition to Pastor Brunson, Turkey has detained a number of other U.S. citizens (most of them dual U.S.-Turkish citizens) and Turkish employees of the U.S. government. Turkish officials and media have connected these cases to the July 2016 coup attempt in Turkey, and to Fethullah Gulen, the U.S.-based former cleric whom Turkey's government has accused of involvement in the plot.
In the FY2019 National Defense Authorization Act (NDAA, P.L. 115-232) enacted in August 2018, Congress has required a comprehensive report from the Trump Administration on (1) U.S.-Turkey relations, (2) the potential S-400 deal and its implications for U.S./NATO activity in Turkey, (3) possible alternatives to the S-400, and (4) various scenarios for the F-35 program with or without Turkey's participation. Other proposed legislation would condition Turkey's acquisition of the F-35 on a cancellation of the S-400 deal (FY2019 State and Foreign Operations Appropriations Act, S. 3180), place sanctions on Turkish officials for their role in detaining U.S. citizens or employees (also S. 3180), and direct U.S. action at selected international financial institutions to oppose providing assistance to Turkey (Turkey International Financial Institutions Act, S. 3248). The S-400 deal might also trigger sanctions under existing law (CAATSA).
The next steps in the fraught relations between the United States and Turkey will take place in the context of a Turkey in political transition and growing economic turmoil. Turkish President Recep Tayyip Erdogan, who has dominated politics in the country since 2002, won reelection to an empowered presidency in June 2018. Given Erdogan's consolidation of power, observers now question how he will govern a polarized electorate and deal with the foreign actors who can affect Turkey's financial solvency, regional security, and political influence. U.S. officials and lawmakers can refer to Turkey's complex history, geography, domestic dynamics, and international relationships in evaluating how to encourage Turkey to align its policies with U.S. interests.