The European Council as a key driver of EU–Turkey relations: Central functions, internal dynamics, and evolving preferences

Abstract

With its central functions and wide-ranging activities within the political system of the European Union (EU), the European Council has turned into the key EU institution in framing and shaping EU–Turkey relations. Since its establishment in 1974, it has been making the most fundamental and far-reaching decisions on the EU–Turkey relationship. The influence of the European Council in EU–Turkey relations is derived from its role and status in EU decision-making. No institution other than the European Council has enjoyed so much ‘explicit political leadership in the EU process’ (Wallace, 2010: 82), gradually expanded its functions beyond the legal provisions enshrined in treaties, and evolved into a ‘living institution’. As a ‘place of power […] where great European debate takes place on a one-to-one basis’ (de Schoutheete, 2012a: 22), the European Council is composed of the Heads of State or Government1 of the member states, its President, and the President of the European Commission (Art. 15(2) Treaty on European Union, TEU). It sets the strategic direction of the Union, amends EU treaties, and takes over key agendasetting and decision-making functions in enlargement policy and ‘new areas of EU activity’ including economic governance and foreign affairs (Fabbrini & Puetter, 2016: 482).