The EU–Turkey deal in the 2015 ‘refugee crisis’: when intergovernmentalism cast a shadow on the EU’s normative power

Abstract

The aim of this article is to understand why the EU opted to conclude the ‘EU–Turkey refugee deal’ in March 2016 in the context of the Syrian refugee crisis, despite the fact that the agreement deeply contradicts fundamental EU values and norms. The article seeks to explain the outcome—the conclusion of the EU–Turkey refugee deal—by analysing not only the ability of EU institutions to shape decisions, but also their motivations, ideas and preferences in justifying the EU’s actions in responding to the refugee challenge. It is argued that the deal results from ideational and power struggles between supranational (the European Parliament and the European Commission) and intergovernmental institutions (the European Council and the Council of the European Union). It is demonstrated that while the former put forward normative arguments, the latter invoked security as a main concern to avoid internal divisions between Member States. This article also reveals that such ideational and power struggles have consequences for the EU’s identity. Theoretically, the article builds on the new intergovernmentalist claims and on the normative/civilian power literature. Empirically, it explores the usage of normative justifications by EU institutions and points to inter-institutional tensions in framing the EU’s response to the refugee challenge.