Europa Universität Viadrina Frankfurt (Oder)

Poland’s role in the development of an ′Eastern Dimension′ of the European Union

Andreas Lorek

Table of Contents

1. Introduction ... 10

1.1. The ‘Eastern Dimension’ of the European Union ... 10
1.2. Problem ... 13
1.3. Structure ... 13

2. Explaining Poland’s role with theoretical concepts ... 16

2.1. Intergovernmentalism ... 16
2.2. Supranationalism ... 18
2.3. Intergovernmentalism vs. Supranationalism ... 19

3. Poland’s foreign policy after 1989 ... 20

3.1. Principles of Poland’s foreign policy ... 20
3.2. Poland’s Eastern Policy ... 23
3.3. Eastern policy and regional cooperations ... 28

4. Poland and its Eastern neighbours ... 34

4.1. Ukraine ... 34
4.1.1. 1991 to 1994: Polite declarations and mutual commitments ... 36
4.1.2. 1994 to 1998 Poland’s integration in the Western structures ... 37
4.1.3. 1998 to 2004: Poland’s way in the EU ... 40
4.1.4. From 2004: The ‘Orange Revolution’ and beyond ... 42
4.2. Belarus ... 44
4.2.1. 1991 to 1994: Belarus’ decline under independence ... 46
4.2.2. 1994 to 1996: The begin of Aleksander Lukashenko’s presidency ... 47
4.2.3. 1996 to 2001: International isolation ... 48
4.2.4. From 2001: Belarus as the last dictatorship in Europe ... 50
4.3. Russia ... 52
4.3.1. 1989 to 1994: Poland’s Russia-centered policy ... 54
4.3.2. 1994 to 1999: Russian vs. Polish interests ... 54
4.3.3. 1999 to 2004: Slight normalisation of the relations ... 55
4.3.4. From 2004: Poland as a member of the EU ... 57

5. Poland and European foreign policy ... 59

5.1. From an Eastern policy to a ‘Wider Europe’ ... 59
5.1.1. Poland’s contribution to the European Neighbourhood Policy ... 60
5.1.2. ‘Eastern Dimension’ vs. ENP: similarities and differences ... 65
5.1.3. The ENP in practice ... 73
5.1.4. Countries included in the ENP ... 74
5.1.4.1. Ukraine ... 76
5.1.4.2. Belarus ... 78
5.2. The EU and Russia ... 81
5.2.1. Russia and the ENP ... 83
5.2.2. Poland, Russia and the EU ... 84
5.3. ‘Eastern Dimension’, ENP and theoretical concepts ... 86

6. Conclusion ... 88

Literature and Documents ... 91

1. Introduction

1.1. The ‘Eastern Dimension’ of the European Union

Poland’s accession into the European Union (EU) in May 2004 changed the geopolitical situation of the country fundamentally. Poland moved from an “outsider” to an “insider” and changed its location from being at the EU-external border to a country with an external border toward the Eastern European states. The countries at Poland’s Eastern borders became as well the Eastern neighbours of the European Union after 1 May 2004.
The break-up of the Soviet Union in 1989/1991 was the starting point for a new and self-determined foreign policy. The strategic objectives of Poland’s foreign policy for the follow-ing years were clear. The most important aims were the NATO-accession, which was seen as the highest priority for Poland’s security, and the EU-accession, which should secure Poland’s return into the “European mainstream”. A subordinated objective was the establishment of an effective and coherent policy toward Poland’s Eastern neighbours.
Poland’s Eastern policy in the first years concentrated on consolidating sovereignty and in-dependence of the former Soviet republics Lithuania, Ukraine and Belarus and on good rela-tions to the former Soviet centre Russia. With all of the Eastern neighbours Poland reached a status of good-neighbourly and friendly relations. But the bilateral relations in the following years developed unequally. Today Ukraine is Poland’s most important and closest Eastern neighbour. The bilateral relations are defined as a “strategic partnership”. Poland imposed, like all EU states, sanctions on Belarus and does not have contacts with the Belarusian gov-ernment on a high political level. Russia is a difficult partner. The country sees itself on a higher level and often treats Poland with disrespect.
On the European scene Poland was very engaged for its Eastern neighbours. Already in 1992 former Foreign Minister Krzysztof Skubiszewski warned against a new division of Europe, not because of ideological reasons but more because of economic-political facts (Shynkarjov 2005: 47). The concept of a future ‘Eastern Dimension’ was formulated for the first time at the inauguration meeting of Poland’s accession negotiations¹ with the EU in 1998 by former Foreign Minister Bronisław Geremek. The introduction of such an Eastern policy of the EU was an important part of the Polish mandate for the accession negotiations . Gere-mek highlighted the importance of the Eastern neighbours for Poland and the EU and called for the development of a common EU policy with Poland’s and the EU’s Eastern neighbours after enlargement. Geremek launched with his call an active and vigorous debate about the possibility and shape of a future European Eastern policy among experts and politicians. In 2001 the Polish Ministry of Foreign Affairs published its viewpoint about “The Eastern policy of the European Union in the run-up to the EU’s enlargement to include the countries of Cen-tral and Eastern Europe”. Poland referred to a policy which should “apply uniform and identi-cal standards to all states established in the post-Soviet space [and] should further try to de-velop a model of cooperation giving all states equal access thereto, ensuring equal participa-tion therein and and guaranteeing equal benefits to be driven therefrom” (MFA 2001: 8). The new Eastern policy should comprise the entire post-Soviet space, which means Poland’s di-rect neighbours Ukraine, Belarus and Russia (respectively the Russian exclave Kaliningrad) as well as Moldova, the Caucasia and Central Asia (MFA 2001: 11; MFA 2003: 85/6).
The archetypes for the ‘Eastern Dimension’ were the ‘Euro-Mediterranean Partnership’ (or Barcelona Process) and especially the Northern Dimension. Both common EU policies came into existence after an enlargement of the EU. Spain and Portugal promoted the Euro-Mediterranean relations after their accession to the EU, the Northern Dimension was a result of the accession of Sweden and Finland (Cieszkowski 2004: 103).
The ‘Euro-Mediterranean Partnership’ was launched in 1995 at a conference in Barcelona. It should provide a wide framework of political, economic and social relations between EU member states and countries of the Southern Mediterranean. The ‘Northern Dimension’ ad-dresses special regional development challenges of Northern Europe. It reflects the EU rela-tions with Russia (particularly North-west Russia) in the Baltic Sea and Arctic regions. The ‘Eastern Dimension’ would not be in concurrence with other EU policies, it was rather thought as an enlargement of the ‘Northern Dimension’, as Poland’s former Foreign Minister Cimoszewicz clarified: “The Eastern Dimension would be complementary to the Northern Dimension of the EU. I believe that it can use the experience of the Northern Dimension as well as other policies of the EU toward adjacent regions” (Cimoszewicz 2003: 18).
The development of a coherent and effective policy toward the new EU neighbours after enlargement was as well a major interest of the EU. The discussion on the EU level was launched in 2002 by Great Britain and Sweden. In April 2002 the General Affairs and Exter-nal Relations Council (GAERC) discussed for the first time about “Wider Europe – Relations between the future enlarged EU and its Eastern neighbours“ (Council 2002a: 10). Poland con-tributed actively to that debate in 2003 with a Non-paper with proposals concerning the new Eastern neighbours (MFA 2003) and the organisation of numerous conferences in order to win support from EU members and the states of Eastern Europe (Cieszkowski 2004: 105). The European Commission and the High Representative for the Common Foreign and Secu-rity Policy (HR for the CFSP) Javier Solana worked up ideas for the Union’s policy toward the new neighbourhood. Former Commission President Romano Prodi presented the ‘Wider Europe’ concept in December 2002. His aim was to see “a ring of friends surrounding the un-ion [and to share] everything but institutions [with them]” (Prodi 2002).

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1 See Annex 3, Interview with Agnieszka Walter-Drop, Deputy Chief of Mission at the Polish Embassy Berlin.