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Is Poland Still Committed to the Eastern Neighbourhood?

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Is Poland Still Committed to the Eastern Neighbourhood? >> POLICY BRIEF ISSN: 1989-2667 Nº 91 - AUGUST 2011 Is Poland still committed to the Eastern neighbourhood? Natalia Shapovalova and Tomasz Kapu niak During its current EU presidency, Poland aims to reinforce >> the EU’s engagement with its Eastern neighbourhood. Yet many in Kyiv and Tbilisi believe that Warsaw’s ‘reset’ with Russia HIGHLIGHTS has been undertaken at the expense of Poland’s relations with Ukraine, Georgia and other Eastern Partnership (EaP) countries. They fear Poland is losing interest in its Eastern partners. • Poland’s Eastern policy is Europeanising: Poland adheres to Examining Poland’s Eastern policy, we conclude here that there is little EU foreign policy priorities and evidence that Warsaw has either diminished its interest in or changed promotes its Eastern agenda at its goals towards its Eastern neighbours. Warsaw continues to support the EU level. the latter’s democratisation and integration into the EU and NATO. • The Russia-Poland ‘reset’ has But the style and instruments of Poland’s policy have changed as the brought limited results in bilateral country increasingly channels its Eastern policy goals via EU structures relations, but has strengthened and takes larger member states’ interests into account. Poland’s role in EU policy towards Europeanisation has thus become a new factor in defining Poland’s the Eastern neighbourhood. policy towards the Eastern neighbourhood. This works in two • Ukraine’s importance for Poland directions. On the one hand, Poland increasingly adapts its national has not diminished, but the foreign policy to EU demands. Prime Minister Donald Tusk’s policy country’s domestic developments of improving relations with Russia was partly driven by the need to complicate the strategic strengthen Poland’s position within the EU. Poland also now partnership. adheres to the EU mainstream when it engages in the EU’s Southern neighbourhood. Examples include former President Lech Wałęsa’s • Moldova and the South visit to Tunisia, Tusk’s trip to Libya, and the appointment of the Caucasus are gaining new Plenipotentiary of the Polish Minister of Foreign Affairs for the importance for Poland in the Union for the Mediterranean. context of the Eastern Partnership. On the other hand, Poland successfully uses EU structures to further its national policy goals and concepts, thus benefiting from IS POLAND STILL COMMITTED TO THE EASTERN NEIGHBOURHOOD? 2 >>>>>> the Union’s broader power in the world. The including the Southern Mediterranean region setting up and development of the Eastern in the same policy framework and the ENP Partnership and Poland’s policy towards sidelined the issue of membership. Only in Belarus are good examples of such ‘bottom up’ 2008 did Poland for the first time manage to Europeanisation. The two trends are symbiotic: include its own concepts into the EU’s foreign the projection of Poland’s national priorities policy. Acting jointly with Sweden, the Polish towards the East onto the EU level has been government proposed the creation of the EaP, a possible due to Warsaw’s more cooperative new policy initiative for six countries in adherence to EU objectives in its relations with Eastern Europe. Russia and the Southern neighbourhood. This was accompanied by the improvement of Poland’s relations with Russia as a result of the A LONG ROAD TO EUROPEAN pro-European and pragmatic policy of Prime INFLUENCE Minister Tusk’s government. A ‘reset’ of bilateral relations has not solved the most long-standing Among the countries of Central Europe, problems, such as the disputes over history, Poland has attached a special importance to different views on the post-soviet neighbourhood relations with its Eastern neighbours since the or the high price for Russian gas. But this 1990s. Poland’s foreign policy was primarily rapprochement has strengthened Poland’s focused on integration into NATO and the EU position within EU decision-making. Poland- in that decade, but good relations with Russia relations have increasingly become a more neighbouring countries, in particular in the normalised part of EU-Russia relations. While East, also featured among its priorities. Poland opted for an EU approach towards Russia, the EU supported Poland in trade disputes with The idea of establishing an EU policy towards Russia and accepted Poland’s leadership in the the region’s Eastern neighbours came from EU’s policy towards its Eastern European Polish think-tanks and decision-makers. At a neighbours. meeting inaugurating Poland’s accession negotiations in 1998, the then Polish foreign affairs minister called for the establishment of POLAND’S INVOLVEMENT IN THE the Eastern dimension of the enlarged EU. In EASTERN PARTNERSHIP 2003, Poland proposed a strategy calling for increased EU engagement with the region. It Poland’s strategic goal is the democratisation and advocated differentiating the EU’s relations Europeanisation of the Eastern neighbourhood. It with its Eastern neighbours (Belarus, Moldova, is often said that Poland does not want to be a Ukraine and Russia) depending on their frontier country of the EU. This is true in the respective interest in such cooperation and sense that Poland considers Europe’s unification their progress in democratisation and as a guarantee of peace on the continent and its adherence to EU values. The central role was own security. given to Ukraine which, according to the authors of the strategy, was not only to take a Traditionally, Poland has been more focused on similar place to that of Russia in EU policy, but Ukraine and Belarus due to stronger historical ties also to become a member state in the future. and a common Slavic heritage, and to a lesser extent on Moldova. The South Caucasus has not However, the concept of the European been a part of Poland’s regional activity. Neighbourhood Policy (ENP) outlined in 2003 was fundamentally different from the Polish The EaP and its partner countries (particularly proposal. The focus on the East was diluted by Belarus, Ukraine, Moldova and Georgia) are POLICY BRIEF - Nº 91 - AUGUST 2011 3 priorities for Polish development assistance. This democracy in the neighbourhood. Since 2003, assistance has doubled since Poland’s accession to Poland has promoted the idea of a European the EU, reaching €27 million in 2011. Through Democracy Fund to support civil society its aid, Poland supports democracy and good actors. In 2011, this idea received the support governance initiatives, migration and border of the Commission and the European External management, rural and agricultural development, Action Service in the ENP review - though and entrepreneurship. some member states remain cool towards this proposal. Apart from bilateral aid, Poland is actively involved in the EU’s Eastern Partnership Nonetheless, some Polish analysts still maintain projects. Along with Central European member that their country’s engagement in the East is states, Poland has become a pioneer in the insufficient, given the significance of the region multilateral structures of the EaP by organising in Poland’s foreign policy. They point to the multilateral seminars (for example, on small number of students from EaP countries anticorruption and mobility) and sharing its and Poland’s relatively limited aid to and expertise. In the European Parliament economic impact in the neighbourhood. Polish delegation to Euronest, 11 out of 58 members investment in Ukraine, the main recipient in the are Poles. In Ukraine, Poland has been active in region, is $893 million, which is only 2 per cent offering its experience and advice through EU- of all foreign investment to the country. Poland funded twinning projects, successfully is among the top five destinations of Belarusians competing against the ‘old’ member states more and Ukrainians studying abroad, but attracts experienced in this few students from other EaP countries. Poland’s interest initiative. in the Eastern The new head of UKRAINE AND BELARUS: CORE the EU Monitoring CHALLENGES neighbourhood Mission in Georgia is the former Polish Ukraine has been the centre-piece of Poland’s is long-term and ambassador to Bosnia policy towards the Eastern neighbourhood. In the strategic and Herzegovina. early 1990s Poland established a strategic This is the first time partnership with Ukraine and has promoted the that a Pole has country’s integration into the EU and NATO. represented the EU in the Eastern neigh- This partnership has not been easy given the ups bourhood. and downs of Ukraine’s democratic transition and its foreign policy U-turns. Former Polish During its EU presidency Poland will host an EaP president Aleksander Kwaśniewski was the only summit in Warsaw, and has also planned a number Western leader to visit Ukraine during its of other activities. The EaP Business Forum will be international isolation in the later Leonid inaugurated in Sopot on the Baltic Sea coast. The Kuchma era. In 2004, during the Orange third annual meeting of the EaP Civil Society revolution, Kwaśniewski led international Forum, in Poznan, will last longer than usual mediation efforts. After the revolution, Poland ostensibly to ensure the more effective impact of tried to convince other EU member states to offer NGOs. Poland envisages a number of meetings in Ukraine the prospect of accession. a 27+6 format, involving ministers in different policy areas such as transport, health and However, Ukraine’s domestic developments agriculture. Multilateral meetings are planned with have complicated Poland’s mission. First, the the heads of statistics offices and customs services. ‘Orange’ pro-European government was torn Poland advocates stronger EU support for apart by personal conflicts and did not deliver >>>>>> IS POLAND STILL COMMITTED TO THE EASTERN NEIGHBOURHOOD? 4 >>>>>> on promised reforms. Then, the 2010-elected pursue its goals, above all that of encouraging president Victor Yanukovych reversed even Belarus’ democratisation and its linkages with those limited democratic achievements that Europe. Belarus was included in the EaP’s had been implemented.
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