28 2017 M-SUR/ADOBESTOCK The visa-free 3D effect: Georgia, Moldova and Ukraine by Stanislav Secrieru Since its inception, the EU’s Eastern Partnership Attractive and secure passports (EaP) sought to speed up reforms and pull coun- tries of the eastern neighbourhood closer to the After the EU cancelled the need for visas for Union. Yet despite the incentives, transforma- short-stay travel, Georgia, Moldova and Ukraine tions were often slow and painful: vested in- surged overnight in the Global Passport Power terests continue to shape domestic politics to a Rank. Compared to 2016, Ukraine jumped 15 large degree, justice is frequently selectively ap- places in 2017 to 32nd in the world. Georgia ad- plied against the opponents, and high-level cor- vanced by 14 places and caught up in the rank- ruption discourages large-scale investments. ing with Moldova (which came in 43rd), with both countries enjoying visa-free regimes with Although the pace of reforms has been sluggish, 105 countries. By opening the visa-free door to the level of connectivity between the EU and its a total of 120 countries, the Ukrainian passport eastern neighbours has nevertheless increased. leapfrogged the Russian one, which came 41st. The liberalisation of visa regimes with the EU is Although the citizens of the Western Balkans re- one of the main drivers behind this process. ceived visa-free status earlier, the three EaP states have now even overtaken these countries. First stated as a goal in 2009 at the inaugura- tion of the EaP at a summit in Prague, a visa-free The possession of a biometric passport is a pre- regime with the EU was a long-waited milestone condition for visa-free travel to the EU. Available for the eastern neighbours. Ukraine was the first public data confirms that the visa-free regime led in the region to launch a visa liberalisation dia- to a large rise in applications for biometric pass- logue in 2008, even before the summit, while ports shortly before and right after the decision. Moldova and Georgia followed suit in 2010 Since 2011, Moldova has only issued biomet- and 2012, respectively. It took nine years for ric passports. As a result, slightly over 750,000 Ukraine, five years for Georgia and four years for citizens were in possession of the document as Moldova to reach their goals. Even if Moldova’s of April 2014, when visas to the EU were lifted. citizens have enjoyed visa-free travel longer than Immediately after the visa liberalisation move, the Georgians and Ukrainians, all three cases share number of applications for biometric passports several similarities. grew by 78%. There are now over 1.8 million European Union Institute for Security Studies (EUISS) October 2017 1 biometric passports in Moldova, accounting for or not, Georgians from Gali have reported that the 46% of the population. local ‘authorities’ confiscate and destroy Georgian passports if they are discovered. Moreover, 125,000 citizens living in the breakaway region of Transnistria also possess Moldovan bio- In Ukraine, the demand for biometric passports metric passports. In 2015, Moldova’s government was even higher than in Georgia. Ukraine began discontinued the practice of issuing passports free issuing biometric documents only in 2015; before of charge to people residing in Transnistria. By the visa-free regime entered into force in June 2017, that point, 80,000 had already received biometric around 3.7 million biometric passports were al- documents. However, the decision of the authori- ready in circulation. In the following two months, ties in Chisinau has not diminished the demand 1.1 million Ukrainians submitted applications for for Moldovan passports in the breakaway region, the new international travel document. The mas- confirming at least an indirect interest in travelling sive spike in applications took the Ukrainian au- to the EU. thorities by surprise, and prompted them to begin modernising 25 passport centres across the coun- Georgia has been issuing biometric passports since try. In parallel, the government has procured the 2010. To speed up the process, the government additional equipment necessary to increase print- ran campaigns in 2015 and 2016 during which ing capacity later this year. Authorities estimate citizens could apply for passports at a discount- that as a result of these improvements, by the end ed price. By the end of August 2017, 1.4 million of 2017 the number of biometric passports will Georgian citizens had received biometric travel go above 5 million, covering more than 11% of documents – about 37% of the population. In the population. And although the official number 2016, the Georgian authorities had issued 223,000 of applications from Donbas and Crimea has not passports, while in first 8 months of 2017 alone been disclosed, the visa-free regime could serve as they issued 218,000 documents. Despite the soar- an additional means to keep links alive between ing demand for passports, 19 modern ‘Houses of Ukraine proper and its citizens living in the oc- Justice’ (which provide citizens with various ad- cupied territories. ministrative documents) across the country man- aged the influx of applications without experienc- ing major delays. Virtuous circle Unlike in Transnistria, Georgian citizens from The more biometric passports there are in circu- the two separatist regions of Abkhazia and South lation, the larger the pool of clients is for trans- Ossetia have not rushed portation services. to apply for biometric The visa-free regime passports. First, not ‘...although the official number of with the EU – com- many ethnic Georgians bined with a Common remain in South Ossetia applications from Donbas and Crimea Aviation Agreement (an estimated 2,500 has not been disclosed, the visa-free signed in 2012 – re- still live in the town shaped Moldova’s of Akhalgori) follow- regime could serve as an additional competition-resistant ing the Russo-Georgian means to keep links alive between air transport market. war in August 2008. Low-cost companies Second, the breakaway Ukraine proper and its citizens living and more European na- republics are much tional carriers entered more isolated from in the occupied territories.’ the market, diversifying Georgia proper and the number of routes reaching and crossing administrative boundaries (direct connections with Europe grew by almost is problematic: Abkhazia closed down four out of 75%) and pushing prices down. As a result, traffic six check points in 2016-2017. Third, while the through Chisinau airport nearly doubled from 1.2 Transnistrian ‘authorities’ tolerate the possession million passengers in 2012 to 2.2 million in 2016 of multiple passports, Georgians living in Abkhazia (and is projected to grow by 15% in 2017). But (over 46,000, residing mainly in the Gali region) although market forces generated by inflated de- are required to surrender Georgian citizenship in mand have significantly squeezed vested interests, order to obtain an Abkhazian ‘passport’. Dual citi- they have failed to eliminate them. zenship in the breakaway region is not permitted – unless the second passport is Russian. Regardless In anticipation of visa liberalisation and dismiss- of their intentions to claim Abkhazian ‘citizenship’ ing arguments that the populations are too poor European Union Institute for Security Studies (EUISS) October 2017 2 The forerunners: visa regimes in the Western Balkans EU Visa Regimes for the Western Balkans Schengen United Kingdom Area and Ireland Albania 2010 KEY Visa-free access for 90 Bosnia and 2010 days in any 180 day period Herzegovina since ... Visa required the former Yugoslav 2009 United Kingdom Schengen Area Republic of Macedonia and Ireland (+ Bulgaria, Croatia, Cyprus and Romania) Montenegro 2009 Kosovo* * In 2016, there were 77,756 Schengen visa applications made by citizens of Kosovo, out Serbia Bosnia and Serbia 2009 of which 66,241 were granted. Herzegovina Kosovo* Montenegro the former Yugoslav Albania Republic of Macedonia Data: European Commission to travel, a number of low-cost and regular airlines announced new connections Data:from European Ukraine Commission to opened new routes from Georgia and Ukraine to the EU beginning in 2017 or 2018 to cities in the EU. In the case of Georgia, new flights started Germany, Italy, Poland and Portugal. However, the much earlier and were facilitated by the Common debacle surrounding the failed attempt by Ryanair Aviation Agreement signed with the Union in to enter the Ukrainian market has cast a shadow 2010. At the time, the aim was to attract tour- over the further diversification of the market and ists: in 2016, Georgia received 6.3 million tour- raised questions about the influence of vested in- ists, with the sector accounting for 7.3% of GDP. terests in the economy. However, flights which originally catered to for- eign tourists may in the future serve Georgians Air transportation companies in Ukraine are feel- who decide to make use of their ability to travel ing the pressure not only from their peers, but visa-free to the EU. In the first 8 months of 2017, also from transport companies on the ground. In Tbilisi airport saw a 43% growth in passenger traf- addition to already operating buses to Poland, in fic. The visa-free regime breathed fresh life into 2017 Ukraine’s state-owned railway company in- further development of regional airports, too. For troduced a high-speed ‘Intercity’ train to Przemysl, instance, in September 2016, a European low-cost which, due to its popularity, then led to new con- carrier launched new flights from Kutaisi to cities nections to Krakow and Chelm. There are now in Germany, Italy, Greece, Bulgaria and Cyprus. As plans to launch new routes to Romania, Hungary a result, passenger traffic through Kutaisi airport and the Baltic states. Statistics from Ukraine’s State between January and August 2017 increased by Border Service show that ground transporters still 83%.