# EUR-Lex - 52011SC0646 - EN

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# 52011SC0646

**JOINT STAFF WORKING PAPER Implementation of the European Neighbourhood Policy in 2010Country Report : Ukraine JOINT STAFF WORKING PAPER Implementation of the European Neighbourhood Policy in 2010Country Report : Ukraine /* SEC/2011/0646 final */**

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JOINT STAFF WORKING PAPER

Implementation of the European
Neighbourhood Policy in 2010
Country Report : Ukraine

1. 
Overall assessment

Ukraine and the EU first established
contractual relations in 1994 through a Partnership and Cooperation Agreement (PCA)
which entered into force in 1998. On that basis, an EU-Ukraine Action Plan (AP)
was adopted in February 2005 and progress in its implementation was monitored
and reported on until November 2009, when it was replaced by the EU-Ukraine
Association agenda. The Association agenda builds on the substantial progress
made in negotiating the EU-Ukraine Association Agreement (AA). This Agreement
is conceived by both parties as illustrating the most advanced and ambitious
approach to the Eastern Partnership vision of association, including a Deep and
Comprehensive Free Trade area (DCFTA) and a comprehensive programme of
approximation to the EU acquis.

In 2010 an intensive and varied range of EU-Ukraine
meetings took place, most formally at the level of the EU-Ukraine Summit, the
Cooperation Council and the seven subcommittees. In addition progress in
implementing the Association agenda was reviewed at the level of Joint
Committee of Senior Officials. More broadly, Ukrainian authorities and civil
society representatives participated actively in the multilateral framework of
the Eastern Partnership, and contributed to the working platforms.  On a
bilateral basis, Ukraine and the EU also discussed institutional capacity
building in the framework of the Eastern Partnership Comprehensive Institution
Building Programme.

This document reports on the overall
progress made in implementing the EU-Ukraine Association agenda between 1
January and 31 December 2010, although developments outside this period are
also considered when deemed relevant. It should be noted that in addition and
complementary to the Association agenda, the EU side provided Ukraine with a
‘matrix’ of reform priorities with a view to providing further guidance to
Ukraine’s reform efforts.  Correspondingly the EU focused, in its highest-level
dialogue with Ukraine, on a set of core ‘reform priorities’, such as an
inclusive constitutional reform, electoral and judicial reform and energy
sector reform.

This report effectively assesses progress
made in preparing for the entry into force of the EU-Ukraine Association
Agreement, since the Association Agenda is designed to pave the way for this.
It is not a general review of the political and economic situation in Ukraine. For
information on regional and multilateral sector processes, readers should refer
to the sectoral report.

In 2010 Ukraine took positive steps to
establish a framework for potential reforms, notably by bringing the IMF
Standby Agreement back on track, adopting a Comprehensive Economic Programme (under
the supervision of the Committee on Economic Reforms established by the Presidential
decree of 17 March 2010) and achieving
significant fiscal consolidation, with promises of more to come if tax and
pension reforms could be successfully implemented. The existence of a more
stable political situation suggested that, with the right motivation and will,
the government could take forward a set of core reforms with the potential to
bring the country closer to European standards and values as enshrined in the
Association Agenda.

Particular achievements in 2010 include the
adoption of a Public Procurement Law which should play an important role in
curbing corruption and in increasing competitiveness, and the adoption of a Gas
Sector reform law which paved the way for Ukraine’s accession to the Energy
Community in February 2011, providing significant potential to modernise and
restructure its energy industries and infrastructure, and with potentially very
large economic benefits.

These reforms go in the right direction and
have been bolstered by EU technical support. Their success
rests on implementing regulations and measures, which will need to be monitored
closely if these advances are to be consolidated. In the case of  public
procurement, for example, respect for international norms is needed in all
implementing regulations and amendments if there is to be no further disruption
to the substantial portion of EU assistance channeled through budget support.

Economic reforms did not extend to all
areas: perceptions of the business and investment climate continued to be
adversely affected by a series of obstacles and irritants such as corruption,
non-transparent tax (particularly Value Added Tax) and customs regimes, and the
absence of an independent judiciary and a reliable legal environment.

As regards the political domain, there are
fewer positive signs.  Ukraine has experienced a deterioration of respect for
fundamental freedoms notably as regards the freedom of the media, freedom of
assembly and democratic standards. Regarding democracy in particular, after the
generally good conduct of presidential elections at the beginning of the year,
the local elections in October were heavily criticised by international and
domestic observers, in particular as regards the legal framework and the poor
administration of the electoral process. The adoption of an election code which
meets European standards and which is supported across the main political
groupings is crucial to the democratic legitimacy of future elections in Ukraine.
This issue is at the top of the EU’s agenda in Ukraine.

An Action Plan on Visa Liberalisation was
announced at the EU-Ukraine Summit in November 2010. This Action Plan gives
rise to a comprehensive range of legislative and other measures linked to verifiable
benchmarks, and its implementation has started.

A comprehensive reform of the judiciary and
fight against corruption remain key challenges. Respect for rule of law in
criminal investigations and prosecutions, including the principle of a fair,
impartial and independent legal process, must be guaranteed in order to ensure
that the criminal law is not used for political ends. It is important to ensure
that the process of Constitutional reform is transparent and inclusive. As
regards the EU-Ukraine Association Agreement, 2010 saw further substantial
progress in negotiations on Political Dialogue and
Reform, Political Association, and Cooperation
and Convergence in the Field of Foreign and Security Policy. Progress was
also made  on Institutional Provisions, General and Final Provisions
and on economic and sector cooperation issues, which have been
provisionally closed. The Justice, Freedom and
Security chapter is close to final agreement. Negotiations on the DCFTA
part of the agreement continue and both sides have reiterated their intention
to conclude these negotiations in 2011.

2. 
Political dialogue and reform

The EU and Ukraine maintained regular
political dialogue during the year, notably at the EU-Ukraine Summit and the
Cooperation Council. In addition, political dialogue meetings took place
between the Ukrainian government and the EU Political and Security Committee,
the Council Working Group on Eastern Europe and Central Asia, the EU Foreign
Ministers and the EU Political Directors. The EU-Ukraine Parliamentary
Cooperation Committee met in both Brussels and Kyiv. The latter included a
visit to Odessa.

Democracy and rule of law

No progress was noted in the reporting
period with respect to promoting an inclusive constitutional reform. The
National Constitutional Council, set up in 2007 to work on drafting a new
Constitution, was disbanded in April 2010. In September 2010, following an
appeal by 252 MPs from the ruling coalition, the Constitutional Court ruled
that the constitutional amendments of December 2004 had been adopted in
violation of the relevant constitutional procedure. On these legal grounds, the
1996 Constitution has been reinstated. Subsequently, the parliament adopted a
new law on the Cabinet of Ministers as well as amendments to the parliamentary
Rules of Procedure and to 32 other laws, aimed at bringing the legal framework
in line with the 1996 Constitution. Experts consider that a number of these
amendments gave even wider powers to the President and further weakened
parliamentary control over the executive.

In December 2010, the Venice Commission  issued
an opinion which concluded that the 1996 Constitution does not provide
sufficient checks and balances and encouraged the Ukrainian authorities to
engage in a comprehensive process of constitutional reform based on established
procedures and involving all the relevant players.

In November 2010, the President established
a Commission for the Strengthening of Democracy and Rule of Law which was
tasked “to unite efforts of the state authorities, political parties, civil
society organisations, other institutions of the civil society for the
strengthening of democracy and rule of law”. Its main task was to follow up on
constitutional amendments (in particular those required to further reform the judiciary
and the prosecutor’s office), the Venice Commission recommendations and the
fulfilment of Ukraine’s obligations before the Council of Europe (CoE). Just
after the reporting period, the President set up a special working group to
prepare the concept of the future Constitutional Assembly that will draft
amendments to the Constitution.

As reported in the previous year, the
overall conduct of the presidential elections in early 2010 was
positively assessed by the International Election Observation Mission. At the
same time, the practice of amending the electoral framework in the middle of
the electoral process was criticised. Local elections were postponed from
spring to October 2010. In July 2010 the parliament adopted a new version of
the law on local elections, which was widely criticised by local and
international election experts. In August, at an extraordinary plenary session, the parliament adopted additional
amendments to that law. These amendments addressed a number of issues but left
some important ones untouched. Most independent
domestic and international election observers criticised the conduct of the
local elections as being a step backwards compared with other post-2005
elections. The Election Observation Mission of the
Congress of Local and Regional authorities of the CoE highlighted a number of
weaknesses and noted in particular that the local elections were ‘not of a
standard [we would have] wished to see’ as Ukraine ‘had already shown it can do
better’.

In November 2010, the President set up a
working group to improve the electoral legislation with the aim of bringing it
into line with international democratic standards and speeding up its
codification. Since 2002, the Organisation for the
Security and Cooperation in Europe — Office for Democratic Institutions and
Human Rights (OSCE/ODIHR) has recommended the adoption
of a single election code. For its part the EU has funded the drafting of an
election code (drawing on expertise from the OSCE/ODIHR), which has been registered in parliament and has been positively
assessed by the Venice Commission. However, the working group has not used this
draft election code as a source document for preparing future draft
legislation. The working group did not include, as full-fledged members, either
independent experts or representatives of civil society organisations, nor does
it include a significant number of representatives of the opposition. 
Subsequent to the reporting period, assurances have been given to the EU
concerning the broadening of representation in the working group, and this
aspect will be closely followed in 2011.

The reinstatement of the 1996 Constitution
has led to uncertainty regarding the date of parliamentary elections. In February 2011, just after the reporting period, the parliament
adopted a series of constitutional amendments proposed by the governing
coalition whereby the term of office of the national parliament and of local
government councils is extended from four to five years. The draft amendments
also envisage that the next parliamentary elections should take place in
October 2012 and the next presidential elections in March 2015. Some provisions of the current legislation on political parties
continue to contradict other legislative provisions as well as the provisions
of the European Convention on Human Rights and European standards in the field
of political parties. The dependence of political parties on private funding is
a problem which remains to be solved.

The legislation on judicial reform
was rapidly drawn up by the new presidential administration and adopted in July
2010, without waiting for the opinion of the VC. In October, the Venice
Commission issued its opinion on the law on the Judicial System and the Status
of Judges. The opinion acknowledged some progress in a limited number of areas
but contained strong criticism of a number of points, notably the risk that the
executive would have greater control over the judiciary. The law weakens the
powers of the Supreme Court and at the same time gives the High Council of
Justice more authority to appoint and dismiss judges. These shortcomings need
to be addressed urgently. A start was made when, in December, the removal of
the head of Ukraine’s Internal Security Service from membership of the High
Council of Justice: this action eliminated an important potential conflict of
interest and a risk for the independence of the judiciary. No progress can be
reported on the adoption of a draft Code of Criminal Procedure or on the law
reforming the Prosecutor’s Office, which passed in first readings in the
parliament in 2009. Similarly no progress was made in reforming the Bar and
setting up a professional Bar Association. At the end of the year a number of
criminal investigations were initiated against former government officials —
including the former Prime Minister. These actions have drawn criticism
regarding the potential use of the criminal justice system for political
purposes.

With regard to the fight against
corruption, no progress was achieved in 2010. Regrettably, in December,
parliament abolished the anti-corruption package of legislation and
other measures which had been adopted in 2009 but never implemented. On the
same day, the parliament approved in first reading a draft law on the
principles of preventing and combating corruption. Shortly after the reporting
period, the commission in charge of fighting corruption was abolished.

Only limited progress can be reported on strengthening
local self-government. In September 2010,
amendments were adopted to the Law on the City of Kyiv, separating the post of
the elected Mayor from the post of the Head of the City State Administration.
The latter is appointed directly by the President and holds the main executive
powers.

With regard to public administration
reform, work continued on drafting framework legislation on the civil
service, ministries and central executive bodies, but without presenting a
comprehensive strategy for reform in this area. In October 2010 the president
announced a far-reaching re-structuring of the central executive apparatus.
This announcement was followed in December by decisions to reduce radically the number of ministries and executive agencies and their respective
staff and to recast a number of government agencies as ‘central executive bodies’. While these reforms have the potential to increase efficiency by
reducing the levels of bureaucratic control in Ukraine, it is important to
ensure they are counterbalanced by appropriate inter-institutional checks and
balances.

The Ombudsman’s activities need
further support to strengthen the independence and effectiveness of the office
and to raise its profile. In August 2010 a position of Ombudsman for
Children’s Rights was created, as a deputy to the Parliamentary Ombudsman
for Human Rights.

Human rights and fundamental freedoms

A deteriorating situation was observed in
the field of human rights, fundamental freedoms and the rule of law. The
EU expressed concern over the deteriorating respect for fundamental freedoms
and democratic principles in Ukraine. Such trends were also criticised by the
OSCE Representative on Freedom of the Media, in the October resolution on
Ukraine issued by the Parliamentary Assembly of the CoE and in statements from
international and domestic human rights organisations. There were reported cases of harassment and prosecution of human rights activists.

Just after the reporting period, in January
2011, the parliament adopted the law on access to
public information which was welcomed by the OSCE Representative on Freedom of
the Media. Other commitments related to laws on public service broadcasting,
media ownership transparency and privatization of print media, and the
abolition of the “public morality law” remain unfulfilled.

As regards media freedom, during the
reporting period, the number of cases of violence against and intimidation of
journalists increased, and little progress was reported in investigating such
cases. Increasingly frequent controls were reportedly carried out at media
premises both in Kyiv and the regions. The investigation into the disappearance
of a Kharkiv journalist Vasyl Klymentiyev in August has not been completed.

Implementation of the judgments of the European
Court of Human Rights remains an area of concern. The high number of
pending cases against Ukraine reflect structural problems within the judiciary
system in dealing with human rights issues.

Civil society organisations and opposition
parties have complained about restrictions on the freedom of assembly.
In particular, opposition parties complained that the police gave preferential
treatment to supporters of the Party of Regions. People who took part in a
peaceful demonstration against the new Tax Code are being prosecuted for
damaging the pavement of the square where they gathered. In June 2010 the parliament
adopted, at first reading, a draft law on peaceful assemblies which was
criticised by some civil society organisations for imposing restrictions on the
freedom of assembly. In October 2010 the Venice Commission  welcomed the new
draft as an improvement over the previous one but identified a number of issues
still to be addressed to make it compliant with European and international
standards. No progress can be reported regarding the adoption of a new law on
civil society organisations, despite numerous debates on the issue. The
existing law, adopted in 1992, has a number of shortcomings.

No progress was reported on the adoption of
comprehensive anti-discrimination legislation, as recommended by UN and CoE
monitoring bodies.

As regards respect for the rights of
persons belonging to national minorities, there continued to be
sporadic reports of incidents of anti-Semitism, including the use of
anti-Semitic messages by one of the candidates in the presidential elections.
Other national minorities continued to be the object of discrimination and
racism including, in particular, the Roma and the Crimean Tatar communities.
Further efforts are needed to increase awareness of racial discrimination and
to fight it. In February 2010, an Action Plan for 2010-2012 was adopted by an
Inter-agency Working Group set up to tackle xenophobia, interethnic and racial
intolerance. In November, people watching a film on the Transgender Day of
Remembrance were attacked by masked men. The local police classified the attack
as ‘hooliganism’ but the victims were pressing the police to register the acts
as ‘hate crime’. The event was followed by an EU demarche. No steps have been
taken to develop a modern legal framework on ensuring the rights of minorities,
and continuous efforts are needed to ensure implementation of the CoE Framework
Convention for the Protection of National Minorities and the European Charter
for Regional or Minority Languages. The ministry of education and science
reversed the decision of the previous government to carry out school leaving
tests only in Ukrainian and re-introduced the option of pupils taking these
tests in national minority languages. Just after the reporting period, Ukraine
submitted a draft law on languages for the review of the Venice Commission.

Poor conditions in detention facilities
leading to cases of torture and ill-treatment remained serious, and
systemic human rights violations by law-enforcement agencies continue to be
reported. Impunity in this regard is a matter of concern. The ministry of interior’s
department on Human Rights Monitoring, whose job it was to monitor respect for
human rights within the police force, was abolished despite the positive
results achieved in 2009. A National Preventive Mechanism has yet to be established
in spite of the September 2007 deadline, which was set when Ukraine ratified
the Optional Protocol to the UN Convention against Torture in 2006.

Institutional capacity in implementing equal
treatment policies has improved and some progress can be reported. A department
for the Family and Gender Policy was established within the ministry for family,
youth and sport and an inter-ministerial commission was set up to address
claims of gender discrimination. In the course of the year, the authorities
launched a substantial raft of gender initiatives and coordination exercises
among executive agencies in order to implement national gender polices.
Domestic violence remains at high levels.

In March 2010, the UN Convention on the Rights
of Persons with Disabilities and its Optional Protocol came into force.
Progress has been achieved especially in ensuring that national legislation
complies with the Convention and its Optional Protocol. However, overall
progress on access to social services for the disabled remained uneven
throughout the country, as it depends on effective decisions and policies at
local level.

Some progress has been achieved in the area
of children’s rights. The national legislation has been brought into
line with the UN Optional Protocol on the Sale of Children, Child Prostitution
and Child Pornography (UN CRC OPSC), as was recommended by the UN Committee on
the Rights of the Child in 2007. In January 2010, Ukraine adopted a law to
combat child pornography. For its part, the EU helped organise a series of
regional seminars aimed at better implementing The Hague Convention on the
Civil Aspects of International Child Abduction.

Progress was made in the area of trade
union rights and core labour standards: in November 2010 the
government, trade unions and employers signed a new general agreement which
will apply for the next two years (2011 -2012). The agreement is intended to
increase labour productivity, create new jobs and raise the average salary by
17.8 % in 2010, by 15 % in 2011 and by 16 % in 2016. The government
undertook to create an advisory tri-partite committee working with central
executive bodies.

Regional and international issues,
cooperation on foreign and security policy, WMD non-proliferation and
disarmament, conflict prevention and crisis management

Ukraine
continued to cooperate actively with the EU on regional and international
issues, and aligned itself with 26 out of 44
CFSP declarations in which it was invited to take part.

Ukraine's
participation in the EU's ‘Atalanta’ naval operation was initited, building on
the positive experience of its participation in EU operations in the Balkans.
In November 2010 the EU and Ukraine reached agreement on financing activities
under the project on ‘Bio-safety and bio-security improvement at the Ukrainian
anti-plague station (UAPS) in Simferopol’.

Ukraine cooperated constructively with the
EU on all questions related to the Transnistria settlement efforts. It
took part in informal meetings of the so-called ‘5+2’ format.

No progress was made on ratifying or
implementation of the Rome Statute of the International Criminal Court. For
the EU, this remains a core element for the foreign policy titles of the
Association Agreement, and will therefore be pursued in the negotiations.

Ukraine and the Republic of Moldova failed
to find a negotiated solution to their few remaining disagreements over the
demarcation of the northern and southern segments of their common border. More
effort and attention to this issue are needed in the ongoing visa dialogues
between the two countries and the EU.

EU Border Assistance Mission to the
Republic of Moldova and Ukraine (EUBAM)

Ukraine continued to be fully committed to,
and participated constructively in, the work of EU Border Assistance Mission to
the Republic of Moldova and Ukraine (EUBAM). With EUBAM support, the
professional capacities of the Ukrainian customs and border guard services were
further enhanced, as was inter-agency cooperation within Ukraine and between the
Republic of Moldova and Ukraine. EUBAM supported the demarcation of the central
(Transnistrian) segment of the Moldovan-Ukrainian state border on the Ukrainian
side.

3. 
Economic and social reform

Macroeconomic framework and
functioning market economy

Ukraine was among the countries in the EU
neighbourhood that were hardest hit by the global economic and financial
crisis. However, in 2010 Ukraine’s economic fortunes improved in parallel with
the rebound in other regions and in the context of a more stable domestic
political situation following the presidential election and the subsequent
formation of a majority government. Re-establishing a Stabilisation Agreement
with the IMF and agreeing on an Economic Reform Programme, under the
Supervision of the President’s Committee on Economic Reforms, were important
achievements in 2010.

The Ukrainian recovery was initially
export-led, but spread to consumer demand over the course of 2010. Investment also
recovered in 2010, albeit only in the second half of the year and relatively
timidly, considering the favourable base effect stemming from its drastic
contraction during the crisis. This in part reflected problems in the operating
environment for businesses, as well as companies’ continued difficulties with
access to finance (loans by domestic banks to non financial companies barely
increased in real terms in 2010).

On the external front, the positive
adjustment of the current account that had resulted from the crisis-related
contraction of imports during 2009 continued through the first half of 2010,
before starting to reverse as domestic demand picked up. The current account
slipped back into deficit. The full year current-account deficit is estimated
at USD 2.9 billion (2,1 % of GDP.

Nonetheless, 2010 was a successful year
overall for Ukraine in terms of external economic stabilisation. The country
was able to tap various sources of external financing. Notably, this included a
return to capital markets with a combined USD 2.5 billion of sovereign Eurobonds
issued in September and December 2010. The government also secured a USD 2
billion revolving loan from a Russian state-owned bank and, most importantly, a
new USD 15 billion Stand-by Arrangement (SBA) with the IMF. This began in July
2010 and runs until the end of 2012. (The previous SBA stalled in November 2009
over Ukraine’s lack of compliance with agreed programme parameters). Meanwhile,
negotiations between Ukraine and the EU on a macro-financial assistance loan of
EUR 610 million were launched, but not concluded, in 2010.

The combination of multilateral, bilateral
and private external borrowing by the government, along with a gradual return
of external lending to private borrowers in Ukraine, allowed the National Bank
of Ukraine (NBU) to replenish its foreign exchange reserves from a low of USD
24.1 billion (EUR 17.6 billion.) in February 2010 to USD 34.6 billion (EUR 26.2
billion) at year-end.

Domestically, the NBU managed to control
inflation relatively well in 2010. Following three years of double-digit
increases in consumer prices, the year-average headline inflation in 2010 came
to 9.4 %. Core inflation was slightly lower, at 8.6 %, reflecting the
fact that part of the price pressure stemmed from increases in excise taxes and
administered prices, notably for gas and communal heating services. These were
implemented in line with the reform programme agreed between Ukraine and the
IMF with a view to gradually bringing retail energy prices to cost recovery
levels, thereby reducing the need for state transfers to Naftogaz. In its fiscal policy, Ukraine broadly
followed the consolidation course agreed with the IMF under the July 2010 SBA.
At just over 5 % of GDP, the general government deficit was even lower
than the initial IMF programme target, although this positive development was
offset by the higher-than-mandated deficit of Naftogaz, which occurred despite
the gas price hikes implemented under the programme.

In 2010 Ukraine adopted a new Budget Code,
on the basis of which the authorities drew up a 2011 budget in line with the
consolidation benchmarks agreed with the IMF. Then, in December 2010, the IMF
completed its first programme review under the SBA and released the second
tranche of its programmed financial support of USD 1.5 billion (or EUR 1.2
billion).

Employment and social policy

The economic recovery positively influenced
the employment situation. According to official labour market figures,
unemployment declined from 9.6 % in 2009 to 8.8 % in 2010, while the
number of jobs rose slightly. However the informal sector still represents a
substantial share of employment. At the end of 2010, 564 000 persons were
officially registered as unemployed, of which 55 % were women and 42 %
young job seekers. The 2010 budget specifically supported, for the first time,
young job seekers and people looking for their first job. Some 323 000
people benefited from this. In September 2010 the Cabinet of Ministers approved
a resolution on the national employment policy for the period 2010-2011.

Under the state insurance scheme, the State
Employment Services (SES) supported people who had lost their job and assisted
those who were looking for a new job. In 2010 the SES opened seven vocational
educational training centres to train and retrain people according to the
demands of the labour market, and there are plans to open ten more. The government
drafted a decree ‘On rules governing agreements concluded by the economic
operators concerning training, retraining and better qualifications for
workers’. The draft law on a national qualification system, submitted to the parliament
in May 2010, uses the SES labour market analysis as the basis for the annual
educational plan to be implemented by the ministry of education and science and
other ministries.

As regards social
protection and the fight against poverty, Ukraine prepared amendments to
laws on social protection and the rehabilitation of disabled people. The draft
amendments promoted equal employment opportunities, the fight against
discrimination and barrier-free access for the disabled. The government
continued to support persons with difficult living conditions and who face
difficulties competing on the labour market. The minimum salary rose slowly
during 2010, reaching 922 UAH (or EUR 88) per month in December. Pensions were
also increased during the reporting period. The concept for reforming and
improving the delivery of social services is under discussion at the ministry
of labour and social policy.

In June 2010, the Committee for Economic
Reforms, operating under the President, endorsed a draft social protection reform
programme. This aims to give poor people better access to the social protection
system and ensure that social assistance is targeted more effectively. Only
56.8 % of those living below the absolute poverty line currently receive
social assistance and only 23 % of social transfers reach the poor.

Ukraine adopted the law on social
dialogue, which was promulgated by the President in January 2011. The law
is expected to improve the institutional framework and the functioning of
social dialogue.

No progress can
be reported regarding the adoption of the long-awaited amended Labour Code.
Concerns were expressed by the ILO on the non conformity of certain provisions
with its basic standards, notably regarding the right to strike.

Ukraine signed
international agreements on mutual employment with Latvia, Lithuania, Poland
and Portugal and on mutual social protection with Bulgaria, Estonia, Spain,
Latvia, Lithuania, Slovakia and Czech Republic.

In the area of agriculture, in June
2010, the ministry of agrarian policy issued an instruction on a departmental
programme for the socio-economic development of rural communities.

In
order to improve the competitiveness of agricultural production, as well as
quality schemes, the ministry established the Agricultural Wholesale Markets
Development Group and organised an International Agricultural Wholesale Market
Investor Forum with the participation of experts and representatives from EU member
states. During the reporting period Ukraine adopted the law on the ‘Wholesale Markets
of Agricultural Products’.

In the field of regional policy dialogue
changes first in the government and then in ministerial structures meant
that no progress was made in implementing the agreed work plan for the
Memorandum of Understanding on Regional Policy dialogue signed in July 2009,
other than the launching of an OECD Territorial Review. When ministerial
structures will be finalised, the Regional Policy dialogue and implementation
of a revised programme will be continued as of 2011.

4. 
Trade-related issues, market and regulatory reform

During the
reporting period, bilateral trade between Ukraine and the EU rebounded,
although total trade did not reach its 2008 level. EU exports to Ukraine
increased by 24.5 % compared to 2009 and Ukraine’s exports to the EU
increased by 43.4 %. Five rounds of negotiations for a EU-Ukraine DCFTA
were held during the reporting period.

There was very limited progress on
implementing the customs-related priorities of the Association agenda.
Customs procedures are being computerised, but the risk-based customs control
system still needs to be substantially upgraded. An updated version of the
harmonised system for the classification of goods (HS) was adopted in January
2011. . The State Customs Service of Ukraine (SCSU) took preparatory steps to
join the common transit system. Preparations are under way for special customs 
controls during the EURO 2012 football championship, and in particular for
action to protect intellectual property rights. Further steps are needed to tackle
the problems arising from cumbersome, bureaucratic and restrictive customs
controls . The procedures for verifying customs valuation are still not in line
with World Trade Organisation (WTO) rules, as transaction values are routinely
questioned and minimum prices arbitrarily used. Integrity remains an area of
serious concern.

On free
movement of goods and technical regulations, in May 2010 the government
adopted a decree ‘on approving the plan for priority measures regarding the
reform of the system of technical regulation’. In December 2010 the President
signed the Laws on Market Surveillance and General Product Safety. A draft law
on ‘liability for damage rendered by the defect of a product’ was submitted to
Parliament. Under the administrative reform announced
by the President in December, the State Committee on
Technical Regulation and Consumer Policy (DSSU) would
be reorganised as the State Service on Technical Regulation. It is not clear
whether the reform will address the long-standing institutional challenges in
the Ukrainian system of technical regulation.

There are
concerns over measures relating to the export of grain. The introduction
of additional grain quality checks by Ukrainian customs and the quotas for
grain exports imposed in October by the Ukrainian government go against the
spirit of trade provisions in the PCA. They also raise serious concerns in
terms of WTO compatibility.

In the area of
establishment and company
law, the Parliament adopted a law on licensing.
This law clarifies which types of economic activities are subject to licensing
procedures. The Parliament also adopted two laws on the state registration
process — one concerning the registration of legal entities and the other
relating to plans for an electronic registration system.

Ukraine continued gradually bringing its sanitary
and phyto-sanitary (SPS) standards into line with the EU's, and there was
progress on the SPS negotiations for the DCFTA. In July 2010, Ukraine adopted
rules on the frequency of veterinary-sanitary inspections at enterprises,
applying strengthened hygiene rules based on the Hazard Analysis Critical
Control Point (HACCP) system. Ukraine established a working group that started
work on reforming the food safety inspection system on the basis EU standards.
It further modernised laboratories and trained SPS staff. In 2010, the European
Commission’s Food and Veterinary Office (FVO) carried out four inspection
visits. Two missions in the poultry sector concerned, respectively, animal
health issues and animal production. The other missions focused on the dairy
sector and on checking for residues and contaminants in live animals and animal
products, including checks on veterinary medicinal products. In August 2010,
the EU's veterinary emergency team carried out a mission to help Ukraine
develop control and eradication measures for African swine fever. Additional
attention should be paid to transparency when amending or proposing
legislation. The new procedure for authorising imports of animal products deserves
special attention, as does the draft legislation on water and on the
certification of meat, dairy and poultry products.

Negotiations on
services continued in the context of the overall DCFTA negotiations.

As regards financial
services, Ukraine is recovering from the global financial crisis, although
the banking sector in Ukraine remains fragile. Financial sector reforms are
focused on ensuring an adequate level of capitalisation and strengthening the
independence of the National Bank of Ukraine (NBU). In 2010, the financial
sector regulators developed several concept papers and actions plans for
prudential supervision, insurance, implementing International Financial
Reporting Standards (IFRS) in non-bank financial institutions, protecting
consumers of financial services and developing credit cooperation systems. In
November 2010, a draft law amending the existing Law on Financial Services
Market was submitted to the Cabinet of Ministers. It aims to establish the
legal framework for a unified public financial policy on financial services, to
strengthen the coordination between and accountability of financial sector
regulators and to strengthen their operational independence.

Insurance
markets remain problematic in Ukraine. As part of the President’s reform plans,
Ukraine decided to draft a new insurance law in 2011 in order to bring
Ukrainian legislation into line with Solvency II requirements.

In the field of accounting, banking
institutions are legally required to issue IFRS statements, but not all of them
have complied. The mandatory use of IFRS for all banking institutions by 2011
is a condition of the IMF Stand-By agreement. Legislative and non-legislative
preparatory work is under way to extend IFRS reporting to non-banking financial
institutions.

No progress can be reported in the field of
audit and accounting.

Ukraine and the IMF assessed regulatory
restrictions to the free movement of capital. In October 2010, the NBU
re-instated the requirement for banks to deposit there for six months 20 %
of the foreign currency credits or deposits received from non-residents.

The Ukrainian
business and investment climate remains unstable, reflecting unpredictable
and non-transparent decision-making by the authorities and the economic
operators and lack of trust in the judiciary. Controversies between the
business community and the government arose over the issuance of VAT bonds and
the new proposed Tax Code (see below). Ukraine’s failure to respect WTO
rules on customs valuation has created considerable problems for European
companies across various sectors throughout 2010, contributing to the
perception of a deteriorating business climate. A study ordered by the European
Business Association indicates that the apparent stability resulting from the
presidential elections makes Ukraine more attractive for investment, though
this is mitigated by the negative perceptions of increased government and
customs interference in business, worsened corruption and lack of progress with
court system reform.

Other key areas

Concerns remain in the taxation
area. In particular, tax legislation and the
functioning of the administration are not fully in line with the principles of
good governance and fair tax competition. A final, comprehensive strategic plan
for tax administration is still lacking. On 2 December,
the parliament approved the Tax Code incorporating presidential amendments. The
revised law integrates various earlier laws and regulations in a single
document, keeps intact the existing simplified taxation regime for individual
entrepreneurs and limits the powers tax authorities can exercise vis-à-vis
business, with the aim of rectifying some problematic issues. Implementation of
the new code will require a close monitoring, especially as regards the
application of fines and fees for tax violations, the registration of
newly-established entities, the taxation of intermediaries and the mechanism
for comparing the value of products.

Indirect taxation has been a focus of
interest during 2010. The government made an effort to settle VAT refund
arrears by the end of 2010, issuing VAT bonds in August
with a face value of UAH 16.4 billion (EUR 1.44 billion) or 1.6 % of GDP.
This measure cleared a large part of the arrears that the state had built up on
VAT refunds to companies. Nevertheless, it was controversial within the
business community, both domestically and abroad, as companies felt compelled
to register (seeing the bond scheme as the only way of being paid at all), even
though the bonds offered a coupon inferior to market yields from comparable
government bonds. Indeed, companies in need of cash for their operations had to
sell the bonds at a discount of reportedly 20-30 % of face value. There
were also complaints about the preferential treatment of companies with close
ties to the authorities, while other enterprises reported that part of their
VAT refund claims were not recognised and remained unpaid.

According to the new Code, compliant
taxpayers will, from March
2011, be eligible for automatic VAT refunds aimed at
simplifying the refund procedures and making them more transparent. The maximum periods for VAT refunds under a regular system have
been established. Some of the compliance criteria for automatic VAT refunds
cause concern.

In the field of
competition policy, two draft laws had their first reading in parliament
— one raising the notification thresholds for concentrations and the other
introducing criminal liability for serious competition infringements. A third
draft law under consideration aims to increase the powers of the Anti-Monopoly
Committee to collect evidence in investigations. Steps towards better
transparency are also being taken with the publication of decisions online,
open hearings and improved access to documents. Ukraine has no law regulating state
aid, but in early 2010 the government issued a decree to increase
transparency and reform the concept of state aid.

Ukraine
reinforced its international commitments in the field of intellectual
property rights (IPR) with the entry into force of the Singapore Treaty and
the Strasbourg Agreement. Authorities continued their ex officio
actions, carrying out a number of seizures, and 50 criminal responsibility
court cases were opened in 2010. Nevertheless, pirated and counterfeit goods
remain widespread. At 85 %, Ukraine shares 13th place in an
independent expert organisation’s ranking of the countries with highest
prevalence of software piracy.

A new law on public procurement came
into force on 30 June 2010. Among other things, it set up the Anti-Monopoly
Committee as the new, independent review body providing remedies and review
procedures which are now closer to EU standards. Further legislative
proposals in line with European and international standards were also
prepared in 2010 but have yet to be adopted. In addition, legislative
amendments giving rise to possible exclusions from public tendering were a
source of concern in early 2011. This influenced the overall
assessment of public financial management in Ukraine, so that disbursements
from sectoral budget support operations were suspended.

In the
framework of a twinning programme, the State Statistics Committee of
Ukraine (SSCU) assessed its own work in the light of the European Statistics
Code of Practice and found its activity to be in line with international
practice. Improvement of methodology continued. Ukrainian experts met their
Polish counterparts to compare trade data and identified possible reasons for
discrepancies. In August 2010, SSCU signed a protocol with the customs
authorities to obtain more complete information on cargo declarations with a
view to improving trade statistics.

On enterprise
policy, there were several initiatives in support of Small and Medium-sized
Enterprises (SMEs) in 2010. The state registry for companies is being simplified,
as are checks on businesses. A draft law on bankruptcy and licensing is before
Parliament. In May 2010, the State Committee of Ukraine for Regulatory Policy
and Entrepreneurship prepared the presidential ordinance necessary for Ukraine
to take part in the European Small Business Act initiative.

The government
cancelled the planned draft law on public internal financial control,
opting instead to widen the scope of the Budget Law to facilitate the
development of internal audit.

With regard to external
audit, a Peer Review with the support of SIGMA[1]
took place in 2010, providing a basis for future policy decision-making. As in
2009, there is still a need for closer cooperation between Ministries and state
agencies to prevent fraud and serious irregularities.

5. 
cooperation on justice, freedom and security

In the field of mobility, an Action
Plan towards visa liberalisation was announced at the EU-Ukraine Summit in
November 2010. The implementation of the Visa Facilitation and Readmission
Agreements with Ukraine has continued. The Commission has adopted in October
2010 draft negotiating directives for the renegotiation of the Visa
Facilitation Agreement in order to align it with the new Visa Code and to
introduce further facilitations. The negotiating directives were approved by
the Council on in April 2011.

The State Border Guard Service pursued border
management reforms in line with the targets of the 2015 plan in terms of
infrastructure, career development and personnel training. In May 2010, it
signed an 18-month cooperation agreement with FRONTEX covering risk analysis,
joint operations and management. In October 2010, Ukraine adopted an Integrated
Border Management Concept followed by an Action Plan. Even closer cooperation
is still needed between the State Border Guard Service and the Customs Service
to optimise information exchange at all operational levels. In the framework of
Ukraine's preparations to co-host the 2012 European Football Championship, an
EU-funded twinning project on public order and crowd control completed its
activities in March and a security meeting was held with Poland in February
2010.

Ukraine continued discussions on border
demarcation with the Republic of Moldova under the auspices of the EUBAM,
but ongoing tensions concerning in particular the region of Palanca continue to
have a negative impact on regional security. A Common Border Security
Assessment Report (CBSAR) is issued jointly by both countries every month and a
customs data exchange (PAIES) is in place.

Important shortcomings
in the field of migration and asylum remain both in the legislation
and in its implementation. Ukraine has to improve substantially its refugee
protection and asylum system. Ukraine still does not have appropriate asylum
legislation in place and recent administrative changes regarding the asylum
authority contributed to the increase of the backlog in dealing with asylum
requests. The rights of recognized refugees are not respected (i.e. housing,
education, access to the labour market).  .

Ukraine continued to fight against organised
crime, implementing its obligations under the 2003 United Nations
Convention on Trans-national Organised Crime through regional cooperation to
tackle the trafficking of persons and the smuggling of migrants. However,
Ukraine’s capacity to tackle organised crime continued to suffer from
institutional fragmentation. A national strategy and action plan are urgently
required to determine the powers and responsibilities of the various law
enforcement agencies and to ensure that they work together. As in 2009, the
Third Protocol on the Illicit Manufacturing and Trafficking of Firearms, Their
Parts, Components and Ammunition remains unsigned.

In September 2010, Ukraine ratified the CoE Convention on Action against Trafficking in Human Beings.
The various law-enforcement agencies are still discussing a draft law that
would provide more severe penalties for trafficking crimes and give victims
greater protection. Ukraine continued cooperating with EU member states and
Interpol on technical information exchanges. Cooperation with civil society
also continued apace. Further efforts are needed to
combat internal trafficking and to develop protection and rehabilitation
measures for victims of forced prostitution and labour exploitation particularly
in the construction and agriculture sectors

In January 2010 the ministry of health
signed a Memorandum of Understanding with the European Monitoring Centre for Drugs
and Drug Addiction (EMCDDA) and in September it adopted a National Drugs
Strategy for 2010-15. Meanwhile, cooperation continued with civil society
organisations on demand reduction. There is an urgent need for better financing
of drug monitoring and for more reliable information on drug prevalence,
particularly among youth and other high-risk groups. The absence of a
drug-substitution programme within prisons and detention facilities is a cause
for concern. It remains crucial for the Ukrainian authorities to work
systematically with civil society groups on developing an integrated approach
to this problem. Ukraine took part in the ENP regional seminar on the EU drug
monitoring system organised by EMCDDA and the Commission in Brussels in October
2010.

In the area of the fight against money
laundering and economic crimes, Ukraine continued implementing its national
control regime in the light of the recommendations made by Moneyval’s 2009
Third Round Mutual Evaluation Report in relation to coordination between law
enforcement agencies on anti-corruption. The 2005 Council of Europe Convention
on the Laundering, Search, Seizure and Confiscation of the Proceeds from Crime
and the Financing of Terrorism was ratified in November 2010 and a low on
prevention and countermeasures against the laundering of the proceeds of crime
and the financing of terrorism was adopted in May 2010. Serious inroads into
the prosecution of money laundering cases have yet to be made. In March 2010,
Ukraine acceded to the Council of Europe Criminal Law Convention on Corruption
and its Additional Protocol.

In the area of police and judicial
cooperation the parliament adopted the law on Personal Data Protection in
June 2010 which entered into force in January 2011. In September Ukraine ratified
the 1981 Council of Europe Convention for the Protection of Individuals with
regard to the Automatic Processing of Personal Data. Ratification of the former
and its Additional Protocol on supervisory authorities and trans-border data
flows will enable further development of cooperation with Europol and Eurojust.
Cooperation between the EU and Ukraine is based on the Conventions of the Hague
Conference on Private International Law and concentrates on family law. In this
context Ukraine has recently signed the 2007 Maintenance Convention

6. 
Transport, energy, environment, the information society,
research and development

In
the context of broader administrative reform, the Ministry of Transport
and Communications was re-named the Ministry of Infrastructure and will now cover tourism in addition to transport and communications.

In
October 2010, the Cabinet of Ministers approved the transport strategy to 2020.
To implement the strategy the ministry will have to submit to the Cabinet a
shorter-term implementation programme covering the period until 2015.

Under the UNECE[2]-AETR
agreement on driving times and rest periods, Ukraine made substantial progress on introducing
the digital tachograph. In June 2010 the acceptance of applications for
the provision of cards for digital control devices started.. Ukraine plans to
draw up a road safety strategy.

The Presidential Programme of Economic Reforms for 2010-2014 stipulates that action plans
are to be drawn up in 2011 for implementing
the 2009 railway reform programme.

One round of
negotiations on a comprehensive aviation agreement between the EU and Ukraine
took place in March 2010. Ukraine has not replied to the latest Commission
proposals. In November 2010 the Ukrainian parliament passed the draft Air Code
at first reading.

Ukraine needs
to ensure that its inland waterway fleet will meet recent UNECE requirements.
Maritime safety also remains an issue of concern: Ukraine
has not yet approved the national maritime safety concept. Ukraine will
need to step up enforcement if it wants to be removed from the black list of
the Paris Memorandum of Understanding on port state control.

Ukraine and the EU consolidated their energy
cooperation during 2010. In July,
Ukraine adopted a new gas law, which the EU considers a sound basis for the
alignment of  the Ukrainian gas market with EU and Energy Community rules. In
September, the Protocol on Ukraine’s accession to the Energy Community Treaty
was signed. In November, the EU-Ukraine Summit adopted
the fifth progress report on the implementation of the Memorandum of
Understanding on Energy cooperation.
In December, Ukraine ratified the Treaty, paving the way for its membership in
February 2011.

In August 2010, Ukraine
increased by 50 % its gas
tariffs for households and municipal heating companies. This is a significant
step towards improving the financial viability of Naftogaz. Further action is
needed to restructure Naftogaz, to increase transparency in the gas sector and
to ensure full-cost coverage for gas supplies to industry. Ukraine continued to
work towards membership of the Extractive Industry
Transparency Initiative, aiming at transparency of hydrocarbons revenues. Ukraine took some steps to strengthen the
regulator, including through EU-supported training. New laws are being drafted on electricity, energy
sector regulation, the compulsory installation of gas meters and gas and
electricity settlements. In February
2010, Ukraine began the process of corporatising the electricity transmission
operator ‘Ukrenergo’. An energy reform programme is being prepared.

Following-up the joint 2009 EU-Ukraine conference on the modernisation of the
Ukrainian gas transit system, the EU agreed to support a feasibility study and
environmental and social impact study on the modernisation of gas networks and
underground gas storage. This study, which started in February 2011, is
part of the due diligence process of the European Investment Bank (EIB), the
European Bank for Reconstruction and Development (EBRD) and the World Bank. In September 2010, the involved donors also
agreed to consider a ‘fast track’ project on the reconstruction of sections of
the Urengoy-Pomary-Uzhgorod gas pipeline. Ukraine further developed its
plans to construct a Liquefied Natural Gas terminal at the Black Sea coast and
continued working on a draft oil stocks law. Together with Azerbaijan, Georgia,
Lithuania and Poland, Ukraine continued to develop a Euro-Asian Oil
Transportation Corridor. Ukraine moved ahead with preparations to assess the
possibility to join, together with the Republic of Moldova, the interconnected
electricity networks of continental Europe. Ukraine further upgraded its
electricity networks.

In March 2010, Ukraine adopted an energy
efficiency programme for the period 2010-2015, aiming at a 20 % decrease
in Ukraine’s energy intensity, a 15 % decrease in the volume of harmful
emissions into the environment and a 50 % decrease in heat losses in the
housing sector compared to 2008. Ukraine worked on draft laws on energy
efficiency and energy efficiency in buildings. In July 2010, Ukraine adopted a
law establishing by January 2011 a regulatory commission for communal services
with the power to set communal services tariffs. Ukraine continued to work
towards a restructuring strategy for coal.

Regarding nuclear energy, the EU-Ukraine-International Atomic Energy Agency (IAEA) evaluation of the
safety of Ukraine’s nuclear power plants was completed.
Generally, it concluded that they are fully compliant with most of the IAEA’s
standards. Ukraine is making progress in addressing the identified shortcomings.
In 2010,  it further upgraded the safety of its nuclear
power plants as part of the € 1.5 billion upgrade package for 2010-2017. It
expressed interest in applying for Euratom and EBRD loans to help finance this
package. It continued strengthening its Nuclear Regulatory Authority and made good
progress in restoring the Chernobyl site to an environmentally safer condition.

In the field of climate change,
further steps were taken to draft legislation on emission trading. Ukraine took steps to prepare and approve new Joint Implementation
projects, 30 of which were registered at UN level, bringing the overall number
of registered projects to 48. The European Commission continued to support
Ukraine in implementing the Kyoto Protocol. Ukraine
is encouraged to fully implement the Cancun agreement and in particular devise
a low carbon development strategy including update information on target or
actions that it will implement.

Ukraine adopted
a national environment strategy to 2020, and started to prepare a
national environment action plan. Ukraine amended its legislation (Land and
Water Codes) on integrated coastal zone management and adopted a new law prohibiting the felling of woodland areas in and around Kyiv. Amendments to the State Programme 2006 – 2020 on Drinking Water are
being prepared. Ukraine actively
participated in developing an Integrated River Basin Management Plan for the
Tisza river, which was adopted by the parties in December 2010. Ukraine took some steps to promote the integration of environmental
considerations into other policy sectors such as energy. Continued efforts are
needed to develop legislation, to implement existing strategies and plans and
to further enhance monitoring and enforcement. Ukraine still faces a major
challenge in strengthening its administrative capacity at all levels.
Coordination between authorities continues to require particular attention.

Ukraine made no
significant progress on the UNECE protocols,[3] which it still
has not ratified. Moreover, it must give attention to implementing several
agreements it has already ratified.

In September
2009, the Espoo Convention’s Implementation Committee meeting decided that its
conclusions regarding the Bystroe Deep Water Canal should be addressed at the
next session of the Meeting of the Parties scheduled for June 2011. In 2010
several meetings were held with the Romanian side on the disputed issues. As
regards Aarhus Convention, an action plan on the implementation of the
Convention and a decree on public participation were adopted in December 2009.
Ukraine continued to cooperate in a compliance review of both conventions, a
final project report of which was submitted in August 2010 to the Ukrainian
side

While some
steps were taken to improve procedures and consultation with the public,
continued efforts are needed including in the context of environmental assessments.

Ukraine took
part in the EU Water Initiative, through (for example) a national policy
dialogue. It also took part in the International Commission for the Protection
of the Danube River and in the Commission on the Protection of the Black Sea against
Pollution. Cooperation and information exchange
took place between the European Commission and Ukraine, including on water,
forestry, waste management, management of environmental information, nature
protection and air quality.

During the reporting period there was no
significant development on civil protection. However, in February 2011
Ukraine ratified the 1993 ILO Convention on the
Prevention of Major Industrial Accidents which is expected to provide a
framework for mapping and cleaning up various industrial sites where large
quantities of hazardous chemicals are currently stored in unsupervised
conditions.

In the information
society sector, limited progress can be reported in the field of electronic
communications regulation. The parliament still needs to adopt several draft
laws, notably those simplifying market entry procedures for some electronic
communications services and strengthening the regulator’s independence. At
present the regulator does not have the powers to establish a level playing
field in the telecommunications market. Ukraine prepared amendments to the
telecommunications law. In the absence of an appropriate legal framework for
interconnection, the Antimonopoly Committee established that eight operators
hold a monopoly in the call termination markets. Subsequently, the National Commission for Communications Regulation (NCCR) set
termination rates for dominant operators. In July 2010, the parliament adopted
a law which introduced number portability. The implementation of number portability
will be important for improving the functioning of the market and for
consumers.

In October 2010
the government formally launched the tendering procedure for privatising the
state-owned fixed-line incumbent operator Ukrtelecom. (The government retains a
92.8 % stake in the company).

Regarding the audiovisual
sector, the Ukrainian parliament is currently reviewing a draft law which
envisages giving 'must carry' status to all Ukrainian TV channels on pay-TV
platforms. The draft law would have the effect of seriously limiting freedom of
reception and retransmission as established in the Convention on Transfrontier
Television ratified by Ukraine and the Audiovisual Media Services Directive,
the EU audiovisual acquis on audiovisual. If adopted, the draft law would be a
serious step backwards in the alignment of Ukrainian legislation with european
standards on media.

Ukraine continued to update its research and
innovation policy with more direct and sustainable economic development
objectives. Ukraine’s participation in the 7th Research Framework Programme (FP7) continued to be encouraging with
an increased number of successful proposals in 2010. As of November, 91
Ukrainian research entities were involved in successful FP7 research projects,
receiving an EU contribution of EUR 8.08 million.  The possibility to associate
Ukraine to FP7 is being explored. The ongoing bilateral ‘Bilat-Ukr’ project
organised various seminars and workshops supporting Ukraine’s participation in
FP7. As part of this project, analysis has been  carried out on the issues of
scientists’ mobility, research infrastructures and innovation as a basis for
fostering EU-Ukraine collaboration in these areas. The EU-Ukraine Science and Technology (S&T) cooperation agreement is in the final stages of
being renewed for a further period of five years.

Ukraine continued to participate actively in the
International Science & Technology Cooperation
Network for Eastern European and Central Asian countries (FP7 IncoNet EECA
project), which aims to support a bi-regional EU-EECA policy dialogue on
science and technology and to increase EECA participation in FP7. In October
2010, an IncoNet Brokerage Event for the FP7 energy theme was organised in Kyiv
by the FP7 National Information Centre.

Ukraine took an active part in the Black Sea
ERA-NET project which aims to help coordinate national research programmes
(from EU member states and partner countries) targeting the Black Sea region as
a whole. The project consortium for the Black Sea ERA-NET project recently
launched a first joint call for proposals to promote collaborative research on
innovative approaches to sustainable development in the region.

7. 
people-to-people contacts, education and health

In 2010,
particular attention was given to all levels of education, with new
reform plans to accelerate convergence with the developments in the EU. Reform
objectives include strengthening educational governance, improving quality and
accessibility, and ensuring the continuity of education levels and financing.
In August, the government identified pre-school education as a
new reform priority. It adopted a concept for a state programme of pre-school
education development to 2017, with objectives and benchmarks closely aligned
with those of the EU's Education and Training 2020 targets.

The ministry of
education and science initiated secondary curriculum reform in August with the
adoption of two state programmes 2010-15 to improve ICT, science and
mathematics education and to enhance teaching skills. Secondary education was
reduced from 12 to 11 years.

The draft law
on higher education encompasses key aspects of the Bologna Process
including implementing the three-cycle system, enhancing university autonomy
and facilitating student involvement in university governance, as well as
providing a legal basis for external assessments. In March, the Cabinet issued
an order on diploma supplements to university degrees to better facilitate
degree recognition and student mobility. Most higher education institutions
achieved the Bologna Process goals of implementing a two-cycle system, quality
assurance measures, ECTS and recognition of diplomas. However, there are still
major challenges as regards implementing the third cycle, adapting curricula to
labour market needs and setting up an independent quality assurance agency.

After a break
of five years the ministry of education revived the work of the National
Inter-Sector Committee on vocational education and training, ensuring
employer and trade union input into policy discussions. The draft law on a
national qualifications framework, prepared by the Confederation of Employers
in 2009, was re-submitted to parliament following the input of other
stakeholders. The Tri-partite Committee on Vocational Guidance convened in
November 2010. One key challenge that remains is to get businesses involved in
defining the content of training courses, so as to maximise trainees'
employment prospects. The ministry demonstrated strong commitment to the Torino
Process, which analyses vocational education and training policy. The ministry
assessed its own work using the agreed methodology.

Ukraine
continued to benefit substantially from its active participation in Tempus.
Five new projects were selected under the third Tempus IV Call for Proposals,
including support for the development of doctoral studies. A total of 28
Ukrainian students benefited from Erasmus Mundus Masters Course
scholarships during the 2010-11 academic year. Student and academic mobility to
the EU continued to develop through the expected award of 99 individual
mobility grants under Erasmus Mundus Action 2, for the 2010-11 academic year.

Three new Ukrainian projects were selected
under the Jean Monnet Programme in 2010, including, for the first time,
two Jean Monnet Chairs in Kyiv (Kyiv-Mohyla Academy) and Donetsk (State
University) — on EU relations and economic issues, respectively.

Ukrainian young
people, youth workers and youth organisations continued to benefit from
the Youth in Action programme in youth exchanges, voluntary service actions and
youth activities in non-formal education. Further national efforts promoting
intercultural dialogue and drug prevention activities through youth exchanges
and informal education would be welcome.

In the area of culture,
Ukraine ratified the UNESCO Convention on the Protection and Promotion of the
Diversity of Cultural Expressions in March 2010. During the year, Ukrainian
cultural organisations took part in three projects under the ENP Special Action
which forms part of the Culture Programme. To advance its regional cooperation
within the framework of the Eastern Partnership and the Kyiv Initiative,
Ukraine is once again encouraged to ratify the 2005 CoE Framework Convention on
the Value of Cultural Heritage for Society.

The
Presidential Programme on Economic Reform announced an ambitious reform of the health
sector, aiming at better quality healthcare services, greater financial
sustainability, improved access to services (in particular in rural areas) and
a healthier lifestyle. Implementation requires sustained effort. In April 2010,
in the context of last year’s influenza (H1N1) epidemic, the Commission and
Ukraine established communication channels for exchanging epidemiological
information in the event of a public health emergency of international concern.
In 2010, Ukraine signed a license agreement with the Commission under
which the EU's pictorial health
warnings could be displayed free of charge on tobacco packaging. Ukraine
continued the fight against HIV/AIDS and tuberculosis, and took part (as in
previous years) in the Commission’s HIV/AIDS think tank. The health sector
dialogue between the EU and Ukraine was enhanced by – among other things –
Ukraine’s participation in the EU’s global health conference in June 2010.

8. 
financial cooperation — 2010 key facts and figures

Cooperation framework

The Mid-Term Review of the programming
document confirmed that the Country Strategy Paper adopted in 2007 remains a
valid framework for cooperation with Ukraine. The new National Indicative
Programme (NIP) 2011-2013 for Ukraine was adopted in March 2010 and has a
budget of EUR 470.1 million. The programme is geared towards supporting the
achievement of key policy objectives, as outlined in the EU-Ukraine Association
agenda, and pursues three priorities: (1) good governance and the rule of law,
(2) facilitation of the entry into force of the EU-Ukraine AA (including the
DCFTA and (3) sustainable development.

The NIP 2011-2013 includes a specific
appropriation to finance new actions under the Eastern Partnership, notably  a
Comprehensive Institution Building programme (CIB) (a minimum of EUR 43.4
million) and Cohesion Policy (a minimum of EUR 30.8 million). The CIB Framework
Document was signed in October 2010. It sets out the four priority areas for support:
one is ‘horizontal’ (the steering and implementation process for the AA and
DCFTA) and three are ‘vertical’ (sanitary and phyto-sanitary regulations, state
aid control and migration).

Implementation

Implementation of the measures covered by
previous Annual Action Programmes (AAP) from the period 2007-2009 is underway.
The three sectoral budget support operations (1) ‘Support to the implementation
of Ukraine’s energy policy’, (2) ‘Promoting mutual trade by removing technical
barriers to trade between Ukraine and the European Union’ and (3) ‘Support to
the implementation of Ukraine’s strategy in the area of energy efficiency and
renewable sources of energy’ are being implemented, although one disbursement
was delayed pending timely confirmation of the improved situation in the
country regarding public financial management, notably in the field of public
procurement.[4] Two further sectoral
budget support operations ‘Support to the implementation of an environmental
strategy in Ukraine’ and ‘Support to the Implementation of the transport
strategy of Ukraine’ were agreed at the end of the year. The two Twinning and
ENP Support Technical assistance projects are being implemented, as is the
project on ‘Readmission-related assistance and EUBAM-flanking measures’.

Support for the
reform of the judiciary was one of the priority areas for EU assistance. It
also provided for an intensive training programme attended by 2 029
judges, court administrators and auxiliary court staff.

In 2010, the EU
continued to support Ukraine's national reform efforts and committed assistance
for a total amount of EUR 126 million under the bilateral envelope of the
European Neighbourhood and Partnership Instrument (ENPI). The 2010 AAP focused
on the following priorities: justice, local and regional development, energy
efficiency and environment, technical assistance and border management. Of the
overall amount committed, EUR 10 million was allocated to the justice sector,
EUR 17 million to community based approaches to local development,
EUR 12 million for a joint cooperation initiative in Crimea and EUR
10 million for energy efficiency. The 2010 AAP includes one sectoral budget
support operation on border management, worth EUR 66 million. Additionally, a
twinning and technical assistance project has been identified for the sum of
EUR 11 million.

In addition to
the bilateral allocation, Ukraine benefited from cooperation financed under the
ENPI cross-border, inter-regional and regional programmes. Ukraine took part in
the following four ENPI Cross-Border Cooperation (CBC) programmes: (i)
Poland-Belarus-Ukraine (EUR 186.2 million for the whole programme in 2007-13).
The priorities are to increase competitiveness of the border area, improving
the quality of life, networking and people-to-people cooperation; (ii)
Hungary-Slovakia-Romania-Ukraine (EUR 68.6 million for the whole programme in
2007-13). The priorities are to promote economic and social development,
enhance environmental quality, increase border efficiency and support
people-to-people cooperation; (iii) Romania-Ukraine-Republic of Moldova (EUR
126.7 million for the whole programme in 2007-13). Priorities are
competitiveness of the border economy, environment, emergencies and interaction
between people and communities living in the border areas; (iv) Black Sea Basin
(EUR 21.3 million for the whole programme in 2007-13). The main priorities of
this programme are to support cross-border partnerships for economic and social
development based on combined resources, to share resources and competencies
for environmental protection and conservation, and to support cultural and
educational initiatives for the establishment of a common cultural environment
in the Basin. There is as yet no specific national legislation to promote
cross-border and regional cooperation. Existing CBC programmes at local and regional levels have aimed to
facilitate civil society cooperation as well as other external cooperation
programmes.

Ukraine also participates in the ‘Central
Europe’ and ‘South-East Europe’ Transnational Cooperation Programmes developed
under the European Regional Development Fund (ERDF) to which the country was
admitted in May 2008.

Under the ENPI-financed Neighbourhood
Investment Facility (NIF), two feasibility studies were approved in 2010 for
EUR 2.5 million. These are expected to leverage loans from European financial
institutions for modernising Ukraine’s gas transit corridors and underground
gas storage facilities.

Other EU Instruments supplement the ENPI assistance package. Ukraine
benefited from cooperation activities financed under horizontal instruments
such as the European Instrument for Democracy and Human Rights (EIDHR) and the
Development Cooperation Instrument (DCI) thematic programmes: ‘Environment and
sustainable management of natural resources including energy’ and ‘migration
and asylum’. Ukraine remained one of the main direct beneficiaries of the
Instrument for Nuclear Safety Cooperation (INSC). Funding in 2010 amounted to
about EUR 21.1 million for supporting radioactive waste management, assisting
the State Nuclear Regulatory Committee of Ukraine (SNRCU) and enhancing the
Operational Effectiveness, Safety Performance and Human Resources’
effectiveness of NNEGC Energoatom and its nuclear power plants.

Negotiations for the disbursement of about EUR 610 million
of macro-financial assistance to Ukraine were launched
in 2010, but have not yet been concluded.

In 2010 the
European Investment Bank (EIB) agreed to lend Ukraine about EUR 15.5 million
for the Mykolayiv Vodokanal project, which is aimed at modernising water supply
and treatment in the town of Mykolav.

Donor
coordination

In 2010 the EU Delegation in Ukraine
regularly coordinated assistance cooperation with the EU member states and, in
the absence of a structured government-led mechanism, coordination with other
development partners. The EU Delegation contributed actively to the major donor
group’s work as well. Poland and
the United Kingdom agreed to provide some bilateral support for the preparatory
phase of the CIB programme, working together within the
framework of enhanced EU coordination.
Furthermore the Commission and 14 member states have launched the Joint
Cooperation Initiative in Crimea (JCIC), aimed at promoting the development of
the region.

[1]               Sigma
(Support for improvement in Governance and Management) is a joint initiative of
the OECD and the European
Union , principally financed by the EU.

[2] United Nations Economic Commission for
Europe

[3] The Protocol on Strategic Environmental Assessment to the UNECE
Convention on Environmental Impact Assessment in a Transboundary Context and
the following protocols of the UNECE Convention on Long-Range Transboundary Air
Pollution: Protocol on Persistent Organic Pollutants; Protocol on Heavy Metals;
Protocol on Further Reduction of Sulphur Emissions; Protocol concerning the
Control of Emissions of Volatile Organic Compounds or their Trans-boundary
Fluxes.

[4]               EUR 12 million were released
as a first tranche under the ‘Support to the implementation of Ukraine’s
strategy in the area of energy efficiency and renewable sources of energy’
sector budget support.