2014年-CEPS欧洲政策研究中心_Kaliningrad_transit_and_visa_issues_revisited_3页_33kb

Kaliningrad Transit and Visa Issues Revisited Summary

Core Content

The document discusses the ongoing challenges related to the transit and visa regime for the Kaliningrad Region, a Russian exclave bordered by Lithuania and Poland. The issue has historically been a source of tension in EU-Russian relations, particularly when Lithuania introduced a visa regime in 2002-03, which raised concerns in Russia about the region's political and economic separation from the mainland. A compromise involving the Facilitated Transit Document (FTD) and Facilitated Railway Transit Document (FRTD) was reached in 2003, but it is considered temporary due to the likelihood of Lithuania joining the Schengen zone by late 2007 or early 2008.

Main Points

• Historical Context:
  The 2002-03 crisis was triggered by Lithuania's introduction of a visa regime, which led to fears of Kaliningrad's isolation. A partial compromise was reached, with the EU agreeing to cover additional costs on the Lithuanian side, amounting to €40 million over three years.

• FTD and FRTD Scheme:

  • The FTD is issued at Lithuanian consulates and is used for car and bus travel.
  • The FRTD is issued on trains, based on personal information provided in advance.
  • The FRTD system has functioned well, with the millionth document issued in 2006.
  • The FTD, however, has become redundant as people prefer free multi-entry visas for Kaliningrad residents, which may change with the new EU-Russian visa agreement.

• Schengen Accession and Its Implications:

  • Lithuania and Poland, along with six other Central European new member states, are expected to join the Schengen area in 2007-2008.
  • This will likely lead to stricter visa requirements, affecting Kaliningrad residents who currently benefit from relaxed procedures.
  • The 2003 transit scheme may no longer be valid under Schengen rules, necessitating new arrangements.

Key Policy Options

1. Local Border Traffic Permits:

   • The EU is considering introducing permits for non-EU nationals to travel within the EU for up to seven days, within 30 km of the border.
   • This would not be sufficient for transiting through Lithuania from Kaliningrad to mainland Russia.

2. Increased Visa Staffing in Kaliningrad:

   • Lithuania could increase consulate staff to handle the high demand for visas.
   • However, this does not address the broader issue of transit, which affects not only Kaliningraders but also other Russian citizens.

3. Subsidised Direct Flights:

   • With the high-speed train project abandoned due to cost concerns, subsidised flights from Kaliningrad to mainland Russia could be an alternative.
   • This would allow faster and more convenient transit for residents and tourists.

Current Status and Outlook

• The current transit regime is expected to remain in place after Lithuania joins the Schengen zone, as confirmed by statements from EU and Russian officials.
• The EU-Russia visa facilitation agreement signed in 2006 sets a fee of €35 for visas and introduces a multi-level process for multiple-entry visas, but does not provide exceptions for Kaliningrad residents.
• The agreement does not address the specific transit issue of Kaliningrad, leaving the region vulnerable to a new crisis if the existing arrangements are not maintained.

Conclusion

• A visa-free regime between Russia and the EU would be the most comprehensive solution, but it is not currently feasible.
• A visa-free solution specifically for Kaliningrad could be considered, but it faces significant political and legal hurdles.
• Given the limited options and the current state of EU-Russian relations, the preservation of the FTD/FRTD system is seen as a minimal requirement to avoid a new transit crisis.
• More substantial reforms will depend on improvements in bilateral relations and the development of a more inclusive and reciprocal visa policy.

Key Information

• FTD: Facilitated Transit Document for cars and buses, issued at Lithuanian consulates.
• FRTD: Facilitated Railway Transit Document issued on trains.
• Schengen Accession: Lithuania and Poland expected to join the Schengen area in late 2007 or early 2008.
• EU-Russia Visa Agreement: Signed in 2006, sets visa fees and procedures but does not include exceptions for Kaliningrad.
• Visa-Free Prospects: Not currently viable; would require changes to the Schengen acquis and address concerns about Russian criminals.
• Kaliningrad Regional Duma Proposal: Unilaterally proposed a visa-free regime for EU nationals but rejected due to reciprocity concerns.