Relations between the European Union and Belarus have been mostly absent for the period of 1996-2008. Basic legal documents that would regulate bilateral relations and ensure Belarus’ full participation in the European Neighbouthood Policy (ENP) have not been ratified or adopted because of the authoritarian nature of the governing regime of President Aliaksandr Lukashenka. Ratification of the Partnership and Cooperation Agreement (PCA) was frozen in 1997. Belarus does not enjoy full benefits of the European Neighbourhood Policy (ENP), there is no ENP Action Plan is place.
Following the warming up of relations between Belarus and the EU in 2008, high-level political contact resumed and technical cooperation began to move forward. In light of the new political setting, the Joined Interim Plan (JIP) is being currently prepared by the European Commission (EC), which is aimed to resemble an Action Plan and will outline the path of reforms for Belarus in areas of economy, law, justice and security, and other. Among issues to be offered for Member States’ consideration is conclusion and implementation of visa facilitation and readmission agreements. Prospects for long term visa liberalisation may be included in the JIP too, if agreed upon by the EU Member States.
The EU has not yet began official talks with Belarus on visa facilitation and readmission agreements, however several technical assessment missions to Minsk by EU experts took place. On 12 November, the Commission recommended that the Council authorises the Commission to open negotiations on agreements to facilitate the procedures for issuing short-stay visas and on readmission between the European Union and Belarus. The post-election crackdown in Belarus seriously worsened its relations with the European Union but did not touch the plans regarding visa facilitation talks. In the EU’s Coucil Conclusions of January 31st the Council stated that it looks forward to the start of negotiations for visa facilitation and readmission agreements with Belarus, once the negotiating directives have been adopted.
The European Union tied visa facilitation for Belarus with a number of political conditions that official Minsk should fulfil. The absence of political will among numerous Member States of the EU and the reluctance of the Belarus government to address the EU conditions prevent central EU institutions from solving the problem of high visa fees for Belarusian citizens. Additionally, the EU lacks understanding that the visa issue is one of a few real policy tools that can be used to leverage positive political and social changes in Belarus. The question of visa policy towards Belarus instead of being a tool of government-to-government political conditionality should be used as an instrument of proactive policy.
Research results show that more opportunities for the citizens of Belarus to travel to the EU will lead to the mindset change in favour of pro-European choice of Belarusian citizens. It especially implies for modifying the consciousness of senior citizens, who are characterized by distinctive conservatism and anti-European attitudes.
If the political framework allows, visa facilitation and readmission agreements between the EU and Belarus could be completed within the 1-1,5 year period. The prospect of visa liberalisation negotiations depends on the EU internal discussions and attitudes towards its Eastern neighbours, as well as the domestic political, economis and social developments in Belarus.
In terms of its technical preparedness for the visa liberalisation dialogue with the EU, Belarus could qualify as ready for the beginning of negotiations albeit numerous shortcomings. The country is equipped to issue biometric travel documents as of 2012; issues of travel documents and their issuance, identity cards, border management, and privacy and data protection are being addressed. According to the assessment by the Interntational Organisation for Migration (IOM), the country is a leader in combatting of human trafficking, although it does not fully comply with the minimum standards yet. The government demonstrates significant and sustained efforts towards progress. Some elements of the Anti-Money Laundering/ Combatting the Financing of Terrorism (AML/CFT) regime have been developed by the relevant government structures in Belarus. The anti-corruption programme for 2007-2010 has been adopted by the President, although the issue of corruption remains a serious threat to the national security. Implementation of the GRECO recommendations can not be evaluated yet since the agreement concerning immunities and privileges of GRECO has been signed in 2010. Belarus does not cooperate with Europol, but has bilateral agreements with the EU Member States.
By Dzianis Melyantsou