The mid-day explosion took place at a cultural center in Suruc as a political group, the Federation of Socialist Youths, was wrapping up a news conference on plans to rebuild the Syrian city of Kobani, a witness said.
There was no immediate claim of responsibility but one senior government official told The Associated Press that Turkey suspected IS was behind the blast in its southeastern city.
Fatma Edemen, 22, said the federation of about 200 youths had been pressing for more access to help reconstruction in Kobani before the blast that police told her came from a suicide bomber.
"One of my friends protected me. First I thought 'I am dying' but I was OK. I started to run after I saw the bodies," she told The AP by phone as she headed to a hospital to get treatment for minor injuries to her legs.
"Our friends went there and it didn't seem dangerous at that time. We couldn't even think something like that would happen," she said, adding that they had hoped to build a kindergarten or something else for children in the devastated city.
"We wanted to do something, but they would not let us," she added.
Kobani was also the scene of surprise IS attacks last month that killed more than 200 people.
Turkish President Recep Tayyip Erdogan, in Cyprus on an official visit, was briefed on the investigation, according to the state-run Anadolu Agency.
In a statement on Twitter, Turkish Deputy Prime Minister Yalcin Akdogan called the bombing a terrorist act. "Such despicable terrorist attacks on #Turkey's integrity and peace will never reach their goal," he said.
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