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The Impact of Europeanisation on Policy-Making in Turkey: Controversies, Uncertainties and Misfits in Broadcasting Policy (1999-2009)

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The Impact of Europeanisation on Policy-Making in Turkey: Controversies, Uncertainties and Misfits in Broadcasting Policy (1999-2009) ANKARA ÜNİVERSİTESİ AVRUPA TOPLULUKLARI ARAŞTIRMA VE UYGULAMA MERKEZİ Araştırma Dizisi No: 35 THE IMPACT OF EUROPEANISATION ON POLICY-MAKING IN TURKEY: CONTROVERSIES, UNCERTAINTIES AND MISFITS IN BROADCASTING POLICY (1999-2009) Burcu SÜMER Ankara-2010 Burcu SÜMER The Impact of Europeanisation on Policy-Making in Turkey: Controversies, Uncertainties and Misfits in Broadcasting Policy (1999-2009) ANKARA ÜNİVERSİTESİ YAYINLARI NO: 248 ISBN: 978-975-482-865-8 Ankara Üniversitesi Avrupa Toplulukları Araştırma ve Uygulama Merkezi, 2010 Kitaptaki görüşler yazarına aittir. Kitaptaki görüşler, ATAUM’u bağlamaz. Tüm hakları saklıdır. Yayıncı izni olmadan, kısmen de olsa fotokopi, film vb. elektronik ve mekanik yöntemlerle çoğaltılamaz. Ankara Üniversitesi Avrupa Toplulukları Araştırma ve Uygulama Merkezi Araştırma Dizisi Editör Prof. Dr. Çağrı ERHAN Doç.Dr.Burça KIZILIRMAK Editör Yardımcısı Uzm.Deniz SENEMOĞLU Sorumlu Yazı İşleri Müdürü Uzm.Dr.Kaya UYSAL Ankara Üniversitesi Avrupa Toplulukları Araştırma ve Uygulama Merkezi Araştırma Dizisi No: 35 ANKARA ÜNİVERSİTESİ BASIMEVİ İncitaşı Sokak No: 10 06510 Beşevler / ANKARA Tel: 0 (312) 213 66 55 Basım Tarihi: 12/03/2010 II ABSTRACT The recognition of Turkey’s candidacy for European Union (EU) membership at Helsinki European Council Summit in December 1999 marked a profound shift in EU-Turkey relations, which has been difficult and turbulent for decades. Turkey started undergoing a drastic transformation after the Helsinki Summit and was successful in clinching a date from the EU in October 2004 to launch accession talks. In between these two dates the two consecutive governments issued a series of new legislations in order to comply with EU conditionality, particularly with political criteria also known as the ‘Copenhagen criteria’ and finally started membership negotiations in October 2005. As of September 2009, eleven chapters have been opened for negotiations, only one of which was closed. This study aims to investigate and analyse the impact of the EU on policy-making processes in Turkey between 1999 and 2009 by focusing on a specific policy area: broadcasting. At the simplest level, it is motivated by an academic interest in the complexity of Turkey’s ever-lasting association with Europe and seeks to explore the dynamics of the post-Helsinki candidacy process by employing various theoretical tools offered by research on Europeanisation. Thus, although it questions the whole rationale of the pre- accession process in Turkey, it looks into the domestic arena of broadcasting policy-making to explore how ‘EU accession conditionality’ is translated into domestic policy responses. It concludes that Turkey’s response to EU conditionality was not unified across different issues of broadcasting policy. Its response to ‘democratic conditionality’ was directly influenced by prevailing ideas about ‘the credibility of the EU’ as well as calculations of the ‘costs of compliance’, and its response to ‘acquis conditionality’ resulted in a regulatory chaos. Overall, this research reveals that where broadcasting policy-making is concerned, changes as a result of the EU’s impact on Turkey were limited. Rather than transformation, the outcome of this process was a minimal degree of adaptation. III ACKNOWLEDGEMENTS This book is based on a PhD research that I conducted in the UK at University of Westminster between 2003 and 2007. There are so many people who contributed to this research in different ways and without their help and support I could never have reached this stage. And of course, I am solely responsible of the content of this study, including its errors and limitations. I would like to express my deepest gratitude to my supervisor Professor Steven Barnett; my examiners Prof.Dr.Peter HUMPHREYS and Dr. Peter GOODWIN; my senior colleagues Prof.Dr.Bülent ÇAPLI, Assoc.Prof.Dr.Beybin KEJANLIOĞLU and Prof.Dr.Colin SPARKS; my graduate administrator Mike FISHER, and my friends Hakan TUNCEL, Aybige YILMAZ, Zümrüt SOMEL, Anastasia KAVADA and Ekin SAYINDI for the support, assistance, generosity and advice I received from them in many different ways and at many different times. I would also like to thank Prof.Dr.Çağrı ERHAN, Assoc.Prof.Dr. Burça KIZILIRMAK, Demet Halime SEZGEN and Deniz SEMENOĞLU at ATAUM for making this book possible. This book is dedicated to my wonderful parents Reyhan and Güneş SÜMER; without their unconditional love and enduring patience, I would not be the person I am today. Burcu SÜMER IV Glossary of Abbreviations AKP Justice and Development Party ANAP Motherland Party AP Accession Partnership AVMSD Audiovisual Media Services Directive BBC British Broadcasting Corporation BYDK High Auditing Board of the Prime Ministry CanWest CanWest Global Communications Corporation CEEs Central and Eastern Europe countries CHP Republican People’s Party CME Central European Media Enterprises CoE Council of Europe DSP Democratic Left Party DYP True Path Party EC European Community EEC European Economic Community EU European Union EPDK Electricity Market Regulatory Authority FCNM Framework Convention for the Protection of National Minorities FP Virtue Party HABER-SEN Media Communication and Postal Employees Union HYK Communications High Council IMCA International Media Consultants Associés IMF International Monetary Fund ISMMMO Istanbul Chamber of Certified Public Accountants KKR Kolberg Kravis Roberts & Co. MGK National Security Council MHP Nationalist Action Party MÜSIAD Independent Association of Industrialists and Businessmen, NATO North Atlantic Treaty Organisation NGO Non-governmental Organisation OECD Organisation for Economic Co-operation and Development OMC Open method of coordination OSCE Organisation for Security and Co-operation in Europe PKK Kurdish Workers Party V RATEM Professional Union of Radio and Television Broadcasters RK Advertising Council RTL Radio Télévision Luxembourg RTÜK Radio and Television Supreme Council RTYK High Commission for Radio and Television SBS Scandinavian Broadcasting System (Broadcasting Group) SP Felicity Party TAF Turkish Armed Forces TBMM Turkish Grand National Assembly TESEV Turkish Economic and Social Studies Foundation TGRT Türkiye Gazetesi Radyo Televizyonu TGS Journalists’ Union of Turkey TİAK Turkish Audience Research Board TK Telecommunications Authority TMG Telegraaf Media Groep N.V. TMSF Savings Deposit Insurance Fund TOBB Union of Chambers and Commodity Exchanges of Turkey TRT Turkish Radio and Television Corporation TÜPRAŞ Turkish Petrelium Refineries Corporation TÜRK-İŞ Confederation of Turkish Labour Unions TÜSİAD Turkish Industrialists’ and Businessmen’s Association TVYD TV Broadcasters Association TWF Television Without Frontiers (Directive) UK United Kingdom of Great Britain and Northern Ireland UNESCO United Nations Educational, Scientific and Cultural Organization US United States of America YÖK Turkish Higher Education Council YTB Local Televisions Union VI CONTENTS ABSTRACT............................................................................................................................III ACKNOWLEDGEMENTS ....................................................................................................IV GLOSSARY OF ABBREVIATIONS......................................................................................V TABLES..................................................................................................................................XI INTRODUCTION.....................................................................................................................1 CHAPTER ONE UNDERSTANDING EUROPEANISATION 1.1. Setting the Context: Europe Matters”...............................................................................19 1.2. Research on Europe: Puzzling with the Concepts ............................................................21 1.2.1.Internationalisation and Europeanistation ................................................................22 1.2.2. Globalisation and Europeanisation..........................................................................29 1.3. Unpacking Europeanisation: The Implications of the Concept.........................................35 1.3.1.Europeanisation as Governance ...............................................................................37 1.3.2. Europeanisation as Institutionalisation....................................................................42 1.3.2.1. Rationalist/Actor Based Institutionalism ....................................................47 1.3.2.2. Sociological and Historical Institutionalism ...............................................49 1.3.3.Europeanisation from a Non-membership Perspective.............................................51 1.4. Europeanisation from a Non-Membership Perspective: In sights on the Accession Process.................................................................................................55 CHAPTER TWO SO NEAR, YET SO FAR: THE CONTEXT OF TURKEY-EU RELATIONS 2.1. Introduction: The Shadows of the Past ............................................................................63 2.2. Europe-Turkey Relations, 1945-1999: From “Strategic Partnership” to “Candidacy...................................................................................................................70 2.2.1.The Aftermath of the Second World War.................................................................70 2.2.2. The Mediterranean Expansion and the End of the Cold War ..................................72 2.2.3.Copenhagen
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