An Enlarged Europe and Its Neighbourhood Policy: the Eastern Dimension Research Project 2004 UDK 327 (474.3) CONTENT En 570 Atis Lejiņš. Introduction 5 Dzintra Bungs. The EU and NATO, Their Policies Toward Neighbouring Countries, Especially Countries of Central Europe, the South Caucasus, and the Russian Federation 6 The LIIA expresses its gratitude to the Latvian Ministry of Defence for a grant that made possible this research project. Andris Sprūds. Russia’s Policy Towards Europe’s “New Neighbours”: in Pursuit of Partnership or Domination? 29 Ruslans Osipovs. How Domestic Political Problems in Belarus Affect Foreign Policy Choices Between Russia and Europe 47 Editor: Atis Lejiņš Igor Munteanu. Moldova and the EU Neighbourhood Policy 68 “An Enlarged Europe and Its Neighbourhood Policy: the Eastern Dimension” – Research Project – Riga,Riga, LLatvianatvian IInstitutenstitute ooff IInternationalnternational Mindia Vashakmadze. The EU and Russian Hegemony in Georgia 93 Affairs, 2004, 112 pp. ISBN 9984-583-38-4 © Latvian Institute of International Affairs, 2004 Note: Each paper has its individual footnoting style. Dzintra Bungs 5 Introduction In a sense, this is a “historical” publication. It contains the results of a research project devoted to the question of the “new neighbours” on the eastern border of the newly enlarged EU. Furthermore, it refl ects a break in the research tradition of the Latvian Institute of International Affairs. Whereas earlier, since 1992, when the institute was established, research on security issues was funded by the international foundations and countries that had enjoyed prosperity and democracy since the end of the Second Word War, this year for the fi rst time the research project was funded by the Latvian government, mainly the Ministry of Defence with further support from the Ministry of Foreign Affairs. In other words, the Latvian taxpayer. This reflects, of course, Latvia’s new standing in international affairs as a member state of the EU and NATO. It also reflects a need for thoughtful analysis carried out by independent NGO’s, which can help Latvia formulate foreign policy, while, at the same time, extend NGO links in the international community. Links have been well established in the Trans-Atlantic community, especially in the EU, where the insti- tute is now a full member of, for example, the Trans-European Political Association (TEPSA). But now the need arises for bolstering contacts to the East, especially in the countries that now find themselves between the EU and Russia, now called the “in-between” countries. Of course, they are not new neighbours to Latvia, but what is new, is the political aspect of finding themselves in a situation as described above. Just as research activity was needed on the Baltic and Central Eastern European countries before they became mem- bers of the EU and NATO, the same now holds true for the “in-between” countries. We hope that the first results will be useful and of interest both for policy makers and the general public interested in international issues Atis Lejiņš, Director, Latvian Institute of International Affairs 6 Dzintra Bungs Dzintra Bungs 7 Alliance, and a tradition of acting promptly once a decision is made, further enlargement is a distinct possibility; the timing of the next enlargement and the likely candidates for membership, however, cannot be predicted. The EU extended the fi rst invitations to CEE countries to join the Union in December 1997 and the second set of invitations – two years later. Owing to a more complicated accession process, the EU was able to admit the fi rst and the second set of invitees – altogether ten countries, including Estonia, Latvia and Lithuania – as bona fi de members of the Union all at the same time in spring 2004. In early summer 2004 voters elected members of the European Parliament, which is now much larger than ever before. In late summer 2004 a new and enlarged Commission, under the leadership of José Manuel The EU and NATO, Barroso, began to be formed; the process was completed in November. In view of all Their Policies Toward Neighbouring Countries, these changes and the necessity to ensure that the Union functions and fl ourishes as an entity of 25 states, it will be several years before the EU admits new members, even if Especially Countries of Central Europe, accession negotiations with Bulgaria and Romania are advanced. A date for starting the the South Caucasus, and the Russian Federation accession process with Turkey remains to be set. During the period of enlargement, both the EU and NATO recognized that it would be mutually advantageous to coordinate foreign and security policy, as well as improve DZINTRA BUNGS, Senior Research Fellow, the modes of cooperation. The EU outlined a Common Foreign and Security Policy Latvian Institute of International Affairs (CFSP) while NATO formulated its European Security and Defence Policy (ESDP) which both organisations discussed and endorsed in December 2002 through the EU- NATO Declaration on ESDP. All the while both organisations were coping with various challenges related to becoming truly global players. They saw that sometimes their Introduction: views diverged and sometimes – coincided, and that they were perceived as or acted as competitors. Furthermore, differences were also evident within the EU, especially After the fall of the Berlin Wall in 1989 and the implosion of the Soviet Union in 1991 between the old EU member states and the countries about to join the Union. The both the European Union (EU or the Union) and the North Atlantic Treaty Organisation differences dissipated in the aftermath of the Islamic terrorist attacks of 11 September (NATO or the Alliance) realized that the neighbourhood around them had changed and 2001 in the United States. Eventually the differences resurfaced; they were exacerbated that the previous practices and policies were no longer adequate to the new situation. by Washington’s intent to wage a war in Iraq and gather as many supporters for this Both organisations developed new policies toward countries of Central and Eastern endeavour as possible. Europe (CEE) and the former USSR, created programmes to assist and cooperate with those countries, and eventually welcomed many of those countries into their fold. In All of these factors have had a profound infl uence on the Union’s and the Alliance’s a nutshell, these activities – although not identical – by both organisations could be neighbourhood – it has also undergone changes, especially as some of the neighbouring described as constructive engagement. The EU started its Phare programme in 1989 and countries have become EU and NATO members – as well as on the policies of both decided to offer the possibility of membership to CEE countries at the European Council organisations toward the neighbouring countries individually and as a whole. Nonetheless, meeting in Copenhagen in 1993. NATO opted for opening its gates to new members in the prevailing attitude of both the EU and NATO toward their neighbours can continue to January 1994. In 1997 both organisations took the decisive step toward enlargement and be summed up by the policy of constructive engagement. offered the candidate countries of their choice a detailed accession plan. This paper will briefl y survey the development of the neighbourhood policy of the EU In July 1997 NATO invited the Czech Republic, Hungary and Poland to begin membership and the comparable partnership policy of NATO, particularly as these polices affect negotiations and these countries joined the Alliance in 1999. The second round of Belarus, Moldova, Russia, Ukraine and the South Caucasian countries: Armenia, invitations was extended to 7 countries, including the three Baltic States, at NATO’s Azerbaijan and Georgia. The emphasis will be on developments in the 21st century.century. After Prague summit in November 2002. In March 2004 NATO welcomed these countries into an examination of the policies and their application in the different countries, suggestions its ranks, thus increasing its membership to 26 countries. Since NATO has an open-door will be made about ways to make those policies more effective. Some opportunities for policy that allows any European country able to abide by the principles of the Washington the new members of EU and NATO to make an impact for positive change in countries Treaty and contribute to security in the Euro-Atlantic area to become a member of the neighbouring the Alliance and the Union will also be noted. 8 Dzintra Bungs Dzintra Bungs 9 Part One: The EU Neighbourhood Policy and the South. These developments led to a fundamental reassessment of the nature of the European Union and the formulation of new policies; hence the codifi cation of the The EU neighbourhood policy has developed fi rst and foremost through evolution. In Union through a Constitutional Treaty and a coherent and comprehensive foreign policy a very broad sense, the EU, even in its previous incarnations, has always had policies known as Common Foreign and Security Policy (CFSP). The documents came about also directed toward the neighbouring countries. They have developed out of the necessity to as a consequence of the changing perception of the Union’s role in the world, an aspect interact with countries bordering the member states of the Union and to react to major emphasized by EU leaders especially since the beginning of the new century. In December developments in the neighbourhood. These policies have also been profoundly infl uenced 2002 the European Commission’s President, Romano Prodi, urged the Union to assume by the Union’s decisions to expand its membership. In the past decade, the policies can its role as a global player, adding that one of the fi rst steps to be taken in this direction be characterized by a desire to avoid creating new divisions in Europe while, at the same would be the development of a substantive proximity or neighbourhood policy: time, maintaining a distinction between the EU and the rest of Europe.