Ankara Faces Legal and Strategic Hurdles Despite Efforts to Offload Russian Air Defense System
Turkey is stepping up efforts to dispose of its Russian-made S-400 air defense system as it seeks to regain access to the U.S.-led F-35 fighter jet program, a move that could reshape its long-term defense strategy but still faces significant political and legal obstacles in Washington.
Officials from Turkey’s Ministry of National Defense confirmed that “multilateral work” is underway regarding the future of the S-400 system, with reports indicating that Ankara is exploring a sale to a third country. Qatar has emerged as the leading potential buyer, while the United Arab Emirates has also been mentioned as a possible destination.
The effort reflects Ankara’s growing urgency to restore its place in the F-35 program after being removed by the United States following its purchase of the Russian missile defense system.
Turkey’s Push to Return to the F-35 Program
Turkey was one of the original partner nations in the multinational F-35 program and invested heavily in its development before Washington removed the country from the project and imposed sanctions under the Countering America’s Adversaries Through Sanctions Act (CAATSA).
The United States argued that operating the Russian-built S-400 alongside the fifth-generation F-35 could expose sensitive information about the aircraft’s stealth capabilities and compromise NATO security.
Since then, Turkish officials have examined several options to address Washington’s concerns. Among the proposals were keeping the S-400 inactive, storing it at a U.S. military facility, returning it to Russia, or selling it to another country.
Although the missile system was delivered to Turkey, it was never integrated into the country’s air defense network or fully activated, allowing Ankara to keep open the possibility of eventually rejoining the F-35 program.
The issue has gained greater urgency as neighboring countries continue modernizing their air forces. Israel already operates the F-35, while Greece has begun acquiring the aircraft, increasing pressure on Turkey to regain access to the advanced fighter.
Why Turkey Purchased the S-400
Turkey’s decision to buy the S-400 was driven by what Ankara described as an urgent requirement for a long-range air defense system during a period of heightened regional security concerns.
Turkish officials had sought Western alternatives, including the U.S.-made Patriot system and the European SAMP/T missile defense system, but negotiations either stalled or failed to produce timely deliveries.
According to previous reports, Turkey also strengthened defense ties with Russia following the failed 2016 coup attempt, a period marked by strained relations between Ankara and several Western allies.
Trump Signals Support, But Congress Holds the Final Say
Following a NATO leaders’ summit in Ankara on July 7, U.S. President Donald Trump expressed optimism about improving defense ties with Turkey.
Speaking alongside Turkish President Recep Tayyip Erdogan, Trump said, “We’re going to lift the sanctions. We don’t want to sanction our friends. I don’t want to choke my friend with sanctions.”
When asked whether Turkey could once again purchase the F-35, Trump replied, “That’s a decision we’re going to make… It’s a great plane, the best plane by far, and it’s certainly something we will consider.”
Reports citing Turkish officials have suggested that the United States could eventually deliver an initial batch of six F-35 aircraft if sanctions are lifted.
However, any return to the program would require more than presidential support.
Under U.S. law, the administration would need to certify to Congress that Turkey no longer possesses an operational S-400 system and has met additional legal requirements. Members of Congress retain the authority to challenge or block such a move if they believe those conditions have not been satisfied.
Defense Analysts Question Whether Selling the S-400 Will Be Enough
Many defense experts argue that simply relocating the S-400 would not eliminate Washington’s long-standing concerns.
Shay Gal, former Vice President of External Relations at Israel Aerospace Industries (IAI), said the proposal would fail to address broader strategic issues.
“Qatar is Ankara’s closest military ally in the Gulf. Yet even an S-400 transfer to Qatar would not restore Turkey to the F-35 program,” Gal said.
He added, “Washington has already built safeguards against cosmetic divestment. I was directly involved in that effort. Relocation (to Qatar) does not erase the exposure, the record or Turkey’s strategic incompatibility with the West’s most sensitive combat aircraft.”
Analysts note that Russian personnel reportedly assisted in establishing the S-400 system inside Turkey, creating concerns that sensitive information may already have been exposed while Ankara remained an F-35 program partner.
Gal also warned against transferring the system to Qatar, which hosts the strategically important Al Udeid Air Base.
“A Qatari transfer would not neutralize the S-400. It would transplant a Russian system into Turkey’s closest Gulf defense network and the country hosting Al Udeid. That is strategic laundering, not disposal,” Gal said.
He further emphasized that congressional oversight extends beyond presidential commitments.
“The United States is not its president. Whatever Trump promised Erdogan, and whatever he signed, neither promise nor signature delivers an aircraft. Trump can promise. The state must deliver. That state is Congress, the Pentagon, the intelligence community, export law, and the security review system. What some deride as the ‘deep state’ is the state itself: institutions built to stop one man’s commitment from becoming a strategic fact. Trump may weaken them, but he cannot abolish law, procedure, or time,” he said.
Gal also questioned the timeline for any future deliveries.
“Any Turkish return will face scrutiny, conditions and delay. The F-35 pipeline spans years: congressional review, contracting, production allocation, configuration, testing, training, infrastructure, and certification. Trump’s term will expire before Turkey receives a single F-35,” Gal said.
Regarding the proposed sale itself, he added, “Moscow will consent only if the transfer preserves Russian leverage, access or compensation.”
Regional Opposition Adds Another Challenge
Turkey’s effort to rejoin the F-35 program also faces resistance from regional rivals.
Israeli Prime Minister Benjamin Netanyahu said he urged Trump not to approve the sale, arguing it would “destroy the power balance in the Middle East.” Israel has consistently sought to preserve its Qualitative Military Edge in the region.
Greek Defense Minister Nikos Dendias also voiced concern, stating, “Greece will not be pleased if Turkey acquires the F-35s, or if Turkey acquires the engines for next-generation aircraft.”
Gal argued that even if Turkey eventually rejoined the program, it would still trail both countries.
“Turkey will not leapfrog Greece, whose first aircraft are scheduled for 2028 and whose pilots will train in the United States. Nor will it overtake Israel, whose third squadron of 25 additional F-35Is will begin arriving in 2028 at a rate of three to five aircraft annually,” he said.
Outlook Remains Uncertain
While selling or transferring the S-400 could eliminate one of the technical barriers preventing Turkey’s return to the F-35 program, analysts say rebuilding strategic trust between Ankara and Washington will likely prove far more difficult.
Turkey continues to maintain working relations with Russia through major energy and infrastructure projects, including TurkStream and its first nuclear power plant, leaving many lawmakers in Washington unconvinced that the broader security concerns have been resolved.
As Gal concluded, “The S-400 may leave Turkey. The strategic problem will not.”
