Narratives Matter: in Search of a Partnership Strategy
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IPC–MERCATOR POLICY BRIEF April 2020 NARRATIVES MATTER: IN SEARCH OF A PARTNERSHIP STRATEGY Wolfgang Wessels Executive Summary Relations between Turkey and the European Union move from the 1990s until 2020, from understand- (EU) are dramatically shifting: many controversial ing Turkey as a candidate country—perhaps with issues are on the agendas of Ankara and Brussels some specific characteristics due to its size—to as well as the main players in the EU like Berlin. Turkey as a de facto partner country, as document- Following the changing of the guards in Brussels ed in the spring 2016 statement, and, finally, Turkey in 2019, this policy brief pursues a triple “A” ap- as a problematic neighbor with a rising number of proach to the EU’s narratives on Turkey: it analyzes conflicts. As to be expected in a pluralistic system, and assesses the narratives of the Union’s political there is no single, unrivalled, master narrative: we leaders, who as members of the European Coun- observe the coexistence of different mental maps cil—which is composed of the Heads of State or of a moving target. In support of policy action and Government, the President of the European Com- academic activities between Turkey and the EU, mission, and the European Council itself—formu- this policy brief advises to keep the debate open late the Council’s conclusions. Based on these and not to let the narrative over the last three years reflections it will propose some advice for action. dominate the discussion on EU-Turkey relations. This policy brief finds that these statements over We need to stabilize and reinforce bridges through the last three decades frame the mental and con- a cooperative partnership, as Chancellor Merkel ceptual maps of EU-Turkey relations. They not only stated in early 2020.1 The main task is to design offer opportunities to change EU-Turkey relations and frame a narrative that identifies the necessary but also increasingly constrain the activities of the instruments for joint problem solving, formal and Union’s institutions, e.g., by blocking plans for up- informal cooperation, and adequate procedures to grading the Customs Union. My analysis shows a agree on a resilient institutional set up. NARRATIVES MATTER: IN SEARCH OF A PARTNERSHIP STRATEGY Narratives Matter More Than Ever in legitimize current policy activities and actions, e.g., in dealing with neighbors and partners. Times of Change In pluralistic societies like the Union, debates on In order to analyze the long history of EU-Turkey vital issues show a large degree of variation; rare relations, it is useful to evaluate changes in the rel- are “master” narratives that dominate discourses evant political constellations in the EU. In 2019 af- and determine the course of action. While the nar- ter the European Parliament elections, new leaders ratives surrounding the Lisbon Treaty that portray were elected as the heads of the EU’s institutions: a the EU as a community of values5 legitimize the Un- new president of the European Commission, a new ion’s external action,6 they are also open to mani- President of the European Council, and a new High fold interpretations and controversial debates. Representative of the Union for Foreign Affairs and Framing the Union’s narratives, the official conclu- Security Policy. All will have a strong say in the Un- sions of the European Council are highly relevant ion’s external action vis-à-vis Turkey. Furthermore, as they are the results of careful preparation over to frame and shape the agenda for the next five several administrative and political levels aiming to years, the political leaders in the European Council reach a consensus among the political leaders of agreed in June 2019 on a “new strategic agenda 27 member states. They not only directly or indi- 2019–2024,”2 and the Commission President pre- rectly document certain fundamental features in sented her political guidelines.3 Though Turkey is mapping the perceptions of bilateral relations but not directly mentioned, this statement will affect also have a strong impact on the way policies are the EU-Turkey relationship. Thus, formulations prepared, decided upon, implemented, and con- like, “promoting European interests and values on trolled by EU institutions. The European Council’s the global stage” with more “geopolitical” think- statements do not represent public opinion and ing as well as “protecting our European way of all its variations. They are products of a political life” through “upholding the rule of law,”4 will have process, which explains why they apparently over- an impact on framing EU-Turkey relations—even look—on purpose or without further reflection— though concrete challenges, like migration waves, certain issues and ignore some taboos. might overshadow these generic statements. Analyzing over 50 conclusions of the European To put current issues in the relevant political con- Council, this policy paper examines competing text, it is important to analyze and assess the fun- narratives. One master narrative stresses Turkey’s damental (master-)narratives that have shaped Europeanization process leading up to its status as the Union’s debates on and perceptions of its re- a candidate state. A second master narrative fo- lations with Turkey over the last three decades. cuses on a factual and rules-based cooperation in a For an adequate analysis and assessment of the few key policy fields, namely migration and terror- EU’s political actions in future, we need to identify ism. A third master narrative points at the growing mindsets as mental maps that use past interpre- divergences especially related to the community tations of certain historical events as explanations of values and geopolitical interests, such as the for the unsatisfactory state of present-day political conflicts in the Eastern Mediterranean and Syria. affairs. From these mental maps actors then pro- In June 2019, the European Council adopted the pose strategies to get to the desired future in one’s narrative formulation of the General Affairs Coun- relationship. In this sense narratives are based on cil, claiming, “Turkey has been moving further away a certain version of the Union’s collective memory from the European Union.”7 that in one way or another has an impact on the way concrete policies are made and pursued. The Given these developments, this policy brief advises design of the Union’s narratives includes several all actors to maintain an open debate on several dimensions of constructing one’s own identity—of- scenarios and options for Turkey’s EU relations and ten in contrast to those of the “other.” Visions and not to let the narratives of past years dominant the missions are presented as messages both to keep discussion on EU-Turkey relations. In academia, we the in-group together as well as to give signals to need to look for cooperation based on a collegial outside actors. A main function of narrative is to partnership. 2 | APRIL 2020 | IPC–MERCATOR POLICY BRIEF Analysis and Assessment: Shifting between Competing Narratives EU Council Conclusions on Turkey 7 Migration Crisis Helsinki Summit 6 Luxembourg Summit The EU’s Big Bang Enlargement 5 4 Turkish Invasion of Cyprus EU-Turkey’s Customs Union 3 Turkey’s Membership Application to the EU Start of Turkey’s EU membership negotiations 2 Military Coup, Turkey 1 0 1991 1981 2011 1977 1974 1975 1979 1976 1978 1993 1997 1983 1987 1992 1982 2013 2017 1995 2012 1985 1999 1988 2015 1989 1998 1996 1994 1986 1984 2019 2018 2016 2014 1990 1980 2001 2010 2003 2007 2002 2005 2009 2008 2006 2004 2000 EU Member Other Topics Source: compiled by CETEUS, based on the conclusions of the European Council, online available: https://www.consilium.europa.eu/en/european-council/conclusions/ (accessed: February 4, 2020). Over the past four and a half decades, the Euro- After the end of the bipolar world, the European pean Council has formulated positions on Turkey Council needed to shape a new Europe by widen- through over 50 conclusions (Figure 1). According ing its membership and deepening the European to these documents, Turkey has only been a regular Union’s architecture; in this context the EU’s rela- issue on the leaders’ agenda since the 1990s, ap- tions with Turkey and its role in this new geopoliti- pearing frequently in 2004 (opening of member- cal context was and remains an issue of high politi- ship negotiations) and 2016 (related to migration cal relevance for the EU’s political leaders. issues). In the Cold War period Turkey was seen as Looking at the statements from the early 1980s to a reliable ally in NATO as well as a country with a 2020, we find some recurrent formulations and, specific association status in the EU. With the ex- at the same time, many changes in the European ception of the military coup in 1980, the Heads of Council’s narratives on Turkey. State or Government apparently did not see a ma- jor reason to discuss Turkey in the European Coun- cil throughout this decade. | 3 NARRATIVES MATTER: IN SEARCH OF A PARTNERSHIP STRATEGY The Normative Narrative: Human After the end of the Cold War, with Central and Rights, Rule of Law, Fundamental Eastern European claims for membership as well as Turkey’s changing geopolitical position vis-à-vis Freedoms and the Independence of the Balkan wars, the European Council tried to find the Judiciary ways to deal with Turkey’s new geopolitical role in the EU’s neighborhood coupled with its demand From 1982—two years after the military coup—until for membership. the failed military coup in 2016, a major concern of several generations of the Union’s political leaders In a general statement in June 1992, the European was and is respect for human rights, rule of law, Council “underlines that the Turkish role in the po- fundamental freedoms, and the independence of litical situation in Europe is of greatest importance the judiciary in Turkey.