Challenges of Democracy in the European Union and its Neighbors Aylin Ünver Noi and Sasha Toperich Editors Center for Transatlantic Relations Paul H. Nitze School of Advanced International Studies Johns Hopkins University Aylin Ünver Noi and Sasha Toperich, eds. Challenges of Democracy in the European Union and its Neighbors Washington, DC: Center for Transatlantic Relations, 2016. © Center for Transatlantic Relations, 2016 Center for Transatlantic Relations The Paul H. Nitze School of Advanced International Studies The Johns Hopkins University 1717 Massachusetts Ave., NW, Suite 525 Washington, DC 20036 Tel: (202) 663-5880 Fax: (202) 663-5879 Email: [email protected] http://transatlantic.sais-jhu.edu ISBN 13: 978-0-9907720-6 Cover image: Shutterstock.com Contents Preface . .v Acknowledgements . .vii List of Abbreviations . .ix Tables and Figures . .xi Introduction . .xiii Aylin Ünver Noi and Sasha Toperich Part I Challenges Of Democracy In The European Union Chapter 1 . .3 The Conceptual Challenge to Transnational Democracy in the European Union Mario Telò Chapter 2 . .25 Racism in Europe: A Challenge for Democracy Leila Hadj-Abdou Part II Challenges Of Democracy In The Aspirant Countries Chapter 3 . .45 Challenges of Democracy in Turkey: Europeanization, Modernization and Securitization Revisited Aylin Ünver Noi Chapter 4 . .75 Challenges of Democracy in Serbia Daniel Serwer Chapter 5 . .93 Challenges of Democracy in Bosnia and Herzegovina Sasha Toperich and Mak Kamenica iv CHALLENGES OF DEMOCRACY IN THE EUROPEAN UNION AND ITS NEIGHBORS Part III Challenges of Democracy in the Neighborhood of the European Union Chapter 6 . .109 Rethinking the European Union’s Neighborhood Policy Michael Leigh Chapter 7 . .123 Challenges of Democracy in the Caucasus Alex Sokolowski Chapter 8 . .145 Challenges of Democracy: Corruption Shaazka Beyerle Part IV How Effective Is the EU’s Democracy Promotion? Chapter 9 . .165 Constructing the EU as a Global Actor: A Critical Analysis of European Democracy Promotion Münevver Cebeci Chapter 10 . .183 Human Rights and Democracy Promotion: EU Blows on an Uncertain Trumpet Geoffrey Harris Appendix: Conference Agenda . .205 About the Authors . .209 Preface his timely volume explores challenges of democracy in the EU and Tchallenges of democracy in EU aspirant countries and their neigh- bors. Authors take a close look at the effect of EU democracy-promo- tion efforts on the EU's international role and normative power. A quarter century ago, the Soviet Union dissolved and the Cold War ended. Since then, and particularly after the Balkan wars of the 1990s, a generalized sense took hold in Western capitals that the natu- ral state of the post-Cold War era would be European peace, stability and inexorable expansion of Europe's democratic space. Central and southeast European countries joined the EU and NATO to extend the spaces of Europe where democracy and market economies prevailed and war simply did not happen. The EU created a variety of means to associate neighboring countries not yet willing or able to join its structures. In the West, consensus grew that the post-Cold War security order in Europe was stable; that the magnetic qualities of life within the European Union would eventually lead eastern and southeastern European neighbors to align themselves to its standards; and that Russia, while still distant, could, with Western support, modernize and eventually arrange itself within Europe’s evolving order. History, it turns out, did not end with the Cold War. Walls came down, but throughout the unsettled spaces of wider Europe, that vast area beyond the EU, other walls remained—historical animosities, eth- nic hatreds, unresolved borders, and struggles for power and control. Meanwhile, a dizzying array of domestic and foreign challenges has exposed fault lines among EU member states themselves in a genera- tion. Such divisions are nothing new, but they have taken on a new quality as a surge of refugees, terrorist fears, high youth unemploy- ment, and uneven growth give life to popular anxieties and illiberal responses that are challenging some of the EU’s most fundamental premises and structures. v vi CHALLENGES OF DEMOCRACY IN THE EUROPEAN UNION AND ITS NEIGHBORS The vision of a Europe, whole and free, is being tested today by the realities of a Europe that is fractured and anxious, which leaves Europe’s west with less confidence and readiness to reach out in any significant way to Europe’s east. Our authors tackle these challenges and propose ways forward. We are grateful to them, and to our editors, Aylin Ünver Noi and Sasha Toperich. Daniel S. Hamilton Austrian Marshall Plan Foundation Professor Executive Director Center for Transatlantic Relations Acknowledgements his book is based on the proceedings of a conference held on TMarch 30, 2015, at the Johns Hopkins University SAIS Center for Transatlantic relations. Some of the contributors to this book partici- pated in the conference, and their conference papers were updated and revised according to changes that have since occurred in the region. Other authors also joined us in an effort to analyze and present addi- tional perspectives on the challenges of democracy in the European Union and its Neighbors. We would like to express our gratitude to all our SAIS colleagues for their valuable support in organizing the confer- ence and to the authors for their hard work on this project. We wish to express special thanks to our editor for the careful atten- tion given to the manuscript. Our special thanks go to Andy Mullins for his dedication to timely and incisive edits in the last phase of production. We are grateful to Peggy Irvine for working out the publishing details of this and many other CTR publications. The opinions expressed in the following essays are the authors’ alone, and do not necessarily represent the views of any government or institutions, or those of their fellow contributors. Aylin Ünver Noi Non-Resident Fellow, Center for Transatlantic Relations SAIS Sasha Toperich Senior Fellow; Center for Transatlantic Relations SAIS vii Abbreviations AA Association Agreement AKP Justice and Development Party (Adalet ve Kalkınma Partisi) ANAP Motherland Party (Anavatan Partisi) APT Azerbaijan Partnership for Transparency ASEAN Association of Southeast Asian Nations BiH Bosnia and Herzegovina BMENA Broader Middle East and North Africa Initiative CCE Center for Civic Engagement CEECs Central and Eastern European Countries CeSID Center for Free Elections and Democracy CoE Council of Europe DAD Democracy Assistance Dialogue DCFTA Deep and Comprehensive Free Trade Agreement DSP Democratic Left Part (Demokrat Sol Parti) EaP Eastern Partnership EC European Community ECB European Central Bank ECHR European Convention of Human Rights EDL English Defence League EEAS European External Action Service EED European Endowment for Democracy EFP European Foreign Policy EFPR European Foreign Policy Research EIDHR The European Instrument for Democracy and Human Rights ENAR European Network Against Racism ENP European Neighborhood Policy EP European Parliament EU European Union FPÖ Austrian Freedom Party GDP Gross Domestic Product GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit GmbH GYLA Georgian Young Lawyers Association IC International Community ICTY International Criminal Tribunal for the former Yugoslavia IEE/ULB Institut d’Etudes Europeennes ix x CHALLENGES OF DEMOCRACY IN THE EUROPEAN UNION AND ITS NEIGHBORS IOM International Organization of Migration ISFED International Society for Fair Elections and Democracy IMF International Monetary Fund IREX International Research & Exchanges Board MENA Middle East and North Africa MEP Member of the European Parliament MERCOSUR Common Market of the South (Latin America) MHP Nationalist Action Party (Milliyetçi Hareket Partisi) NATO North Atlantic Treaty Organization NDI National Democratic Institute NGNI New Generation New Initiative NGO Non Governmental Organization NPE Normative Power Europe OHR Office of High Representative OECD Organization for Economic Cooperation and Development OGP Open Government Partnership OSCE Organization for Security and Cooperation in Europe PEGIDA Patriotic Europeans against the Islamisation of the Occident PIC Peace Implementation Council PMMG Public Movement for Multinational Georgia RCI Rational Choice Institutionalism SDC Swiss Agency for Development and Cooperation SFRJ Socialist Republic of Yugoslavia SEDA Social Economic Development Agency SI Sociological Institutionalism SIGMA Support for Improvement in Governance and Management SVP Swiss People’s Party TESEV Turkish Economic and Social Studies Foundation TEU Treaty on European Union TFEU Treaty on the Functioning of the European Union TI Transparency International UDHR Universal Declaration of Human Rights UK United Kingdom UN United Nations UNAG United Nations Association of Georgia UNM United National Movement US United States USAID United States Agency for International Development USSR The Union of Soviet Socialist Republics WB The World Bank Group WW2 Second World War Figures and Tables Table 3-1. Reform Packages 2001–2004 . .53 Table 3-2. Rates of Support to the Turkey’s EU Membership . .54 among the Turkish Public Figure 8-1. Corruption Perception Index 2015 . .148 xi Introduction Aylin Ünver Noi and Sasha Toperich he classical theory of democracy defines democracy as “the will of Tthe people” and “the common good.”1 Accordingly, “the demo- cratic method is that institutional arrangement for arriving