Week 9: Pandora`s Box: The Balkans Hale, Turkish Foreign Policy
Transcription
Week 9: Pandora`s Box: The Balkans Hale, Turkish Foreign Policy
Week 9: Pandora's Box: The Balkans ℘ Hale, Turkish Foreign Policy, pp. 260-266. ℘ İlhan Uzgel, "The Balkans: Turkey's Stabilizing Role," in Rubin and Kirişçi (2001), pp. 49-69. ℘ Şule Kut, "Turkey in the Post-Communist Balkans: Between Activism and Self-Restraint," Turkish Review of Balkan Studies, Annual 1996-1997 (3). ℘ Kramer, A Changing Turkey, pp. 146-162. ~ti~ r... - ~ ~ u .c ~ .c - ,5~ ,-§c:~ ~ -a = ;uc --~ cu t/} ~rI}.c " ..,-~ cu = 9 ... .a ~t/} cua ~~ ..~ -.a rl}C~ ~c:~ ...~e ;J ~~ at/} ~Foo~ i~ ~ =cu .=;" ' >->. 0' ...cu --~ ~E5 ~ ~ O~< , III III t/) I ~" II! U III III ~~ .~ r" 0 III ~,>'-'.;:: ~ ~ ~ oS qI oS oS oS:E ~ .c bO.b ~~t/) IIIqlt/) ~ oS ~ ~ ~ ~ -= oS '1j "'" ...'Q:j ~ .S ~ ~ ~ ~I ~ ...~.?;~> -oS .~ ~0 ~UCoIII'1j III, III '!J ~ ~ 8. := -:5 :3 0 .J:. ~ .J:. J:. ~""U>"""", ~ ~ ~ ~] ~.~ 0 ~ y Y ~I III ::. ~ 0.' 0 .J:. 0 t .Ii ,t/) .= >, ~1II'Q:j~:= ~ III .~ U 0 ~ ~:= 8. ~u ~ '" 8. 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F-.~"'.-U.D 0 '0 ~ ~-a~t~~ ~ ~UU~~~"'O~I)O~'O ~.~..::!.~~.~t~ .s.~ > ~ '-'~~ U 0 g ~-=o:= v";j~ ~~'V~~~""'uUU u ~ t ~ > ~ -", ~;:; o.g ~.> v .-'" ~ '0 0.:= .s ~.5 S! ~vv~"",-~.~""UI)O 0 t' .~ ~ ~ i:J' ~ .v .D ££.~ u~~...", uns""""~ons ~ ~ >- ;j ~ ns~O~d~ \+" E '" ::g a. ~ s ~ :; I- ;?; '" -= ~ ... I"~ FSES JO3777-16/2/2005-KREETHI-137436 Sollrh Europea" SclCiery 6- Po/iriL"S I~ ~~.~~~- \"0/. /0, No. /. March 2005, pp.4J--S4 Bahar Rumelili Drawing on interviews with Greekand Turkish policymakersand civil society ieaders,this article analyzes how the context provided by Turkey's EU members.iip ckndidacy has facilitated and strengthened Greek- Turkish cooperation. I argue that Turkey's EU membershipcandidacy hasempoweredthe domesticactorsin favour of promoting GreekTurkish coopl'ration. and allowed them to usetheEU to legitimize their u,,"pera!;vepolicies Olld activitie:-. Thereby,sincethe Helsinki decisions,Greek- Turkishcoope:ation £zas gained an t.U dimension, which hasmade a reversalin bilateral relationsmuch lesslikely. KeYl-vords:Europeanization; European Union; Conflict Resolution; Greek- Turkish Relations; Civil Society In addition to democratization, human rights, civil society, md civil-military rt:lations, another area where Turki5h :,.~.Iiti,=~i~ undergoing fundamental change is ~xternal relations. This change. evident in Turkey's relations ,vith most of its neighbours, has manifested itself most clearly in the caseof Greek-Yllrkish relations. Since 1999, these two historic rivals, which have come to the brink of war on numerous occasions in the past, have started a seemingly sustainable period of cooperation. Drawing on recent interviews with political and civil society leaders,)this article discussesthe ways in which the context provided by Turkey's EU membership candidacy has facilitated and helped consolidate Greek- Turkish cooperation. Various scholars have put forth alternative explanations of how the two arch-rivals of the past, could all of a sudden switch to cooperative relations. Some underscore the fact that the Greek- Turkish rapprochement wasbecoming increasingly necessaryin the new international context; others privilege the increasing civil society activity since 1996and the personal leadershipof the foreign ministers, Ismail Cern and GeorgePapandreou;and yetothers underline the importance of the exogenousshock provided by the earthquakes IHeraclides 2002; (;undogdu 2001; Siegi2002). 131-11147-11'priml,ISSN 17439(,12 (unlin.,) 11)1: 11J.10141}/II"OI4740Snl)(J3794f1 It; 21105Taylor & Francis Group LId ~ FSES103777- I 6/2/200S-KREETHI-1 37436 44 B. Rumelili My explanation underscores the role played by the EU in facilitating and consolidating Greek-Turkish cooperation. There have always been political and civil society leaders in both countries who realized the futility of the ongoing conflicts, but their cooperative efforts alwaysstumbled on new crises and were disrupted before have had a chance to flourish. In this regard, Turkey's EU membership candidacy has been , following the 1999 earthquakes. As noted by one of my interviewees, after 1999, 'Greek- Turkish relations gained an EU dimension' (interviewee #1, my emphasis). The explicit link made by the Helsinki European Council betweenTurkey's progress on EU merr.bership and the peaceful resolution of Greek-Turkish disputes has given official and private efforts to promote Greek-Turkish cooperation significance, urgency, and most importantly, legitimacy. In addition, Turkey's EU membership candidacy lias unleashed funding to civil society efforts directed toward GreekTurkish ..,)operation. In higt.Jighting the role of the EU in this context, my intention is not to downplay the will and agency of actors in Turkey and Greece. The research presented in this article shows that the effectiveness of the EU in promoting Greek-Turkish cooperation has stemmed mostly, not from its direct interventions, but from the successof various domestic actors in using: the EU as a symbol and as a legitimating handle.:! The function of the EU has been to serve as a symbol around which domestic actors have chosen to mobilize coalitions, legitimate new policies, and disempower their critics. This blends well with Tocci's argument in this issue that the change in Turkey cannot be solely explained by the external inducement provided by the EU membership candidacy and that one has to take into account domestic actors and developments. Therefore, in terms of the alternative understandings of Europeanization discussed by Diez et al. in the introduction to this issue, the change in Greek- Turkish relations cannot be reduced to policy Europeanization; that is, Turkey's making peace with Greece in order to fulfii the EU's membership conditions. My interview findings clearly indicate that the change within Turkey towards relations with Greece reflects elements of both political and societal Europeanization. Turkey's EU membership candidacy has empowered the domestic actors in favour of Greek-Turkish cooperation and allowed them to use the EU to legitimize cooperative policies and activities. In addition, the EU has become a reference point in the construction of political identities, such that being for Turkey's membership in the EU has become the common denominator around which political and civil society actors have coalesced. The EU and the Changing Context of Greek- Turkish Cooperation There have always been numerous courageous politicians, businessmen, intellectuals, and activists on both sides of the Aegean,who have realized the futility of the ongoing Greek-1urkish conflicts and strived to improve the relations between the two ,-;ocieties.For example, following the two crises over the continental shelf in 1976 and ", FSES IO3777-16/2/200S-KREETHI-137436 South European Society & Politics 45 1987 that brought Turkey and Greece to the brink of war, the leaders of the two countries (Karamanlis and Ecevit in 1978,and Papandreouand Ozal in 1987)initiated dialogue, signed memoranda of understanding on bilateral disputes, and undertook some reciprocal concessions (Tsakaloyannis 1980; Pridham )991). Starting in the early __\980 s. Greek and Turkish singers and artists be9;anorganizing joint concerts and cultQral activities (Livaneli 2004), and some Greek an Tur 's, munlclpa lties starte to cooperate about tourism (Toksoz 2004). In 1987, the Turkey-Greece Friendship Association (TGFA) was established (Aydmta~ba~ 2004). In the 1990 s, the Turkish History Foundation brought critical Greek and Turkish historians together in projects aiming to purge chauvinistic content out of schoolbooks (Silier 2004). However, these official and civil cooperation efforts have always been disrupted by c..'isesbetween Greece and Turkey. The 'Davos Process' initiated by Turgut Ozal and Andreas Papandreou in 1988 quickly crumbled under the uncooperative attitude of the public opinion and the press,and came under severeattack from the opposition for abandoning so-called national causes (Pridham 1991; Kiri~ci and <;:arkoglu2003). From 1992 onwards, with the changing political climate in Greeceafter the elections, Interest in the Greek-Turkish Friendship committee waned and the TGFA could no longer find anyone to address itself to (AydJnta~ba~2004,pp. 152-3). In reaction to Ocalan's capture on his way out of the Greek embassyin Kenya, Turkish businessmen unilaterally cancelled the scheduled meeting of the 1urkish-Greek Business Council and 'even the most pro-Greek business personalities felt the need to make anti-Greek statements' (Ozel 2004, p.167). After the Ocalan affair, Greek women also cancelled their trip to Istanbul only two days before the scheduled meeting of WINPEACE (WOll1en for International Peace)because of fear that they would not be safe in I!'tanbul (interview #8). The twin earthquakes of Izrnit and Athens respectively in August and September 19~Yare said to have changed Greek- Turkish relations forever (Gtindogdu 2001; Siegl 2002), First, the suffering of the Turkish people, broadcast around the ",-'urld,brought out feelings of empathy and solidarity among the Greeks,and vice versa during the Athens earthquake in September. Greek and Turkish rescue teams, doctors, and humanitarian workers got the chance to work together in a highly emotional setting. Before the earthquakes, ismail Cern, Turkish Foreign Minister at the time, had sent a letter to his Greek counterpart, George Papandreou, inviting him to cooperate with Turkey on terrorism. Papandreou had replied positively and also suggested further avenues of cooperation. FoUowing the earthquakes, the two leaders initiated widescale cooperation on various secondary issues,able to claim that they were also acting on a 'popular mandate'. During the Helsinki European Council in 1999, in line with the prevailing positive spirit, Greecechose not to use its veto against the EU's decision to grant Turkey candidacy status. With the Helsinki Council decisions, Turkey, like all other candidate states, entered into a commitment to resolve any of its outstanding border disputes; and failing this, to bring these disputes before the International Court of Justice. This decision linked progress on Turkey's EU membership bid \vith the resolution of its border disputes with Greece. -' .137436 ~ FSESIO3777-16/2/200S-KREETHI. 46 B. Rume/i/i Since 1999,many things have changed in Greek- Turkish relations (Heraclides 2002; Keridis 2001) The two states agreed to cooperate on various issues. such as tourism promotion, the fight against terrorism, removal of landmines along the border, illegal migration, incentives for trade and mutual investment, environmental and health the two states have agreed to reduce and exchange information about military exercises. Most importantly, Turkey's EU membership has become the focal point of bilateral cooperation. Greece,which had persistently vetoed any advances in relations between Turkey and the EU, suddenly became the most ardent supporter of Turkey's 01 EU membership (Rumelili 2004). Despite changes of government in Turkey and Greece, bilateral relations were never made an issue during the election campaigns. Also upon taking office, each new government committed itself to maintaining positive relations between Turkey and Greece. When George Papandreou paid an official visit to Turkey in January 2000, it was the first such visit by a Greek Foreign Minister in 38 years. Since then, official visits have become routine and the officials of the two countries have not missed an opportunity to meet on the sidelines of various NATO, EU, and UN meetings. Progresstowards the resolution of bilateral disputes has been slow; since 2002, over 30 rounds of secret negotiations have taken place at the technical level on the Aegean border disputes between the two foreign ministries, Reportedly, however, the two sides are very close to an agreement. Transnational contacts between the two countries have multiplied, both in form and in number. In the last two years,the annual bilateral trade between Turkey and Greece has exceeded on~ billion dollars. The number of people visiting Turkey from Greece and vice versa has increased tremendously. Many cultural activities, festivals, concerts, and joint theatre productions have been organized. Numerous youth exchangeshave taken place (Banias 2004). New organization5 directed at Greek- Turkish cooperation have heen establisht:d, the activities of existing organi7.ationshave been diversified, and 'farious j'Jint rrujects between Greek and Turkish NGOs have t.een iniliated. For example, the Lozan Miibadilleri Vakfi (the Foundation for Lausanne Immigrants) was founded in 200 1 in Turkey to conduct research into the history and culture of the Greek and Turkish people subjected to compulsory population exchange asagreed to by Turkey and Greece in the 1923 Lausanne Treaty. Recently, this organization has begun a collaborative project with the ResearchCentre for Minority Groups (KEMO) in Greece. What is also notable in this growing cooperation is that the joint activities are no longer the domain of courageous individuals. but are increasingly brought out into the ~treets. WINPEACE, for example, takes women from three villages on the Turkish Aegean coast to the women's cooperative in the Greek island of Lesvos during the olive-picking seasonto teach them about agro-tourism (Oral 2004). In addition, civil soLieL}f activities after 1999 have become more specific. issue oriented. and profes.sional. Activists have become more professionally organized in order to qualify li)r fund~ granted to civil society activities from the EU or other internationai orgilnizations. . ", .. . ~ FSES lO3777-16/2/2005-KREETHI-137436 South European Society 6- Politics 47 This is not to imply that moments of tension between Greeceand Turkey have not occurred since 1999. For example, the issue of Cyprus' EU membership has sporadically generated threatening and provocative statements-Turkey threatening the division of the island and Greece threatening to block Turkish membership in the EU.In May and June2003. allegations that Turkish fighter jets had harassed Greekjets - countries. '..\{hatis significant, however, is how such moments of ten~ion have been handled by the government leaders, media, and civil societies in Turkey and Greece. Where the gOvernments have fueled the tensions, the media have refrained from jumping on the 'crisis bandwagon,' and when the media published provocative stories, the leaders ~ave defused the situation (cf. 6zgiine~ and Terzis, 2000). And none of these incidents have ruptured the relations established between the p~oples, be doey festivals, civil society meetings, tourism, or trade agreements. The next section of this article draws on interviews with Greek and Turkish policymakers and civil society leaders to demonstrate what the EU has meant j")r domesticactors promoting change. The functions of the EU in Greek-Turkish Cooperation According to Greek and lurkish policymakers and civil society leaders, the EU has facilitated and promoted Greek-Turkish cooperation in two main ways. First, the EU, as an economic power, has provided funding for many civil society activities. Second, the EU, a~ a symbol and a model, has legitimized the pursuit of Greek-Turkish cooperation both at the governmentaJ and the civil society level. The EU symbol and model has served to unite different strands of the state and civil society eli~es. By performing these functions, the EU has supported Greek and Turkish policymakers and civil society leaders in their efforts to promote and consolidate Greek-Turkish cooperation. The EU as a Furlder Starting in the late 1990 s, some NGOs in Turkey and Greecehave begun to usevarious EU funds for activities related to Greek-Turkish cooperation and dialogue. Recently. however. the European Commission has introduced two forms of funding that are directed specifically at Greek- Turkish civic cooperation. The first is the Civil Society Development Programme, introduced in 2002. with a budget of 8 million euros for t\VO years to promote Greek- Turkish civic dialogue at the grassroots and local level. and to enhance the capacity of NGOs in Turkey (www.stgp.org). The Greek-Turkish Civic Dialogue Program first granted three macro-grants to organizations already active in Greek-Turkish issues to run demonstration/cooperation projects. The European Centre for Common Ground has brought media professionals and students from Greeceand Turkey to various meetings. and coordinated the joint production of radio and television documentaries. WINPEACE has used the fund for meetings, FSES IO3777-16/2/2005-KREETHI-137436 48 B. Rumelili youth camps, the agro-tourism project, and peace education. AEGEE-Ankara has organized t\VO student conferences and a friendship festival in Kayakoy (Levissi), Turkey. Afterwards, the Programme has also organized three workshops--two in Istanbul, and one in Athens--with the aim of bringing together civil society actors from both =~id~. Throu2h various activities. these wnrk~hnn.c; Activplv pncnllrAaed the narticinAnt~ from both sides to design joint projects. After the first and second .workshops, thc Programme launched calls for proposals for Turkish-Greek Civic Dialogue miciogrants...Atotal ~f (1 projects have been funded under this micro-grantsscheme,4 some of them originally conceived during the workshops. The projects, funded under the micro-gra~ts sche.:,}e, focus on many issues, ranging from the proteCtion of endang~red species to women's rights. The second form of fu~ding directed specifically at Greek- Turkish cooperation is the 35 million euro package to support cross-border cooperation between Greeceand Turkey for 2004-2006. This package was approved by the European Commission in February 2004 and is to be financed by INTERREG 3 and from the pre-accession funding for Turkey.5 The availability of EU funding has been crucial especiallyfor Turkish NGOs, which are mostly dependent on foreign funding for their activities. As a leading Turkish human rights activist explains, Turkish organizations generallychoose not to :tpply to state, government, and municipal funds in order to keep clear of ideological influences. On the other hand, the Turkish business community, except for a handful of people, is hesitant to provide funding becausethey are not used to NGOs and fear that their contribution will put them at political risk. Under these conditions, many organizations rely on foreign funding for their activities (Beige 2004). Certainly, not all civil initiatives on Greek- Turkish cooperation are funded by the EU. Most of the NGOs funded by the Greek-Turkish Civic Dialogue programme could have found other sources of funding for their activities. But there are some, :"Ich ..~youth initiatives and small-scale cultural a.:~ivities, ,hat could not and it is on them that the EU impact is the most noticeable. It is also the casethat the availability ofEU funding for Greek- Turkish initiatives has also unleashed other sources of funding. Previously, for example, domestic funders in Turkey hesitated to become implicated in C;reek-Turkish issues.The improved climate, as well as the legitimacy provided by the EU funding, has changed their inclinations. While grateful for the availability of EU funding, civil society actors also raise some concerns regarding the timing and implementation of the funding. While the GreekTurkish civil society activity peaked foUowing the ]999 earthquakes, the European Commission initiated the Greek-Turkish Civic Dialogue Programme only in 2002. This time lag was a result of the institutional/bureaucratic constraints in the (:ommission. rollowing the earthquakes, the then Representative of the European Commission in Ankara, Karen Fogg, actually put forward such a proposal; however, shefailed to obtain funding from Brussels (interview #6). On the other hand, there is .he fact that Turkish organizations became eligible for certain forms of EU funding FSES 103777- 16/2/200S-KREETHI. .137436 South European Society& Politics 49 only after Turkey got declared a candidate in December 1999. When I asked interviewee #7 why the cross-border cooperation programme between Turkey and Greece took off so late, she was surprised and replied that Turkey had just become eligible. 1"'he time lag was stressed by many of my interviewees. remarked: 'The EU has been important, ..;.101;00;, "Lu...aA -_3-v = ;'-lUIlc-IJTUlc-lCa= LAAA" .1-.. VA maintained As interviewee #8 but we were ther~ first'. The time lag was not ~~___L_~___L;_lc VA"""'- _.1.1; L...a"V'A". 'UA"'L"AA after th~ earthquakes. 1 and au".. 0. when _;.,;1 ""u "_C_;.t_,"V""", -cc tooperation was these specific ins'truments transnational of EU funding were introduced, they served to consolidate the contacts already made. However, taking the previously ~recarious nature of Greek -Turkish relations into account, it could also have been too late: civil society 'relations could have been disrupted by the time EU funding was introduced. A 5econd concern results from the bureaucratic society activi!ies obstacles and limitations funded by the EU run into. For example, interviewee that civil #3 noted: The Commission gives us money but limits the activities that we can do. It says that ( Jm providing this money for civil society development in Turkey, you cannot organize an activity in Greece, It does not accept the bills from Greece. However, it is a;so hard to persuade the Greeks. There are still prejudices. They complain that they always have to come to Turkey. I talked to the Commission Representative in Greece and asked him to provide money to make the project bilateral, he told me they have no such fund available. A third concern raised by the activists is the elitism of the organizations active in Greek- Turkish cooperation. I was repeatedly told that these organizations are mostly dominated by elites and that Greek- Turkish cooperation should infiltrate the masses (interview #3 and #4). This is essential for civil society cooperation to make an impact on the conflicts. As Belge notes: 'Solving problems with people who do not see them as problems is not the most fruitful way of working for peace' (2004, p. 31). According to some. the form Turkish and implementation interviewee of EU funding perpetuates this elitism. One noted that: In the beginning, it was extremely difficult to apply to these funds. They accepted applications only in English. Now they have translated the forms into Turkish. This thing needs to go beyond the NGOs based in the few major cities of Turkey' (interview #3). Interviewee #9 noted that these initiatives often turn out to be 'self-indulging' 'self-perpetuating' but 'having minimal impact'. He argued that 'these initiatives a peculiar developed around the EU that creates new bureaucracies culture and reflect and new avenues for corruption'. Therefore, cooperation, when assessing the impact of EU funding issues such as the form and implementation be taken into account. The impact of EU funding EU has combined specifically supported the objectives dcveJopment, local and of Greek- Turkish and facilitated the formation on Greek-Turkish of EU funding civic also have to has been strongest in cases where the grassroots cooperation organizations, and Turkish of new partnerships successfully civil society between Greek and FSES 103777 50 B. Rumelili Turkish organizations. The form and implementation of EU funding havesometimes easedand other times hindered the realization of these goals. The EU as Q Legitimizer - =rfi;---~~-of ! its association-~thEurope,modernity,and enJigh;e;;;;;;;t:- posses5esit great deal of symbolic capital in Turkey aswen as in Greece(interview #9). Policymakers are often tempted to use the EU as a legitimizing handle. and justify their polici::s by reference to EU requirements and norms. Activists also chooseto frame their ~truggles in terms of EU norms and expectations. This is a role that the EU inrlirec.:tly performs, not through its wilful agency, but thl"ough the activities and cho::es 0" others.6In my interviews, this role of the EU was stressedthe most. In Greece, the EU has been the bedrock upon which the alternative policy towards lur~~y-the policy of supporting Turkey's Europeanization-has beenformulated and advo.:ared.Until the late 1990s,Greekpolicymakers sought to usethe EUasa leveragainst Turkey (Yannas 1994; interview #1). This policy was based on the logic that because Turkey is a threat, Greeceshould use all of its meansagainstTurkey. including its influence in international organizations like the EU. Starting with the post-19% Simitis government. however,the reverselogic beganto be articulated asthe basisof analternative poliC}'towards Turkey. According to this logic. if Turkey sufficiently Europeanizes,then it will no longer constitute a 'threat' to Greece. Hence. first timidly, and then more consistently. Greek policymakers began to support Turkey's membership in the EU (Keridis 200 I). This radical change in Greekpolicy towards Turkey depended011the EUfor its ver)' being dnd legitimization.7 The new policy rests on the existenceof an actor like the EU, with the imputed ability to induce change and reform in other countries, like Turkey. It presupposes peaceful relations as the natural outcome of the process of Europeanization. And it therefore legitimizes, and renders rational, that Greeceshould work towards bringing its main rival into the EU. In Turkey, the function of the EU as a legitimizer of Greek- Turkish cooperation has manifested itself at many levels. At one level, there is the belief that disputes with Greece would lose their meaning once Turkey also becomes a member of the EU. Interviewee # I says: We've been saying this (rom the very beginning. Once Turkey is in the EU. the problemswith Greecewin be resolved.Wegivethe exampleof PranceandGermany. Many issuesare resolvedwithin the EU in the long term. Thus. the perception of the EU as a successful security community. which defuses interstate conflicts, is well-established among the Turkish elite and servesto legitimize the joint efforts to gain membership in the EU and to resolve the outstanding disputes with C;rcece. At another !evel, Greek-Turkish cooperation is legitimized because maintaining good rel.1tions with Greece is essential to Turkey's EU membership bid. Becausf. att.lining membership in the EU is presented asTurkey's foremost strategicobjective. .16/2/2005-KREETHI-137436 '" FSES 103777- I 6/2/2005-KREETHI- 137436 South European Society 6- Politics 51 all other national issues, including disputes with Greece, can be presented as secondary, Interviewee #2 puts this in crude give-and-take terms, 'we are pursuing good relations with Greecebecausewe want to be in the EU', For interviewee # 1, on the other hand, it is a matter of realism: It is a fact that without Greece'spositive stance--1 am not saying if it does not just realistically,and we'redoing so,Greeceis one of the countriesthat hasto be on our side. In short, the capacity of the EU to socialize states,its successas a security community. and the attractiveness of the EU membership carrot are all invoked by Greek and Turkish policymakers to convince themselves and others of the desirability and necessityof Greek- Turkish cooperation. Coupled with thesesharedmeanings is also a reciprocal understanding that the other is becoming more European. Interviewee #1 believes that the EU culture is settling in Greece,and one can seethis in the changing attitude~ towards Turkey. Interviewee #9 seesin Turkey the evidence for how European ideas help to transcend existing problems. The EU also servesto legitimize Greek- Turkish cooperation at the civil society level. .I\mong my interviewees, a positive (perhaps too positive) identification with the EU is discernable. Interviewee #5, for example, does not hesitate to call herselfan 'EU agent'. The activists working for Greek-Turkish cooperation mostly support Turkey's membership in the EU. In fact, when I asked my interviewees-both Greek and Turkish-to discuss the impact of the EU on their activities, they generally mentioned their support for Turkey's EU membership (interviews #4 and #9). I realized only later that they meant that the EU provides a common denominator or reference point for them to gather around. The EU dimension of the Greek-Turkish relationship is an important additional motivating factor for Turkish activists to work for GreekTurkish cooperation. The VEN Volunteers Association, for example, states this very explicitly in its mission statement: It becameapparentthat the common denominatorof our vision wasto contribute to Turkey'sprocessof EuropeanUnion membershipand this vision directed us to re-orient ourselves.The active members aU agreed that the most important advantagefor Turkey in the EU membershipprocesswould be the establishmentof strong and healthyrelations betweenTurkey and Greece(Tarikahya2004). In other words, especially in the case of Turkish activists, the EU legitimizes their efforts for Greek- Turkish cooperation, because they perceive themselvesand are also perceived by others as not only working for Greek- Turkish cooperation, but also for [Turkey's membership in) the EU. Because of the meanings wrapped around the EU, this means that they are also working for progress, modernity, and development.8 Interviewee #3 puts it in this fashion: We aremore organized and showmore effort [than the Greeks)becausewe are not in the EU and democracyis not fully establishedin our country.Wearemotivatedby an underdogfeeling. .. FSES 103777- 16/2/2005-KREETHI-13 7436 52 B Rumelili Conclusions The current Greek-Turkish cooperation is more likely to be durable becauseit clearly possessesan EU dimension. While the EU has alwaysbeen in the background of GreekTurkish relations--Greece and Turkey both establishedrelations with the EEC in the early--~~ s and Greecehasbeena memberof the E~~!!!ce1981-GreekandTurkishpolitical and civil society leadersare for the first time consciouslyand systemati yu. "l.ing~ EU's material and nomlative resources to mobilize and legitimize Greek-Turkish cooperation. In this article, drawing on interviews, I have presented what the EU has mc-ointtor Turkish policymakers and activist in their efforts to promote Greek- Turkish cu(JperCition.Two functions of the EU have beenespeciallystressedby my interviewees: the EU 35 a £Underand the EU as a legitimizer of Greek- Turkish cooperation. -:'he ir.tervic.ws highlight that the EU has had a notable impact on Greek-Turkish relations. This impact has been achieved not necessarily through the EU's purposive agency bt~t from the ways in which the EU, as a resource,symbol. and a model, have been put to use by Greek and Turkish actors. In other words, domestic actors have chosen to Europeanize Greek-Turkish relations at deeper and more fundamental levels than the EU's Helsinki Council decisions. The EU has given their struggles resourcesand legitimacy, but had they chosen not to make useof the EU in this fashion in their activities, the impact of the EU on Greek- Turkish relations would have been much more limited. Acknowled~ements The al.:hor gratefully acknowledgeshelpful comments by Thomas Diez Stephan Stetter. Michelle Pale, and tht=tWo anonymous reviewers. The usual disclaimer avplies. Notes [1: The findings discussed in this study are drawn from a broader research project funded by a grant from the EU's Fifth Framework Programme (SERD-2002,00144), with additional funding from the British Academy. The research involves interviews with Greek and Turkish polilical and civil society leaders and analyzing the impact of the EU on Greek-Turkish relations. [2/ In line with the theme of this File, the article focuses preponderantly nn conflicts, see Diez, Stetter and Albert (2004). (3/ liowever. many of these agreements still exist solely on paper, requiring committerc work to be put into implementation 1-1I For further information, www.slgp.org. 1;1 EU Flash, RepreSl:ntalion 9 Febnlary Iii! on the interviews conducted with Turkish policymakrcrs and civil society actors. For it theoretical framework outlining the different pathways through which the EU can impact see the website of the Civil of the European a lot of technical (interview #1). Commission Society Development to Turkey Programme, Press Release, Ankara 201J4. The legitimizing effect of the EU in Greece and in Turkey was limited until the mid-1990s. For a di~cus~ion of the reason!i why.. !ice RumeliJi (2003. 2004a, 2004b) and also Diez and RUITlt:lili (2(j{)4). .c- FSES 103777-16/2/200S-KREETHI-137436 South European Society & Politics S3 17] According to interviewee #9. the new Greek policy of encouragingTurkey's Europeanization would lose its basis if Turkey does not get a date to begin accessionnegotiations in December 2004. [81 It should be noted that integration with Europe is not the motivating ideology for all civil society organizations in Turkey. For a discussion on the strategiesand discoursesof Turkish civil society organizations. seeKeyman and lcduygu (2003). -"c References Aydmta~ba~,H. (:2004)'The Role of NGOs in RelationsbetweentheTwo Countries and the Tw-keyGreect:Friendship Association (TYDD)', in Voices for theFuture: Civic Dialogue BetweenTurks and Greeks,ed. T. Beige,Bilgi University Press,Istanbul, pp. 147-154. Banias, I. (:2004) 'Building Peace',in Voicesfor thefuture: Civic Dialogue BetweenTurksand Greeks, ed. T. Beige, Bilgi University Press,Istanbul, pp. 77-82. Beige, M. (2004) 'Observations on Civil Society', in Voicesfor the Future: Civic Dialogue Bttween Turksand Greeks,ed. T. BeIge,Bilgi University Press,Istanbul, pp. 27.,.32. Diez, T. & Rumelili, B. (2004) 'Open the Door: Turkey and the European Union', The World Toda}; Aug/Sept. 2004, pp. 18-19. Diez, T., Stetter, S. & Albert, M. (2004) 'The European Union and the Transformation of Bordf:f Conflicts: Theorising the Impact of Integration and Association',in WorkingPaperSeriesin EU Border Conflicts Studies,no. I, University of Birmingham. Giindogdu, A. (200 I) 'Identities in Question: Greek-Turkish Relations in a Period of Transformation?', Middle East Reviewof International Affairs, vol. 5, no. I, pp. 106-117. Heraclicles,A. (2002) 'Greek- Turkish Relations from Discord to Detente: A Preliminary Evaluation" The Review of International Affairs, vol. 1, pp. 17-32. Keridis, D. (2001) 'Domestic Developments and Foreign Policy', in Greek- Turkish Relations in the Era of Globalization, eds D. Keridis & D. TriantaphyUou, Brassey's,Everett, pp. 2-18. Ktymdn, E. F. & Icduygu, A. (2003) 'Globalization, Civil Society and Citizenship in Turkey: Actors, Boundaries, and Discourses: Citizenship Studies,vol. 7, no. 2, pp. 219-234. Kiri~ci, K. & <;:ilrkoglu,A. (2003) 'Perceptions of Greeksand Greek- Turkish Rapprochement by the Turkish Public'. in Greek- Turkish Relations in an Era of Detente.edsB. Rubin & A. Carkoglu, Frank Cass,London. Livalleli, Z. (200.~) 'On Turkish and Greek Civil Society Dialogue: in Voictsfor the Fl4ture: Civic Dialogue Betwten Turksand Greeks,ed. T. Btlge, Bilgi University Press.Istanbul, pp. 11-16. Oral, Z. (2004) 'A Practice for Developing Relations between Turkey and Greece: "WINPEACE"', in Voicesfor tht Future: Civic Dialogut Bttween Turksana Greeks,ed. T. Beige, Bilgi University Press,Istanbul, pp. 137-146. Ozel, S. (2004) 'Turkish -Greek Dialogue of the BusinessCommunities" in Voices for theFuture: Civic Dialogue BetweenTurks and Greeks,ed. T. BeIge.Bilgi University Press,Istanbul. pp. 163-168. bzgune~, N. & Terzis, G. (2000) 'Constraints and Remedies for Journalists Reporting National Conflict: the Case of Greeceand Turkey: Journalism Studies,vol. I, PI" 405-426. I'ridham, G. (1991) 'Linkage Poli1icsTheory and the Greek- Turkish Rapprochement" in The GreekTurkish Con./li,t in the 19905:Domestic and External Influences.ed. D. Constas, St Martin's Press.Nc'" York. pp. 73-88. Rumelili. B. (2003) 'Liminality ilnd the Perpetuation of Conflicts: Turkish-Greek Relations in the Conlt:xl of the Community-Building by the EV: EuropeanJOl4rnalof International Relati"ns, vol. 9, no. 2, pp. 213-248. Rumelili, B. (2004a) 'Constructing Identity and Relating to Difference: Understanding EV's Mode of Oifferl'ntiation" Reviewof Inter'1atiollal Sl!4dies,vol. 30. pp. 27-47. '~ ~".-. FSES 103777- ) 6/2/200S-KREETHI. 137436 54 B. Rumelili Rumelili, B. (2004b) 'The EuropeanUnion's Impact on the Greek-Turkish Conflict: A Reviewof the Literature', in Working Paper Seri~ in EV Border Conflicts Studies,no. 6, University of Birmingham. Siegl,E. (2002) 'Greek- Turkjsh Relations-Continuity or Change?',Per~pectives: Central European Reyiet..ofInternational Affairs, vol. 18,pp. 40-52. Silier, O. (2004) 'A Lot Can be Done to Curb the Effectsof Chauvinism', in Voices for theFuture: Ciyic ~'_I__D T_._I Jr___L- _.J TD_I_- D:I_"I..:.~..;.~D'A.' J...~I."I ~~ In1_11\~ ---~""'3'" ."-'-'-"-',". ..~.5~"'~" ppTarikayha,N. (2004) 'Turkish-Greek Culture and Art Festivalsfor~--~ Promoting Dialogue', in Vo~ces for the FutJ4re:Civic Dialogue BetweenTurks and Greeks,ed. T. Beige, Bilgi University Press, Istanbul, pp. 155-162. Tok$oz,F. (2004)'RelationsBetweenTurkjsh and GreekLocalGovernments..in Voices for theFuture:Civic Dialogue BetweenTurksand Greeks, ed. T. Beige,Bilgi University Press,Is\anbul,pp. 107-114. Tsakaloyannis,P. (1980) 'European Community and Greek- Turkjsh Dispute',Journal of Common Market Studies,vol. 29, no. I, pp. 35-54. Interviews Cited #1: Turkish Foreign Ministry Directorate General for Bilateral Relations with Greece,Ankara, 3 March 2004. #2: Former Ambassador to Greece. Ankara. 4 March 2004. #3: Project Coordinator. lurkish-Greek Civic Dialogue Project. Ankara. 2 March 2004 #4: Activist. WINPEACE. Istanbul. 9 February 2004. #5: Activist. Founding Memher of Helsinki Citizen's Assembly. Istanbul, 9 February 2004. #6: Project Coordinator. Civil Society Development Program, Representationof the EuropeanCommission to Ankara, Athens, II March 20114. #7 Project Coordinator, Cross Border Cooperation. Representation of the European Commission to Ankara, Ankara, 3 March 1004. "8: /\ct,..;st, \','INPEACE. Athens. 12 March 2004 #9: Greek journalist, r<tanbul 18 February 2004. !! 1(): Former Turkish Minister for Fon:ign Affairs. Istanbul, 25 February 2004. "',,::-C C!=, ~=~=