One of the key points on the agenda of the Russia-EU summit in December 2011 was the visa issue. However, one can hardly expect any significant progress on the road to visa abolition which Russia has been insisting on for several years. What is the reason of such a state of affairs? What is the main obstacle in reaching visa-free arrangements between Russia and the European Union?
One of the key points on the agenda of the Russia-EU summit in December 2011 was the visa issue. However, one can hardly expect any significant progress on the road to visa abolition which Russia has been insisting on for several years. What is the reason of such a state of affairs? What is the main obstacle in reaching visa-free arrangements between Russia and the European Union?
In November 2011 within the frame of the preparation works for the coming summit Russian and EU representatives discussed the problems of mutual relations. According to the Kommersant Daily, the following issues were discussed: Russia’s accession to the WTO, liberalization of visa regime between Russia and the EU, cooperation in crisis management, the situation in the Middle East (namely in Syria), human rights in Russia and Vladimir Putin’s idea to establish a Eurasian Union.
Despite that those subjects, as well as other issues traditional for such reunions – cooperation in power industry matters and drafting of a new EU-Russia Framework Agreement, were left to live in the shadow of the recent Russian parliamentary elections, the visa problem was significantly high on the agenda.
Visas as a Test to Brussels
So many statements are made on the issue that one might get an impression that this problem is the key point on the joint agenda.
The situation is largely connected with the fact that the progress in other fields of cooperation with the EU is extremely small.
True, the only problem of the Russian-EU agenda which was resolved is Moscow’s entry to the WTO which, strictly speaking, is a far wider problem than bilateral relations between Russia and the EU. Drafting of a new framework agreement – Agreement on Partnership and Cooperation – is progressing at a very slow pace while the principles of cooperation in power industry remain a stumbling block. Both problems are related to the EU policy on establishing a single European energy market, which disappoints the Russians who regard the Brussels’ approach as a threat to their energy companies.
Russian and EU stance on many burning foreign policy issues such as Syria and Iran developments also differs.
Against this background the talks on the visa waiver look like an exception though they are making difficult progress. In fact, the visa issue is one of the scarce opportunities to the Russian authorities to show some tangible results of partnership relations with the European Union. It convincingly implies that the problem has become a testing ground where Moscow verifies Brussels’ readiness to cooperate.
Besides, Moscow’s assessment of the issue as a top priority matter is related to the fact that visa abolition would substantially simplify contacts between the EU and Russia. In its turn, it would positively tell on the rates of upgrading the Russian economy and social sphere, i.e. facilitate the accomplishment of tasks so frequently mentioned by the Russian authorities as a must. In general, the magnitude of this issue is determined by the fact that the visa waiver can lead to a different nature of relations between the EU and Russia and advance them to a new higher level.
The EU’s Cautious Stance
The visa issue in the relations with Moscow represents certain interest to Brussels. Russia is an important partner rich both in natural and human resources, and a vast market in addition. However, the initiative in the talks is on the Russian side. Statements of the Russian executives dissatisfied with the progress made at the visa abolition talks are permanently voiced in Moscow. In May 2011 Russian Foreign Minister Sergei Lavrov made a statement claiming that Moscow was prepared to introduce a visa-free regime “as early as tomorrow”.
Certain progress has been made in the visa talks: a few years back Russia and the EU signed an agreement on a simplified procedure of visa issue, and they are currently working on the “roadmap” for their abolition.
At the same time the EU leaders persistently point out that visa abolition is not a round the corner perspective. A little more than a year ago French President Nicolas Sarkozi made a statement saying that the visa regime between Russia and the EU would be abolished within 10-15 years.
The European Union has taken a very cautious stance as regards the visa issue. The EU is apprehensive about potential Russian migrants as well as unprotected Russian borders in the South. Therefore, Brussels insisted on signing the readmission agreement. The agreement was signed and came into force in June 2007. The article on readmission of the third party nationals has become applicable on June 1, 2010: the EU and Russia shall transfer third party nationals who crossed their border before illegal entry to the another country.
Brussels also insists on the liberalization of Russian laws regulating registration of foreign nationals resident in Russia.
Another reason explaining the EU reluctance to radically change the visa environment is Russian corruption which can result in issuing foreign passports to citizens who have certain problems with law enforcement agencies.
Politicization of the Visa Issue
Moscow reproaches Brussels for excessive politicization of its position on the visa issue. There are all grounds to do so.
The “roadmap” for visa abolition (the official document is titled “List of Joint Steps to a Visa-Free Regime of Short-Term Trips for Russian Citizens and EU”) was ready, and it had to be signed in the framework of the previous summit held in Nizhny Novgorod in June 2011. However, it happened only in the frame of the current summit. According to mass media reports the difficulties in coordinating the agreement came up as Russia insisted on the automatic launch of visa abolition talks upon implementation of the necessary technical steps the parties have agreed upon.
The EU tried to keep its hands free to put forward additional political preconditions to Russia. Judging by the available information, Russia failed to insist on the automatic launch of the talks on the visa-free regime upon fulfillment of the “roadmap” requirements. Besides, the EU linked the visa issue to an arbitrary estimate of the internal political situation in Russia – respect for human rights, fundamental freedoms and supremacy of law.
The EU communities, especially representatives of certain novice members, are anxious about the reaction of other countries of the region which were promised a closer integration with the bloc to the visa waiver with Russia instead of the one with them.
Foreign Minister of Romania Theodor Bakonski made a statement in November 2011 saying that the simplification of the visa regime should not take place at the time when other partners will be in waiting.
“Close Partnership of the EU with Russia”
At the same time, one can notice positive dynamics. More and more EU members if not speak in favor of the visa abolition than call for a significant simplification of the visa regulations – issue of long-term visas. Six months ago Russia and the EU reached an agreement on the issue of five-year Schengen visas to Russians.
So far, Poland has become a singular pioneer as regards liberalization of the visa regime with Russia. An agreement on the visa-free border crossing within the frontier zone between the Kaliningrad Region and neighboring Polish regions will soon come into force. Poland was the first EU country to announce that it is prepared to issue five-year visas.
It is however obvious that the solution of the visa issue is primarily hampered by the pending problem of the fundamentals of political cooperation between the European Union and Russia. Moscow has not become a full-fledged partner to Brussels. It can be traced both in the energy field and visa issue. The most often used explanation is a reference to the difference of values – pillars of political culture in Russia and the EU. Undoubtedly, political cultures in Russia and the European Union are different, however, it is obvious that strategic rapprochement would strengthen mutual ties and create preconditions for a deeper gradual convergence.
At the same time, an unquestionably positive factor is that many EU players understand this. Recently Polish and German foreign ministers sent a joint letter to High Representative for the EU foreign policy Catherine Ashton pointing out Russia’s importance to the European Union.
“A strong and ambitious partnership between the EU and Russia will not only have a positive effect on our security but also contribute to Europe’s geopolitical weight and influence,” the letter says.
Comprehension of the necessity to intensify political cooperation with Russia will only grow in the context of the on-going economic crisis which poses new challenges to Europe. No doubt, it would contribute to further progress in resolving the visa issue between Brussels and Moscow.
