CEPS欧洲政策研究中心-A-two_16页_645kb

Summary: Enhancing EU Cultural Cooperation with Russia

Core Content

This policy brief outlines the EU's current cultural engagement with Russia and proposes a strategic approach to enhance it. Despite the cooling of diplomatic relations, culture is identified as a key instrument for maintaining and improving ties with Russia. The authors argue that a more focused, country-based strategy is needed to unlock the full potential of EU cultural action in Russia, especially in light of the current geopolitical climate.

Main Views

• Cultural cooperation is seen as a more appropriate term than 'international cultural relations' or 'cultural diplomacy', emphasizing a two-way, mutual approach.
• The EU should develop a strategic document tailored to Russia, aligning with the EU's broader strategic approach to international cultural relations.
• A bilateral framework and a new co-funded programme with Russia are recommended to increase the scope and impact of cultural initiatives.
• Cross-Border Cooperation (CBC) programmes should be expanded to include more diverse funding, especially for non-public entities, and flexible submission requirements to reduce administrative burdens.
• Smaller projects (under €50,000) require increased support within CBC programmes.
• A two-step submission process for concept notes and full applications is proposed to simplify participation for smaller organizations.

Key Recommendations

• Develop a country-based strategic approach to cultural relations with Russia.
• Adopt the term 'cultural cooperation' to better reflect the mutual and collaborative nature of the relationship.
• Establish a new bilateral programme co-funded by the EU and Russia, possibly within the Creative Europe framework.
• Increase funding for non-state actors, including civil society organizations (CSOs), for-profit entities, and individuals.
• Introduce specific calls for proposals targeting CSOs in the arts, tourism, cultural heritage, and education.
• Simplify CBC programme requirements by implementing a two-step submission process.
• Expand support for smaller projects and ensure more inclusive participation in cultural initiatives.

Current EU Cultural Instruments in Russia

• The Partnership Instrument (PI) is a major funding tool, supporting public and cultural diplomacy, including the EU-Russia Civil Society Forum.
• Cross-Border Cooperation (CBC) programmes, funded by the European Neighbourhood Instrument (ENI), involve Russian regions and focus on cultural objectives.
• Erasmus+ allows Russian organizations to participate in educational and mobility projects, with notable involvement in Jean Monnet actions and capacity-building in higher education.
• The EU Delegation in Russia plays a central role in organizing cultural events and promoting the EU's cultural agenda.
• EUNIC Clusters in Moscow and Saint Petersburg support European cultural initiatives, though their reach is limited.

SWOT Analysis Highlights

Strengths

• A clearer strategic framework has been established with the Joint Communication and the 2019 strategic approach.
• Increased funding for cultural activities since 2014.
• High participation rates in Erasmus+ initiatives.
• Demonstrated resilience and adaptability in response to political challenges, such as the cancellation of Europe Days.
• Mutual cooperation in some regions, especially in cross-border areas.

Weaknesses

• Lack of a comprehensive country-based strategy.
• Funding does not match rhetoric and is often concentrated in Moscow or cross-border regions.
• Limited support for non-state actors, especially non-registered organizations and individuals.
• Strict requirements in CBC programmes that hinder broader participation.
• No Russian membership or bilateral agreements within Creative Europe.
• Reduction in support for smaller projects.

Opportunities

• New financial framework (2021-2027) under Creative Europe offers potential for expanded cultural cooperation.
• Positive local attitudes towards EU cultural initiatives, especially in cross-border regions.
• Local authorities show willingness to cooperate and support EU cultural activities.
• CSOs view EU cultural engagement as essential and expect more tangible support.

Threats

• Oscillating public opinion in Russia, with a significant decline in positive views of the EU since the Ukraine crisis.
• Tighter legal framework in Russia since 2012, limiting opportunities for foreign cultural activities.
• Government discomfort with top-down EU cultural initiatives.
• Self-censorship among CSOs due to political pressures.
• Risk of 'foreign' activity for CSOs, especially in light of Russia's regulatory environment.
• Negative EU image among the general public, which could undermine cultural engagement.
• Lack of institutional support for cooperation with Russian authorities, which hinders broader engagement.

Conclusion

The EU's cultural relations with Russia are at a critical juncture. While cultural cooperation remains a vital tool for fostering dialogue and understanding, current policies have not fully utilized their potential. A more strategic, inclusive, and flexible approach is necessary to ensure that cultural initiatives can thrive, even in a context of geopolitical tension. The proposed reforms aim to strengthen the EU's cultural presence in Russia by enhancing cooperation, broadening participation, and aligning policy with the needs of local actors.