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What to Do with Visas for the Eastern Europeans?

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What to Do with Visas for the Eastern Europeans? WhatAnalysis to doof thewith visa visas policies for of the EasternVisegrad Europeans? countries Relative openness. Polish visa policy towards Belarus, Moldova, Recommendations from the perspective of Visegrad countries. Russia and Ukraine May 2009 Olga Wasilewska Stefan Batory Foundation, Warsaw Executive summary Top priority in the Polish visa policy are Belarus and Ukraine, then comes Russia, though Moldovans also enjoy several facilitations. It is in Ukraine, Belarus, and Russia that Poland issues the most visas; those issued in Polish consulates in Ukraine and Belarus before Poland’s entry in the Schengen area constituted ca. 40% of the total of visas issued by all EU Member States. The network of Polish consulates is also better developed in these states. In 1990s, citizens of Belarus, Moldova, Russia and Ukraine needed no visas to come to Poland. The first restrictions to their entry were introduced by Poland before the joining the European Union, lat- er, however, than the Czech Republic or Slovakia. Visas were issued either free of charge, or with small fees, and procedures were rela- tively simple. Moreover, in 2005–2007, the refusal rate in Polish consular posts was much lower than the EU average. The next series of restrictions towards Belarusians, Moldovans, Russians and Ukrainians was introduced following Poland’s entry in the Schengen area: procedures have become stricter, visa fees have increased, and more documents have been required in the application procedure. This has been mirrored by the drop in the number of issued visas and visa applicants, as well as by a smaller border traffic. Easier access to visas to select- Countries where Polish consulates ed groups is provided by two solutions: Card issued the highest numbers of Pole and Agreements on Local Border Traf- of visas (007 ABC visas) fic1. Main Recipients of Visas Issued in Polish Posts Ever since Poland introduced visas towards its eastern neighbours, the citizens of these countries have become main recipients of vi- sas issued by Polish consular posts. In 20072, visas issued in Polish consulates in four coun- tries of Eastern Europe – Belarus, Moldova, Drawn up on the basis of data from the document of Russia and Ukraine – constituted around 90% the Council of the European Union – Exchange of sta- of all short-term (C) visas issued in Polish posts tistical information on uniform visas issued by Member States. 8.04.2008 (as well as of the sum of A, B and C visas). Additionally, around 90% of people applying . Visas Issued in Polish for those visas in all posts were citizens of the Posts in Eastern Europe four analyzed Eastern European countries. as Compared to Visas Issued This percentage was slightly lower in the case by the Remaining Eu Member of national/ long-term (D) visas, but still very States high: around 74% of D visas issued by Polish Visas issued in the Polish consulates in Be- authorities were granted to citizens of the larus, Moldova, Russia and Ukraine are a sig- Eastern European countries. We could speak nificant part of the entire number of visas about a long-lasting tendency, as a similar pro- issued by all the EU countries in the region. portion was observed in previous years (90% According to 2007 data, short term (A, B and of A, B and C visas in 2006, 89% of A, B and C type) visas issued in Polish consulates in C visas in 2005 were issued to citizens of Be- Belarus constituted 40% of all EU visas of this larus, Moldova, Russia and Ukraine). Among category for Belarusians. Additionally, among these Eastern European countries, Ukraine is Belarusians, 40% of those willing to travel to the unquestionable leader: more than half of the EU applied for visas in Polish consulates. visas issued in Polish posts were granted to In the case of long-term (D) visas, the percent- Ukrainian citizens. age of visas issued by Polish posts was even higher (68%). Visas issued by Polish posts in Belarus constituted in previous years a signifi- 1 Additionally also regulations at the EU level such as cant share in the total of visas issued by EU the Visa Facilitation Agreements. 2 All quoted data from the years 2005–2007 come from Member States. official documents of the Council of the European Union – Exchange of statistical information on uniform visas is- sued by Member States. They do not include data on Among the four analyzed countries, the low- visas issued by the United Kingdom. Data concerning est number of Polish visas is issued in Moldo- visas issued in Polish consulates in 2007–2008 originate from the Polish Ministry of Foreign Affairs. va. Their share in the entire number of visas Types of visas issued by Schengen states: A – airport issued by EU countries in 2007 was low: 7% transit visa, B – transit visa, C – short term stay visa, of short-term (A, B and C) visas and 12% of D – long-term, national visa, C+D – long-stay valid con- currently as a short-stay visa, LTV – visa with limited ter- national (D) visas were issued by Polish posts. ritorial validity. Similar was the percentage of people who ap- Percentage of visas issued in Polish consulates plied for visa in Polish posts. The rate of vi- whitin all visas issued by the EU Member States sas issued by Polish authorities in Moldova as in selected countries (007) compared to all visas issued by the EU changed 40.92% 39.90% 41.54% 41.41% significantly in 2007 after Bulgaria and Roma- 7.39% 6.90% nia – popular travel destinations among Mol- 3.92% 4.19% dovans – joined the EU. Before this change, vi- sas issued in the Polish consulate in Chisinau constituted around 40–50% of all visas issued by the EU countries. This was associated with Drawn up on the basis of data from the document of the low number of consulates of the EU coun- the Council of the European Union – Exchange of sta- tries in Moldova (only France, Germany and tistical information on uniform visas issued by Member States. 8.04.2008 UK of all old EU Member States had posts in that country). The situation became different Data on all the visas issued by EU Member as a result of the opening of the Common Visa States in 2008 is not yet available, which is Application Center in Chisinau which is hosted why we are unable to see whether or not this by the Hungarian Embassy. The initiative was percentage has changed. However, keeping in joined by Austria, Denmark, Estonia, Iceland, mind that the number of visas issued in Pol- Latvia, Slovenia and Sweden. ish consular posts in 2008 is much lower than in 2007, we might suspect a decrease of that In the case of Russia, although the number of percentage as well. visas issued by Polish posts is high, it does not represent a significant percentage of visas is- The number of issued visas should not be sued by all EU countries. In 2007, it constitut- analysed separately from refusal rates. Re- ed 4% of short-term (A B and C) visas issued in fusal rates in Polish consulates were in the the EU consulates. Before the last EU enlarge- first years after Poland’s accession to the EU ment, these figures were slightly higher. in 2004 much lower than the EU average. The largest difference is visible between average The highest number of visas in Polish posts refusal rates of the old Member States and is issued in Ukraine. Also, in 2007 Polish vi- Poland, while the average refusal rate of new sas represented a significant part of the to- Member States is comparable to that of Po- tal number of visas issued by all EU Member land (however, in Moldova and Ukraine the re- States: 41% of A, B and C visas. The share of fusal rates in Polish consulates were lower). In persons applying for Polish visas in the total Polish posts in Belarus, Moldova, Ukraine and of applicants expecting an EU Member State Russia refusal rates from 2005 to 2007 were on visa was similar in 2007. In previous years the average lower than 1.5%. This is in contrast percentage was slightly higher: 44–46% in to much higher refusal rates for the old Mem- 2005 and 2006 for A, B and C visas. ber States in Moldova (16–2%) and Ukraine (9–10%), and less so in Belarus (–7%). Dif- ference in the case of Russia is the smallest (2–% for old Member States). Analyzing changes within this time-frame we can observe a small increase in the refusal rates for Ukraine and for Russia. In Belarus and Moldova, a de- crease in refusal rates also occurs – higher for . The Network of Polish old and lower for new Member States. Consulates and its Development RejectionRejection rates rates in the in consulatesthe consulates in Ukraine in The network of Polish consular posts autho- Ukraine rized to issue visas in the Eastern European 6.00%6,0% EU countries is well developed. At the moment 4.00%4,0% there are posts in Belarus (Brest, Grodno, 2.00%2,0% 0.00%0,0% PL Minsk), 5 in Ukraine (Kharkiv, Kyiv, Lutsk, Lviv, 2005 2006 2007 Odesa), 4 in Russia (Irkutsk, Kaliningrad, Mos- cow, Sankt Petersburg), and one in Moldova RejectionRejection rates rates in the in consulatesthe consulates in Moldova in (Chisinau). Polish networks in Belarus and Moldova Ukraine are the most developed out of all net- works of EU countries4. The last development 10%10% EU of the Polish network was associated with Po- 5%5% land’s accession to the European Union and 0%0% PL took place in 2002–2004.
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