The Danish Presidency and Turkey's EU Accession

GPoT BRIEF

Global Political Trends Center

THE DANISH PRESIDENCY AND TURKEY’S EU ACCESSION: TURNING THE PAGE TOWARDS NEW POSITIVE AGENDA

SOFIA HAFDELL*

The 2012 Danish presidency term of the Cyprus during the second half of 2012, has Council of the European Union (EU) both demonstrated willingness for closer launched the ‘Positive Agenda’ policy with dialogue and continued EU integration of regards to Turkey’s EU accession process, Turkey and given a genuine gesture intending to bring new momentum to the towards improved bilateral ties. stalled negotiation talks. While the practical outcomes of this policy is to be determined, as no new chapters have yet Denmark-Turkey Relations: Recent been opened, the Danish presidency Developments contributed to changing attitudes vis-à-vis While the history of Denmark-Turkey ties Turkey’s EU accession by – at least can be traced back to the 18th century with symbolically – advancing the negotiation the start of mutual trade (Dirik, 2011), talks between the EU and Turkey. Further, recent developments have shown the need at a bilateral level, the initiative coming for a fresh start in bilateral relations. during the Danish presidency showed the During the past decade, mutual relations desire and determination of Denmark to between the two countries have been bring bilateral relations with Turkey back strained at times, where the two most on track. cited examples are the events of the This paper will touch upon developments Danish Cartoon Controversy (2005-06) and in bilateral relations between Denmark and the Roj TV Affair (2005). Turkey and the conditions for Turkey’s In relation, the Danish public opinion accession process to the EU in light of the towards Turkey’s EU accession has not 2012 Danish presidency. While Danish- been entirely supportive. Firstly, this cor- Turkish relations have been hurt by recent responds to the broad skepticism amongst events, such as the political disputes over Danes towards EU integration in general. freedom of speech and the press Since entering the European Community in surrounding the Cartoon Controversy and 1972, Denmark has held a critical position the Roj TV Affair, at the same time Turkey’s towards an ever closer union, which has stalled negotiation talks with the EU amid been expressed by, for instance, the choice freedom of expression issues, human rights to stand outside of EU’s common defense concerns, and the unsolved Cyprus dispute policies, the economic and monetary have not effectively moved forward since union, and juridical cooperation (Jung, 2010. As a result, the six-months Denmark 2010, p. 2). Particularly regarding political (GPoT) CENTER TRENDS POLITICAL GLOBAL presidency, preceding the Republic of

integration, Copenhagen is also careful not

to participate in EU policy decisions apology from the then Danish Prime without the support of the Danish people Minister Anders Fogh Rasmussen on the (Jung, 2010, p. 2). Secondly, the lack of moral offence caused by the controversy, support for Turkey’s EU accession amongst in which Muslims were misleadingly the Danes chiefly stems from the view that portrayed as people sympatric to terrorist Turkey is a Middle Eastern, rather than activity (Dirik, 2011). The controversy European, country – a skepticism that links peaked with Rasmussen’s response, in to the fierce public debate on migration in which he turned down a request to meet general, and Islam in particular, in with the countries’ ambassadors, saying it Denmark (Jung, 2008, p. 103), and to would violate the freedom of speech cultural stereotypes and concerns about principle (Jung, 2010, p. 5). Instead on the “the lack of democratic values” in Turkey’s acts of Turkey, Rasmussen sent a warning domestic sphere (Jung, 2010, p. 3). to Ankara, which stated, “[w]e are faced Furthermore, the perception has been that with some true matters of principle […] Turkey is moving further away from the EU Turkey as a society should realize that due to the country’s more active foreign there are certain condition[s] to fulfill if it policy in the Middle East; on the flip side, one day wants to become a member of the this perception has been portrayed in the European Union” (UPI, 2005). Danish media as a result of the EU’s rather uncaring policies towards Turkey (Herschend Christoffersen, 2010). Though The Roj TV Affair regarding Denmark-Turkey bilateral Another bilateral dispute came with the relations alone, in particularly two events Danish-Turkish controversy over closing in the last decade triggered a long-lasting the Copenhagen-based Roj TV, a Kurdish political dispute and negative image channel with believed links to the between the two countries. Kurdistan Workers’ Party (PKK), which is labeled as a terrorist organization by for instance Turkey and the EU. Emphasizing The Cartoon Controversy the channel’s alleged links to terrorist Denmark-Turkey relations became a activity, Turkey had long pushed for sensitive topic following the publication by Denmark to withdraw its broadcasting Denmark’s largest daily newspaper permit. The controversy peaked when Jyllandsposten of twelve now infamous Turkey’s Prime Minister Recep Tayyip caricatures of the Prophet Muhammad in Erdoğan refused to participate in a press September 2005. What started off as a conference because a Roj TV reporter was debate over freedom of speech and a present at the event. Following this sudden provocation of Muslims in incident, the US government interfered Denmark soon grew into a political crisis and called for Denmark to ban Roj TV, but insulting Muslim populations internatio- any action to do so from the Danish side nally (Jung, 2010, p. 5). Turkey, being one came only after it was announced in 2006 amongst other Muslim-majority countries, that former Prime Minister Rasmussen was spoke out to protest the publication and to be appointed NATO Secretary General. denounce the indignity carried out under The decision was due to Turkey’s warnings what was labeled “freedom of speech” that it would veto Rasmussen’s NATO

(Dirik, 2011). Together with eleven Muslim appointment because of his refusal to GLOBAL POLITICAL TRENDS CENTER (GPoT) states in the Middle East and elsewhere, apologize over the Cartoon Controversy Turkish leaders called for an official (Dirik, 2011). In a statement on the political

outrage related to the Roj TV dispute, the encouraged to pursue the reform process then Danish ambassador to Turkey Anders to strengthen democracy and the Christian Hoppe acknowledged, “the Roj TV protection of human rights” (EU, European affair is not something that helps to Commission, 2002, p. 139). For instance, improve relations” (Hoppe, quoted in Dirik, during the previous Danish EU presidency 2011). of 2002, “the Turkish issue” was especially The events of both the Roj TV Affair and tasking due to diverse preferences from the Cartoon Controversy rather exemplify the EU member states, and Turkey’s the ways in which Danish-Turkish relations problem to adhere to the EU standards of have been strained over issues to do with democracy, human rights, including mino- freedom of speech and the press, which rity rights, and the rule of law, all of which fall under the Copenhagen political criteria. falls under the Copenhagen political As argued by Dietrich Jung, professor at the criteria (Laursen & Laursen, 2003, p. 15). University of Southern Denmark, these Throughout the beginning of 2000, that is events showed that “Danish public opinion the more active period in Turkey’s acces- reacts extremely sensitive[ly] to any res- sion process, the EU Progress Reports were trictions of civil liberties”, in turn indicating largely seen as guidance for Turkey to some of the core obstacles for Turkey to make legal and political reforms in line adhere to the Copenhagen criteria (Jung, with European standards. Yet, the EU 2010, p. 5; Jung 2008, p. 113).To this end, Commission soon continued a less active

Denmark has reiterated that it is up to approach towards Turkey’s accession. Turkey to comply with the Copenhagen According to İlke Toygür, researcher at the criteria and with European standards Economic Development Foundation in before it can be allowed accession (Jung, Istanbul, as concerns rose over the lack of a 2010, p. 3). solution to the Cyprus issue, which led to the blocking of eight negotiation chapters, and adding the French politicians’ blocking Turkey’s EU Accession and the of four more chapters, the “ambiguous Danish Presidency messages of the European Commission embodied in the progress reports started At the same time, the accession process of to lose effectiveness” (Toygür, 2011). As Turkey to the EU has to a large degree recognized in the 2011 Progress Report on stagnated over the last decade. Stated in Turkey, “[t]he prevailing political climate, the EU Commission’s Progress Report from lacking an adequate dialogue […]; this 2002, the range of fundamental reforms atmosphere hampered the continuation of implemented in Turkey following its the reform process” (EU, European candidate status in 1999, such as the Commission, 2011, p. 5). constitutional reform in October 2001 and the New Civil Code and reform packages in However, today there is a strong interest 2002, showed the willingness of most from the EU-side to keep Turkey on the Turkish leaders to move closer towards the European track, not least due to Turkey’s Union’s standards (EU, European Commis- role as a critical trading partner with the sion, 2002, p. 137). Although these reforms EU and as a powerful player regionally (EU, were considered major leaps forward, the 2012). As a result, Danish Ministers have Commission emphasized that in order to promised to restart Turkey’s accession GLOBAL POLITICAL TRENDS CENTER (GPoT) overcome its obstacles adhering to the negotiations to the EU. Concerning the Copenhagen political criteria “Turkey is current status of Turkey’s accession

process is 13 out of the 35 acquis coming this decades-long problem” communautaire chapters that must align (Davutoğlu, quoted in Stanners, 2012). with the EU standards have been opened, Exactly how those expectations are likely 17 blocked, and only one, the Science and to play out in reality remains to be Research Chapter, temporarily closed determined in the period ahead, post-the (Today’s Zaman, 2012b). In May 2012, Danish presidency. Danish Foreign Minister Willy Søvndal said ”[t]here are many in the Danish parliament who support improving political ties with Turning the Page Towards New Turkey, meaning that we can take on the Positive Agenda role of ‘bridge builder’ in the final stage of As Denmark hands over the EU presidency our presidency” (Søvndal, quoted in to the Republic of Cyprus on July 1, the Stanners, 2012). As part of their Positive Agenda achieved by Denmark has enlargement priority of the Danish not led to rapid developments. Ankara has presidency, Danish ministers point to the previously stated that they will suspend importance to keep Turkey (alongside the negotiation talks and pause any Balkan states) on the EU track, which in dialogue with the EU during the Cyprus turn “will help these countries in their presidency in the second half of 2012 as efforts for reform” (Stanners, 2012). Turkey does not recognize the Greek On this background the EU Commission Cypriot government (Today’s Zaman, launched the Positive Agenda policy with 2012b). But the Positive Agenda was regards to Turkey’s candidacy, hoping to brought on to prevent a possible frozen- bring a new start to the stalled negotiation talks scenario; indeed Turkish Minister for process. According to Commissioner for EU Affairs and Chief Negotiator Egemen Enlargement and European Neighbour- Bağış later credited the Positive Agenda hood Policy Štefan Füle, “[t]he positive with the capacity to keep the relations agenda is a bridge, but not above or going and said it will help Turkey bypass around the accession negotiations. It is a potential future problems with the EU bridge leading towards them” (EU, 2012b). (Anadolu Agency, 2012). Although the Thus by the EU, the approach is considered Positive Agenda likely prevented the a chance to “establish the framework to worsening of the relations with the EU integrate a number of key aspects of our Commission, European Parliament political relationship and to approach them in analyst Ali Yurttagül rightly noted that “a positive spirit based on dialogue and Danish term presidency in the months openness” (EU, 2012b). Similarly, Danish before a Cypriot term presidency is not in a Minister for European Affairs Nicolai position to either re-enliven the accession Wammen, on his visit to Turkey in June talks or place new cornerstones in general 2012, said that he is pleased that the new, Turkish policies” (Yurttagül, 2012). positive context in terms of Turkey-EU Moreover, before handing over the relations has been achieved during the presidency to Cyprus, Denmark only had time of the Danish presidency (EU, 2012c). limited time for actual progress due to the On the Turkish side, Foreign Minister French elections in May 2012: prior to the Ahmet Davutoğlu has admitted that hopes elections, negotiations were stalled are high to overcome the period of frozen because of the Cyprus dispute and French talks: “We expect the Danish rotating opposition to the Turkish EU bid (Today’s GLOBAL POLITICAL TRENDS CENTER (GPoT) presidency to play a leading role in over- Zaman, 2012b). Ultimately, this gave a

narrow one month to reach change for 4

Denmark. Although there were hopes positive and constructive stances adopted about another chapter (the last one by the new Danish government must be opened in 2010) to open with Denmark in taken seriously by Ankara” (Yurttagül, the EU lead, the practical outcome of the 2012), and would be in the right place to positive agenda is likely to wait at least improve bilateral ties between the two until next year. Hence, the Danish countries. Even though no new chapters presidency can be credited ‘only’ with the were added to the open negotiation talks first positive development in Turkey’s between Turkey and the EU during the first accession process in over a decade. half of 2012, Denmark managed to turn the page towards a new, positive agenda at While the Danish presidency has en- both the regional and the bilateral level. couraged a more positive attitude on Turkey’s EU accession process, Danish --- leaders also stressed the steps still needed to be taken by Turkey. On his remarks on *SOFIA HAFDELL the Positive Agenda achievement towards the end of the Danish presidency, Minister Sofia Hafdell is a Project Officer at GPoT Wammen stated the need for future Center. She completed her Bachelor’s improvements from the Turkish side, not degree in International Relations at Malmö least with regards to “the importance that University in Sweden and has also studied the EU attaches to fundamental rights at University of Sydney in Australia and issues, freedom of expression and freedom Istanbul Kültür University in Turkey. of the press as well as minority rights” (EU, 2012c). He further noted that “as long as Currently, she is a Turkey correspondent the Cyprus conflict is not solved and Turkey for the Swedish Development Forum’s does not recognise Cyprus, there will (Föreningen för Utvecklingsfrågor) online continue to be obstacles along the way magazine and foreign correspondent blog. before the enlargement negotiations can get the momentum they deserve” (EU, 2012c). GPoT Brief no. 4 | July 2012 Even so, the efforts of the Danish www.gpotcenter.org presidency has signified a symbolic step in the desire to keep Turkey on the EU track, at the same time contributing to improved bilateral ties. While there may be a long way ahead before Turkey fulfills the Copenhagen political criteria and grants an upgraded EU status, the Danish presidency has been able to show the willingness from the EU side to continue cooperation and an open, frank dialogue. At the same time, the EU presidency provided a forum for Denmark to demonstrate a more politically positive attitude towards Turkey in light of earlier negative developments such as the GLOBAL POLITICAL TRENDS CENTER (GPoT) events of the Cartoon Controversy and the

Roj TV Affair. As noted by Yurttagül, “the 5

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