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Partnership with Russia in Europe a Strategy for a Win-Win-Situation?

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Partnership with Russia in Europe a Strategy for a Win-Win-Situation? Partnership with Russia in Europe A Strategy for a Win-Win-Situation? Friedrich-Ebert-Stiftung Gesprächskreis Partnerschaft mit Russland in Europa Partnership with Russia in Europe A Strategy for a Win-Win-Situation? 6th Roundtable Discussion Morozovka (near Moscow) February 3 – 5, 2008 Herausgegeben vom Referat Mittel- und Osteuropa, der Friedrich-Ebert-Stiftung Abteilung Internationaler Dialog Partnership with Russia in Europe FRIEDRICH-EBERT-STIFTUNG © Friedrich-Ebert-Stiftung Herausgeber: Friedrich-Ebert-Stiftung Referat Mittel- und Osteuropa Gesprächskreis Partnerschaft mit Russland in Europa Abteilung Internationaler Dialog Hiroshimastraße 17 10785 Berlin Layout: Pellens Kommunikationsdesign GmbH, Bonn Druck: bub Bonner Universitäts-Buchdruckerei Printed in Germany, Juni 2008 FRIEDRICH-EBERT-STIFTUNG Partnership with Russia in Europe Content Reinhard Krumm / Vyacheslav Nikonov Preface 4 Katinka Barysch Strategy towards a win-win situation? Notes from the 6th roundtable 6 1 Overall impression 6 2. Current relations and prospects for a partnership 6 3. Areas for win-win co-operation 8 Hans-Henning Schröder Russia and the EU – a Partnership within Europe 17 1. Economy as the Basis for Partnership 17 2. Democratic Defi cit and Great Power Ambitions 19 3. Chances for a Fresh Start: Energy Cooperation, Dialogue on History and Widespread Civil Society Contacts 22 Andrey Klimov What should a Partnership look like? Scenarios for 2010 24 Programme 28 List of Participants 31 Partnership with Russia in Europe FRIEDRICH-EBERT-STIFTUNG Preface Can there be a Europe without Russia? Or a able behavior. Instead of accepting respons- Russia without Europe? Such questions have ibilities and fashioning compromises, Russia been debated for centuries; the issue is vital for seems to be seeking opportunities to reestablish the European continent and its stability. Politi- itself as a superpower and to obliterate the cal patterns have changed over time and will memory of its weakness after the collapse of the continue to change, requiring that channels of Soviet Union. This approach is not always the communication remain open throughout the most helpful in attempts to resolve such sensi- 21st century. This is the impetus behind the sixth tive issues as, for example, the question of the round table “Partnership with Russia in Eu- independence of Kosovo. rope”, which convened in Russia in February The relationship is further complicated by 2008. the sense of insecurity felt by the EU, realizing It would be foolish to expect a conclusive the inadequacy of its relationship with Russia, answer to the above questions. Yes, of course given the strategic importance of its powerful Europe includes Russia. Nor can one easily neighbor. imagine the Russian Federation without Eu - Russia defi nes itself now as an indepen - rope. But what of the European Union, now a dent power with no wish to be integrated conglomerate of 27 states? Some of its newest within the structure of the EU. A new Partner- members have very particular, if not diffi cult, ship and Cooperation Agreement (PCA) between relations with Russia: Estonia, Latvia, Lithuania Russia and the EU should be worked out, but and Poland, to name just a few. only if it goes beyond the old one. Russia has Unresolved issues and differing opinions changed, and these changes should be taken concerning the past lead Russia to feel as if the into account. new member states are in fact dictating EU How to overcome the obstacles? Experts policy, which has become quite critical towards and politicians from Russia and the countries Moscow. Furthermore, Russia resents a Euro- of the EU met in the beautiful and quiet village pean attitude which seems to downplay the of Morozovka, not far from bustling Moscow, economic wealth and political power of the lar- to discuss political, economic and social topics gest country in Europe. in search of a possible win-win situation. After For its own part, the EU experiences Russia all, both sides share in principle the same as a diffi cult partner with sometimes unpredict- values, such as freedom, equality, justice and 4 FRIEDRICH-EBERT-STIFTUNG Partnership with Russia in Europe The hosts of the roundtable “Partnership with Russia in Europe”: Reinhard Krumm and Vyacheslav Nikonov. solidarity. And the concept of a “common Eu- the future for EU-Russia relations until 2010 ropean house”, envisioned by Mikhail Gor- from both Russian and German perspectives. bachev, is still very appealing. The accuracy of these forecasts will be one of The Unity for Russia Foundation and the the topics for our next meeting, scheduled for Friedrich-Ebert-Stiftung, as joint organizers, Spring 2009 in Potsdam. are proud to present this report of the sixth round table, including two articles analyzing Vyacheslav Nikonov / Reinhard Krumm 5 Partnership with Russia in Europe FRIEDRICH-EBERT-STIFTUNG Strategy towards a win-win situation? Notes from the 6th roundtable Katinka Barysch 1. Overall impression superfi cial level. However, deeper political dis- agreements – for example over the basis on Like the previous fi ve meetings, this 6th EU- which cooperation should take place – or long- Russia roundtable refl ected wider trends in EU- standing contentions (visas, Baltic minorities, Russia relations. After a period of mutual disil- Russia’s statist policies) often prevented agree- lusionment and sometimes confrontation, par- ment. The idea of building a relationship by ticipants from both sides were once again keen working together ‘wherever possible’ is a tempt- to acknowledge that the EU and Russia were ing one, giving the diffi cult climate in EU-Russia dependent on each other and needed to work relations today. But unless underlying disagree- together. However, the optimism of the 1990s, ments are discussed at some level, they will when the EU and Russia talked about ambitious hijack even seemingly technical debates and integration projects, has evaporated. The two prevent potentially fruitful cooperation. sides today are stressing their differences as much as their commonalities. Cooperation is necessary, but no-one expects it to be easy. Most 2. Current relations and prospects for a of the roundtable was devoted to exploring op- partnership portunities for ‘win-win’ cooperation in various areas ranging from energy to migration. Russian In their attempt to foster a partnership, Russia and EU participants usually found it easy to and the EU have passed a crossroad, said a defi ne overlapping and common interests at a Russian foreign policy expert, and they are now Sergey Markov explained the Russian perspective on EU’s actions. 6 FRIEDRICH-EBERT-STIFTUNG Partnership with Russia in Europe heading in different directions. Economic inte- to EU-Russia relations. One EU diplomat said gration and technical cooperation continue. In that the original EU negotiating mandate from security and energy we need to work together, 2006 now looked extremely ambitious in light whether we want to or not. But by now we know of the recent deterioration in EU-Russia rela- that such contracts alone will not bring about a tions. He said that the delay in post-PCA nego- real partnership. The word “realism” was used tiations was probably a good thing since the EU numerous times to describe the near-term char- would approach these talks now with more acter of EU-Russia relations. Rather than draw- realism and pragmatism. He also suggested that ing up lists of overly ambitious objectives, the seeking an agreement on a more realistic man- EU and Russia are now also discussing the lim- date would be a useful exercise for the EU itself, its of their cooperation. since it would force the various countries to say The wider framework for EU-Russia rela- more clearly what they wanted to get out of tions has changed. A more assertive Russia is improved EU-Russia relations. seeking to defi ne its place in a multipolar world. One EU parliamentarian said that all EU- The EU is trying to strengthen its credibility and Russia cooperation had to start from the fact effectiveness as a global actor. It is therefore that Russia did not want to be a member of the perhaps not surprising that issues that are not, EU. The EU should not therefore seek to apply strictly speaking, EU-Russia issues tend to the kind of conditionality it had applied to ap- dominate bilateral discussions. These include plicant countries and those expressing the hope Iran, missile defence and NATO enlargement. of one day joining the Union. As a member of One West European participant warned that it the OSCE and the Council of Europe, however, would be deleterious to throw all these issues Russia had signed up to numerous obligations, “into one pot”. He suggested that genuine EU- and the EU should not be shy to remind Russia Russia issues, such as visas and energy, should of these. be kept separate from broader discussions about All participants agreed that mutual depen- security and the shifting balance of power. dencies were strong and increasing. Coopera- There were a number of positive develop- tion in numerous areas was progressing well. ments in the months preceding the roundtable. But the tone at the political level did not refl ect Following the change in government in Poland, that. Several EU participants said they were Warsaw and Moscow began to resolve their dif- “puzzled” and “confused” as to why Russian ferences and Russia lifted its ban on the import politicians and offi cials often chose a rather ag- of Polish meat. This, in turn, made it possible gressive and negative tone in their dealings with that Poland lifted its veto on the start of nego- the EU. They called on the Russian side to defi ne tiations on a new bilateral treaty, to replace the clearly what they wanted from the EU and dis- expiring Partnership and Co-operation Agree- cuss the way forward in practical terms.
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