Refugees and migrants line up to receive food outside the temporary refugee facilities at the port of Piraeus, near Athens, Greece, 15 March 2016. Migration restrictions along the so-called Balkan route, the main path for migrants and refugees from the Middle East to the EU, has left thousands of migrants trapped in Greece. Picture: EPA/ORESTIS PANAGIOTOU
Refugees and migrants line up to receive food outside the temporary refugee facilities at the port of Piraeus, near Athens, Greece, 15 March 2016. Migration restrictions along the so-called Balkan route, the main path for migrants and refugees from the Middle East to the EU, has left thousands of migrants trapped in Greece. Picture: EPA/ORESTIS PANAGIOTOU

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THE European Union’s (EU’s) summit chairman said on Thursday he was "more cautious than optimistic" about the chances of reaching a deal with Turkey this week to halt an influx of migrants that has caused a divisive backlash in Europe.

Hours before EU leaders met to discuss financial and political rewards to offer Turkey in return for a commitment to take back all migrants who cross to Greece, European Council president Donald Tusk sounded downbeat.

"The agreement must be acceptable to all 28 member states, no matter big or small," he said in a clear reference to Cyprus’ objections to accelerating Turkey’s EU membership talks until Ankara fulfils past obligations.

After a year in which more than a million people have arrived in Europe in chaotic misery, fleeing war and poverty in the Middle East and beyond, EU countries are looking desperately to Turkey to seal its coastline and stem the flow.

Mr Tusk forecast difficult talks, saying any deal must fully comply with European and international law, which has been challenged by United Nations agencies and rights groups, and must effectively help solve the migration crisis.

In Ankara, a senior Turkish official said countries such as Cyprus should not be allowed to block progress, adding that Mr Tusk’s presummit visit to Ankara on Tuesday had not resolved issues fully over the proposed pact.

Turkey did not intend to make new demands or proposals when Prime Minister Ahmet Davutoglu met the EU leaders today, the official said, appearing to rule out any goodwill gesture to break the standoff with Cyprus.

"I don’t think anyone is certain there will be a deal," an EU diplomat in Brussels said.

A draft agreement circulated by Mr Tusk and debated by EU ambassadors on Wednesday watered down two key inducements to Turkey and included new safeguards intended to overcome legal objections to sending back migrants.

Ankara’s key objective of securing visa-free travel for Turks to Europe by June will depend on it meeting long-standing criteria.

Mr Davutoglu is due to join the EU leaders today for breakfast, at which Mr Tusk hopes to finalise a deal that the Turkish premier sprang on a surprised EU with backing from German Chancellor Angela Merkel 10 days ago.

Under the plan, Turkey would take back all those, including Syrian refugees, who cross from its shores to Greek islands. The EU would double an agreed €3bn fund to help refugees in Turkey and would hasten visa-free travel for Turks in Europe.

The draft says the aim is "to break the business model of the smugglers and to offer migrants an alternative to putting their lives at risk". It says the return is "a temporary and extraordinary measure which is necessary to end the suffering and restore public order".

Potentially the most explosive topic will be how Mr Davutoglu responds to a vague offer to open new "chapters" of Turkey’s snail-like negotiations to join the EU in the distant future.

Cyprus has long blocked several efforts over Turkey’s refusal to give it the same access to Turkish ports and airports as other EU states — a result of the 42-year dispute since the violent partition of the island into a Greek-speaking state and a Turkish-speaking north recognised only by Turkey.

Cypriot President Nicos Anastasiades has made clear he will lift his veto on Turkish accession chapters only if Ankara ends its refusal to recognise Cyprus.

Turkey wants concessions for its northern Cypriot allies in return.

Mr Tusk’s draft said only that the EU would work with Turkey to "prepare for a decision" on opening new accession chapters "as soon as possible" — a hazy prospect Mr Davutoglu may not accept.

Reuters