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December 2008

ISTITUTO AFFARI INTERNAZIONALI

Quaderni IAI

13

There is no EU-wide debate on EU-Turkey rela-

tions, but rather a set of overlapping yet distinct

European debates reflecting the different actors,

interests and ideas across the European mosaic.

Talking Turkey II unpacks this complex reality by

analysing the positions of national stakeholders across the EU, the reactions of Turkish stakehol- ders to these EU debates, as well as the influen- ce of the US in shaping European debates on

Turkey.The underlying aim of this research is to

develop an EU Communication Strategy for Tur- key. Based upon the findings of this project, a

Communication Strategy ought to be differen-

tiated and dynamic. It must also engage in a ge- nuine two-way communication with its interlo- cutors. It is only by Talking Turkey and making such talk a two-way street that Turkey's Europe- an course may be strengthened in the long-term.

TALKING TURKEY

IN EUROPE:

TOWARDS A DIFFERENTIATED

COMMUNICATION STRATEGY

edited by Nathalie Tocci

Talking Turkey II

IAI-TEPAV Project

English

Series

Istituto Affari Internazionali

00186 Roma - Via Angelo Brunetti, 9

Tel. 39-6-3224360 Fax 39-6-3224363

http://www.iai.it - e-mail: iai@iai.it

Per ordini:iai_library@iai.it

ISTITUTO AFFARI INTERNAZIONALI

Quaderni IAI

TALKING TURKEY

IN EUROPE:

TOWARDS A DIFFERENTIATED

COMMUNICATION STRATEGY

edited by Nathalie Tocci

Talking Turkey II

IAI-TEPAV Project

December 2008

13

English

Series

IAI 2 This project and publication has been made possible with the generous support of the Union of Chambers and Commodity Exchanges of Turkey, (TOBB), the Open Society Institute Assistance Foundation - Turkey (OSIAF- Turkey), the Compagnia di San Paolo and The German Marshall

Fund of the United States (GMF-US).

Quaderni IAI

Direzione: Natalino Ronzitti

Redazione: Sandra Passariello

Istituto Affari Internazionali

00186 Roma - Via Angelo Brunetti, 9

Tel. 39-6-3224360 Fax 39-6-3224363

http://www.iai.it - e-mailiai@iai.it

Per ordini: iai_library@iai.it

© Istituto Affari Internazionali

Finito di stampare nel mese di dicembre 2008

dalla Tipografia Città Nuova della P.A.M.O.M.via San Romano in Garfagnana, 23 - 00148 Roma

Telefono & fax 06.65.30.467

e-mail: segr.tipografia @cittanuova.it 3

TABLE OF CONTENTS

Introduction, Nathalie Tocci

1. ÒMamma Li Turchi!Ó: Just An Old Italian Saying, Emiliano Alessandri and

Ebru Canan

2. Polish Stakeholders in the EU-Turkey Debate, Adam Balcer

3. Austrian Stakeholders in the EU-Turkey Debate, Cengiz GŸnay

4. Greek Stakeholders in the EU-Turkey Debate, Kostas Ifantis and Eleni

Fotiou

5. Danish Stakeholders in the EU-Turkey Debate, Dietrich Jung

6. Marcus AureliusÕ Foot: Looking for TurkeyÕs Project in the EU. An

Interpretation of the French Debate on Turkey, Anne-Marie Le Gloannec

7. Wait-and-See Attitudes of German Stakeholders Towards EU-Turkey

Relations, Barbara Lippert

8. UK Stakeholders in the EU-Turkey Debate, Richard Whitman

9. Attitudes of Key Stakeholders in Turkey Towards EU-Turkey Relations:

Consensual Discord Or Contentious Accord? Asli Toksabay Esen and H.

Tolga BšlŸkbasüõ 5

11 41
59
85
103
119
135
161
175

10. The Effect of US Policy in the Middle East on EU-Turkey

Relations, Henri J. Barkey

11. From Advocate to Stakeholder: US Policy Towards Turkey

and Implications for EU-Turkey Relations, Ian O. Lesser

12. The Impact of Transatlantic Relations on the European

Debate on Turkey, Hanna Ojanen

13. A European Communication Strategy on Turkey, Nathalie

Tocci and Donatella Cugliandro

Notes on Contributors

4 199
215
231
249
279
5

INTRODUCTION

Nathalie Tocci

In 2007 IAI and TEPAV launched a network of European analysts assessing the public debates in several member states on EU-Turkey relations.The net- work analysed how perceptions and misperceptions shape European public debates on conditionality and impact in EU-Turkey relations.Beyond the cre- ation of the network "Talking Turkey", the project organized a set of events in Rome, Ankara, at the European Parliament in Brussels, as well as spin-off meetings in Washington, London and Helsinki to present its first publication: Tocci, N. (2007) (ed.) Conditionality, Impact and Prejudice in EU-Turkey Relations, Quaderno IAI (available in print and freely downloadable from:

1. Opening the Member State Box: European Stakeholders in the Turkey

Question

This first cursory analysis revealed that member state positions not only vary widely, but also and most saliently, that within each member state dif- ferent actors hold different views for different reasons on the Turkey ques- tion. In other words,Turkey is "talked about" in different ways both within and across EU member states, and the reasons for this are rooted in a diverse and dynamic set of interests and ideas. Having scratched the surface of this complex reality, in its second stage our project has adopted a con- stituency-based approach. The first phase provided valuable findings

Nathalie Tocci

6 regarding the specific themes raised in the context of the EU-Turkey debate in different member states (see Table 1). Yet gaining a deeper understand- ing of which actor within which member state frames the debate on Turkey by focusing on which specific theme is of the essence. Table 1 - Core topics regarding Turkey's EU membership as revealed by Talking

Turkey I

In order to communicate Turkey to the EU and the EU to Turkey, it is therefore necessary to identify and analyse far more clearly and carefully the positions of the stakeholders within different member states, concen- trating on the following set of questions: - Whoare the principal stakeholders within each member state on the "Turkey question"? Which actors influence the state's stance on EU-Turkey relations? Stakeholders include, where relevant, political parties, state insti- tutions, the business community, the media, civil society actors and interest groups, academia, key personalities in the arts and entertainment, as well as "public opinion" at large. - What is their position on Turkey? In this respect, the analysis focuses on stakeholder views and objectives regarding EU-Turkey relations and

Turkey's accession process.

- Whyare these views and positions held? What are the underlying inter- ests and beliefs underpinning these stakeholder positions, are these related to specific Turkey-related concerns (e.g., specific business interests in

Introduction

Turkey) or are they instrumental to other objectives and beliefs (e.g., pro- moting a particular understanding of the EU, its institutional functioning and identity)? - Howdo such stakeholders influence the overall position of each member state on the Turkey question? How influential are these actors, what kind of alliances do or might they forge, what is their overall influence within national debates? - Whatare the implications for the development of a differentiated and dynamic Communication Strategy? Given national stakeholders, their views, their underlying interests and their influence over national policy- making, what does this entail for a Communication Strategy that resonates within each member state? This set of questions is tackled by analysing eight member states: Austria, Denmark, France, Germany, Greece, Italy, Poland and the UK. Of course, this list is far from comprehensive and other member states which play as critical a role in shaping European public debates on Turkey were exclud- ed.This selection has been driven by the priority of considering cases which exhibit relatively negative (e.g., Austria, France), positive (Italy, UK, Poland) as well as mixed (Denmark, Germany and Greece) attitudes towards Turkey's accession process.This selection criteria was used in order to ensure as broad a representation as possible of the different actors, actions and arguments raised by Europeans in relation to Turkey. At the same time we wanted to keep the number of member state studies limited in number, in order for the final chapter to do justice to all authors. Finally, we include a study on Turkey. While also analysing the positions, interests and beliefs of Turkish stakeholders in EU-Turkey relations, the focus of this chapter is somewhat different. The objective here is not that of analysing how Turkish stakeholders shape the European debate on Turkey, but rather to examine how Turkish actors have reacted to European debates on Turkey, and what impact this has had on the evolution of EU- Turkey relations as well as on Turkey's process of EU-driven reform.

2. The Transatlantic Dimension

In addition to this set of questions, Talking Turkey II broadens the scope of analysis beyond the EU. As evident in the results from Talking Turkey I, the positions of different member states and stakeholders within them are cru- 7

Nathalie Tocci

8 cially affected by their wider understanding of Turkey's role in its region and in the world.As such a second branch of our research delves into the "Impact of Global Trends" on European stakeholders regarding the Turkey question. Arguably, the most important source of external influence on European stakeholders' wider understanding of Turkey and its role in the world is the United States. US policies and positions have shaped European views, inter- ests and objectives regarding Turkey by operating on three different levels: - By interacting directly with Turkey and engaging Ankara in debate about its EU course; - By influencing the positions of the EU, its member states and Euro-

Atlantic institutions on the Turkey question;

- By shaping the overall regional and international milieu in which EU- Turkey relations unfold, including most saliently the situation in Iraq and the Middle East. More specifically, US policies towards Turkey, the EU and the wider Middle East have different impacts on different stakeholders within the EU. During periods of intense US pressure on European capitals to launch and proceed with Turkey's accession process, such as for example in the run up to European Council meetings in 1999 or 2002, US lobbying efforts may have increased the propensity of some member states to pro- ceed with Turkey's accession process (e.g., the UK and Italy), while back- firing with others (e.g., France). Yet the overall effect of US influence remains unclear.The evolution of US-Turkey, US-EU and US-Middle East relations affects the views of different European actors in ways that remain, to date, only vaguely and intuitively understood. Moreover, and far more interestingly for the purpose of this study, the effects of American policies have been differentiated both over time and across different actors in Europe. While some European stakeholders may be positively affected by some American policies, quite the opposite may be true for others. Understanding the nature of these differentiated impacts in time and place is another key question on our agenda. We have thus added this "Transatlantic leg" to our work by delving into the following three questions: - Howdo US-Turkey relations, and their evolution in the political, economic and security domains, affect the views of European stakeholders on the

Turkey question?

Introduction

- Howdo Transatlantic relations - bilateral and multilateral - affect the views of European stakeholders on the Turkey question? - Howdo US policies in Turkey's neighbourhood influence the views of

European stakeholders on the Turkey question?

3. A European Communication Strategy on Turkey

We conclude this project and study with a chapter dedicated to "An EU Communication Strategy on Turkey". The leitmotif running through this project, encapsulated in its final chapter, is that a European Communication Strategy on Turkey ought to be differentiated and dynam- ic in order for it to be effective. It must be a Strategy that targets the right audience, with the right message, delivered by the right "messenger", at the right time. It must also be a dynamic Strategy, having inbuilt within it the potential to react to specific "short-circuits" and trigger-points that may inflame and monopolize public debates in the years ahead. For it to be credible, moreover, the aim of such a Strategy should not blindly promote Turkey's accession process. The participants in this proj- ect and this author are known sympathizers or supporters of Turkey's EU membership. Precisely because of this, we firmly believe that shaping a Communication Strategy as an explicit promotion campaign for Turkey would, in the long-run, do no justice to Turkey's membership ambitions. Arguments used and abused in public debate may at times be rife with misperceptions or outright prejudices. Yet even when they are, these debates often touch upon very real concerns, beliefs and interests, which must be engaged with and not simply dismissed. It is only by engaging with these debates, no matter how unpalatable they may be, that European debates on Turkey can be informed, enriched and influenced. It is only by listening, empathizing and only then reacting that Turkey's accession course can be redirected to a healthier and more constructive path. It is only by Talking Turkey and making such talk a two-way street that Turkey's European course may be strengthened in the long-term. 9 10 Italy's traditionally positive attitude towards Turkey's entry into the European Union is unlikely to reverse in the foreseeable future. The prospect of Turkey's membership has received,to date,wide bipartisan sup-quotesdbs_dbs25.pdfusesText_31

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