Opinion of the Committee of the Regions on the 'Communication from the Commission to the Council and the European Parliament on strengthening the Mediterranean policy of the European Union: Proposals for implementing a Euro-Mediterranean partnership` (96/C 126/03)

On 18 July 1995 the Committee of the Regions decided, in accordance with Article 198c of the Treaty establishing the European Community, to draw up an Opinion on the above-mentioned communication.

Commission 8, Economic and Social Cohesion, Social Policy and Public Health, was responsible for preparing the Committee's work on the subject. The Rapporteur was Mr Vannino Chiti.

At its 10th Plenary Session of 15 and 16 November 1995 (meeting of 16 November 1995), the Committee of the Regions adopted the following Opinion.

1. Reference Documents

In drawing up this Opinion, the COR examined the following documents:

- Communication from the Commission to the Council and the European Parliament of 19 October 1994, (COM(94) 427);

- Communication from the Commission to the Council and the European Parliament of 8 March 1995 in response to the Essen European Council's request for specific proposals (COM(95) 72);

- The EU position, finalised by the Council on 12 June 1995 and appended to the Conclusions of the Presidency, Cannes European Council, 26-27 June 1995 (SN 211/95).

2. General Comments

The Mediterranean region is strategically important for the European Union and for its current and future Member States. A strong economic area must be constructed here which is capable of contributing to the Union's regional balance.

The area has a high population density (by 2010 the population of the Mediterranean non-member countries (MNC) will be 231 million, rising to around 400 million in 2035) and current of economic and social imbalances and sources of tension are unlikely to resolve themselves spontaneously. In the context of a Euro-Mediterranean partnership such as put forward in the Commission document, the extreme inequalities which exist between the two future interlocutors of the envisaged economic, social and cultural dialogue must be noted. The whole of the MNC does not therefore constitute a homogeneous bloc from an economic, political, cultural and social point of view. These disparities are linked to a question of size, to natural resources, to the level of training of the workforce, to infrastructure, to the possibilities for development of a given sector. The whole of the MNC therefore constitutes a very disparate bloc whose regional integration is of absolute necessity.

Different approaches to, and records on, human rights also need to be borne in mind.

This area is undergoing a build-up of vast problems, sharp frictions and outright warfare. It must be remembered that some of the worst crises that have afflicted Europe have originated in the Mediterranean: civil war in Lebanon, more wide-scale fighting in the Middle East, turmoil in ex-Yugoslavia, unrest in Algeria, etc. The EU must not be caught up in these disturbances - clearly it has every interest in preventive action than intervening afterwards.

In this connection, the agreement achieved between Israel and the Palestinian authorities to launch a tangible peace plan is to be applauded. In view of the immense significance of this peace process and the potential prospects for cooperation, Europe, having contributed to fostering dialogue and negotiation, must now play an effective role in establishing economic ties with both Israel and the Arab population of Palestine.

Despite the repeated and immense efforts made by European countries and by international organisations over the past twenty years, there has been less improvement than was commonly expected both in relations between the states situated on either side of the Mediterranean and in the prospects for development in countries situated on its southern shores. A complex imbalance persists between the two shores of the basin, which lies at the origins of the negative phenomena of migration, unemployment, social tension, religious conflict, and sad to say, of terrorism, and which does not allow those elements of affinity and potential integration that do actually exist to be properly targeted.

These problems must be confronted at once, not only through political measures, but also with effective economic measures aimed at development.

Attempts to impose development from above have failed consistently and today the only effective alternative would seem to be that of promoting 'bottom-up` development along the lines of that which has taken place in the regions on the northern shores of the Mediterranean, by stimulating the growth of local markets and placing the emphasis on decentralised development cooperation wherever regional and local bodies are able to play a major part.

One can but broadly agree with the priority set out in the European Commission document, that is to say that of creating a politically stable and secure zone by means of three themes for priority action: support for economic transition, support for a better economic and social balance and support for regional or area integration. The setting up, by the year 2010, of a free trade area would seem to be a worthwhile and important objective, while it would also seem correct to adopt a gradual approach to this. The gulf between the European Union and the MNC in terms of development must also be borne in mind. The linkage of economic and political, development and security aspects would also seem important if an overall framework agreement is to be reached and the risk of returning to straightforward bilateralism avoided.

The Mediterranean policy forms part of the strategy for the reinforcing of EU relations. This includes the accession of the CEEC countries, Malta and Cyprus, and the improving of relations, through cooperation, with the other countries that border the Baltic and with the rest of Eastern Europe. The Mediterranean policy is thus complementary, as was affirmed at the Edinburgh European Council in April 1995, to the policy of opening up to the states of Central and Eastern Europe, which, by history and culture belong at the centre of Europe.

3. The Euro-Mediterranean Partnership: evaluation

3.1. In general terms, the priority actions proposed by the Commission with regard to a global Mediterranean programme have been well designed to meet the economic and social objectives that constitute the fundamental requirement for increased political stability and a greater degree of security throughout the Mediterranean basin.

3.2. Further in-depth reflection on some of the themes contained within this framework would increase the effectiveness of the whole programme.

These themes include:

1) Democracy and Human Rights

Among the more general themes described in the Commission document the problems of democracy and human rights, prerequisites if an organised system of cooperation and agreement is to be achieved, should be highlighted. The growth and the reinforcement of democracy are essential conditions for development itself and are also essential if fresh hopes are to be raised and new dialogues opened in the Mediterranean. Such objectives can only be achieved within this framework by strengthening a system of democratically elected local and national authorities that are able to take practical steps towards the social and economic development of their communities.

2) Cooperation on Security

The phenomena of organised crime, drug trafficking and terrorism that also afflict the Mediterranean countries constitute a serious risk to the internal security of the Member States of the European Union. Even the positive results of political integration, such as the abolition of border controls, can be jeopardized, as witnessed by the recent measures taken by France. It is thus essential that questions of internal security should form a substantial part of the new Euro-Mediterranean cooperation.

Besides this, it would seem opportune to intensify efforts to ease the pressure of illegal immigration, to which end cooperation agreements should be reached on information exchanges and the management of repatriations.

3) Provision of Resources

Firstly, one must guarantee that the Mediterranean programme is provided with the appropriate funding, even given the demands already being made on the budgets of the EU and of the Member States, and while taking into account the other commitments of the EU. It should be pointed out that financial provision for the programme has been reduced, following two consecutive revisions, from ECU 5,5 million in the original document to ECU 4,7 million in the Cannes European Council document.

Consequently, it is important that EIB support be available for these objectives. Moreover the gradual establishment of a free trade area and measures designed to forestall turbulence and further imbalances in the region will not be sufficient to allow the Mediterranean to overcome the crisis which is threatening the continent.

The financial and organisational efforts of the European Union will not be enough in themselves to ignite endogenous processes of development in Mediterranean countries: the potential for activating the processes required for the economic and social development of the Mediterranean resides in the association of companies, the commercial classes, universities, regional authorities and local bodies.

4) Experience derived from previous programmes

The experience derived from programmes that have already been initiated for the Mediterranean and put into action there (MED URBS, MED Campus, MED Invest, MED Media, MED Immigration, MED Techno) form an important reference point for the reinforcing of Euro-Mediterranean policies. Their operational character and effectiveness should be carefully evaluated with a view to better understanding of the potential problems of global programming of the kind proposed by the Commission.

An effort must also be made, within this context, to pinpoint instruments of intervention that are suited to the realities of MNC as well as ways in which all the EU Member States and regional and local authorities can contribute to the programmes.

Particular attention should be given to the future of these programmes, which have seen effective and concerted efforts being made by many actors and institutions throughout Europe, and that already constitute a hard core of cooperation initiatives. It is for this reason that their future development must be guaranteed within the overall framework of the Euro-Mediterranean partnership in order to profit from the potential of the networks established and to fully support matured project capabilities.

5) Cooperation on economic matters

Small and medium-sized companies can play an essential part in creating employment for themselves and in the development of the economies of the Mediterranean countries. To this end the ground must be prepared for the launching of a partnership that involves all interested parties and that continues to develop ever-closer cooperation between EU and MNC companies. With this in mind it would seem appropriate to support the setting up, within these MNC, of local networks of small and medium-sized businesses to promote the transfer and implantation of 'district products` (training, technology transfer, processes of innovation and experimentation, authentication, phases of commercialisation, applied research) and the link-up of these with the services networks of European countries. Such networks of small and medium-sized businesses constitute a complex node of institutions, values and knowledge that should be centred in local communities that are sufficiently organised to manage external relations with companies and social and educational services for employees.

Another fundamental question is that of linkage infrastructure, since this is a basic prerequisite for economic development and the reinforcing of relations between the two sides of the Mediterranean.

The document from the Commission would seem to undervalue the role of tourism, which, for historical, artistic, cultural and environmental reasons constitutes one of the most promising resources in economic and employment terms, but which only, at present, runs for a limited period of the year and in a few centres, and risks aggravating problems rather than providing evenly spread benefits. As such, infrastructural interventions must also be designed and based on the principle of sustainable development.

Tourism is an important factor in social and political as well as economic development, in that it allows for 'the recognition of diversity` (culture, places and life styles). A 'contact` tourism must therefore be encouraged between and among the inhabitants of the various countries. On the other hand, tourism is also an ambiguous phenomenon, and a global view must be adopted when approaching it to ensure that as well as contributing to economic and social development it also contributes to the conservation of the environment and of local identity and does not lead to the degradation and loss of these.

The development of economic activities must obviously be based, first and foremost, on the formation of human resources and subsequent assistance to new initiatives in the form of special services and information.

6) Environmental problems The environment requires extremely sensitive attention in a closed sea of fine ecological balance such as the Mediterranean, which is constantly threatened by the transit of ships transporting petroleum, gas and chemicals. It should be remembered that safety levels are constantly ignored and that common action is required to ensure a minimum safety threshold.

It is a resource that is at great risk of being lost forever and one which should be safeguarded by all possible means, as was underlined at the recent conference in Barcelona, by the setting up of a network of high technology installations for monitoring shipping (VTS) that will gradually be extended throughout Mediterranean.

The greatest care should be taken with regard to the environmental effects of human settlement; of the over-concentration of tourism on certain areas and times of year: of the excessive and improper use of chemicals in agriculture and industry. It is also important to meet the challenges posed by the risk of desertification and the need to ensure a multiple and rational use of water resources.

Attention should also be given to the exploitation of the Mediterranean's marine resources by preparing measures that take into account the particular characteristics of local fishing industries, but also encourage the adoption of measures linked to a rational management of marine wealth and promote initiatives for the protection of, and increased production in, coastal areas. Today, there are increased possibilities for intervention through submersible barriers designed to house alternative forms of production (oyster and mussel farming) or through off-shore sea-farms designed to integrate traditional modes of production.

It should be possible to organise and coordinate the current - and as yet thinly-spread research and monitoring initiatives relating to the Mediterranean at one level of administration, which can only be that of the European Union authorities, since they can profitably exercise the role of mediator with the local and regional authorities involved. The Commission should, in particular, ensure better coordination between existing programmes, and their increased effectiveness, by consolidating those initiatives that are of most positive effect.

The external development of the economies, which the Committee of the Regions would also desire, must be attuned to the requirements of environmental policy. In line with the principle of sustainable development, competitive advantages should be allowed without however setting aside environmental interests (environmental dumping).

7) Urban concentration

One of the main questions regarding the MNC is the growth of large cities, with this generating an exponential growth in economic and social problems. All the regions of the Mediterranean have also, over a number of years, witnessed an high degree of coastal development and urbanisation. These phenomena have resulted in, and will continue to result in, a worrying change in the relation between town and country, in the landscape of the Mediterranean and in a new order in terms of natural spaces and water systems.

This all leads to the importance both of introducing modern management systems and appropriate infrastructural measures in urban areas and of consolidating policies for rural ones. In both cases cooperation between the towns and rural communities of the MNC and the towns and rural communities of Europe would seem essential.

8) Agriculture and rural areas

Rural areas and - agricultural activity in particular - play a decisive role in MNC from a social and cultural as well as an economic point of view.

The fact that arid and semi-arid areas, geographically less-favoured areas and areas in that are often not equipped with the minimum level of services still remain populated should provide the opportunity for effective comparison with the damage caused by depopulation of the land and by the imbalances that result from internal and external migratory flows. It is thus necessary to promote those actions that not only guarantee an adequate standard of living and are concerned with agriculture, but also to guarantee the conservation of resources in accordance with the principles of sustainable development. Specific initiatives must thus be set up to improve the quality of structures and services in rural areas, to increase the efficiency of systems of agricultural and food production and trade and lastly to adopt those technologies (methods of cultivation, processing plants, etc.) that enable the greatest possible conservation of already scarce environmental resources.

9) Culture and religion

One theme that should be emphasized is that of the difference in culture between EU and MNC countries: cultural and religious differences exist that are rooted in history, and reciprocal recognition and an exchange of understanding are required if a real dialogue is to be opened between the countries of the Mediterranean basin. Local and regional bodies, religious institutions, cultural institutions and universities have a determining part to play in this dialogue and should build on the wealth and variety contained in this historical inheritance while also recognising a common identity that has for centuries bound together the separate cultures found on both sides of the Mediterranean, and left indelible traces there.

Moreover, measures should be included within the partnership programmes to support and set up state education in the MNC, which furthers the development of independent reasoning and of a critical way of thinking from an early age.

It should be remembered that the Mediterranean region is the cradle of three of the main monotheistic religions, between which it is important to develop and advance comparisons, understanding and mutual respect by providing support for the creation of the scientific, academic and cultural institutions that are able to do this.

10) The consolidation and extension of cooperaion

The methods chosen to attain the objectives set for Mediterranean policy should be based on cooperation between local and regional bodies on the southern and northern sides of the basin. Insufficient emphasis would appear to have been placed on this aspect, which is in fact decisive, as was found during the process of cooperation with Central and Eastern European regions. Cooperation should also be expanded, however, between organisations that express the will of society (NGOs, economic and class-based associations, social bodies, etc.) in order to combine common experiences and confront mutual problems.

11) The orientation of the Euro-Mediterranean partnership towards immigrants present in Europe With regard to this last aspect, a closer examination of the theme of the presence of immigrants from Mediterranean MNCs in European countries is required. Without prejudice to the recognition of the rights and civic duties of the citizens of Mediterranean MNCs who are legally resident in the Union, and given the links that they still maintain with their countries of origin, the possibility of involving such immigrants as a 'bridge` in certain of the actions planned as part of the Euro-Mediterranean programme should be appraised.

Directing attention onto immigrants already present in cities within the Union could result in a smoother and more efficient start to the whole programme and encourage the transfer of technical and organisational know-how: promoting fertile links in terms of an economic and commercial partnership; facilitating the comparison of ideas and experiences in the field of social and cultural services.

The problem of immigration should nonetheless be confronted at its roots in the MNC, not only by supporting the processes of economic development but also by attempting to improve living conditions. Regions, local bodies and European institutions also have an important part to play in this domain, via the harnessing of their own experiences in matters of hospital organisation, territorial services, assistance for the young and disabled, health and prevention services and training and training assistance.

12) The role of the Committee of the Regions It is the Committee's view that the Mediterranean constitutes a fundamental theme within a strategy that has seen a timely increase in attention in countries bordering the European Union (Central and Eastern Europe and the Mediterranean) and has also witnessed a corresponding growth in the part played by inter-regional cooperation and cooperation between local bodies and cities. Concrete proof of this attention is provided by the special efforts that have been made in Mediterranean matters, with the two largest associations that group together regional (Assembly of European Regions) and local bodies (Council of European Municipalities and Regions) becoming involved in cooperation initiatives: in Madrid - April 1995 and in Barcelona - March 1995. Regional and local authorities are bound, in fact, to give attention to these neighbouring areas since many of their economic and social problems stem from there: one only has to think of the dramatic refugee problem (faced by Germany, Austria, Italy and Greece in particular) that resulted from the collapse of the former communist countries and the former Yugoslavia, and of the problem of immigration from Mediterranean countries that now concerns the whole of Europe, and which will only continue to grow unless there is a radical change in living conditions in the countries of origin.

It is in the Committee's direct interest to be present, define its position and present its own viewpoint during the stage where decisions are taken and choices made with regard to all of these matters, to present its own evaluation and to make its own voice heard, particularly in view of the Barcelona Conference, and then to work as a rightful participant and protagonist in the implementation of these choices, and for the benefit of the Europe.

13) The Committee's Opinion on the proposal to 'Reinforce the Mediterranean policy of the European Union: the creation of a Euro-Mediterranean partnership` The Committee of the Regions:

a) fully shares the opinion that the Mediterranean basin is of strategic importance in terms of prospects for the development of the European Union as a whole and that it is of prime importance to set peace, stability and prosperity as objectives to be pursued in relations between the European Union and the MNC;

b) underlines that the Mediterranean policy is not at odds with the expansion of the EU in Central and Eastern Europe, since despite different perspectives, such policies form part of the overall strategy of the European Union.

c) also agrees with the proposal to develop a global project for a partnership between Europe and the Mediterranean countries that is based on the priority objectives of economic transition and modernisation, achieving better social balance, the harmonious development of rural areas and regional integration, and which aims to gradually create a free trade area to include all the countries of the basin;

d) supports the decision that the European Union should, in the process of establishing Euro-Mediterranean partnership, seek firm commitments from the authorities of the MNC to the establishment and respect in their countries of the fundamental values of the rule of law such as the rights of men, women and children, social justice and the respect of international law. These strategies must be backed up by a dialogue supporting mutual understanding and confidence. European institutions must, within this framework, grant attention to and show their commitment to the consolidation of democratically elected local, regional and national authorities, since failure to do so will result in neither development nor cooperation being possible.

e) recommends to the European Commission and the European Council that, in view of the disparities existing between the European Union and the MNC, the Euro-Mediterranean programme be provided with resources to match the objectives set, both in terms of the provision of financial resources by the European Union and by promoting the increased participation in the programmes of the institutional, economic, social and cultural actors affected;

f) recommends to the European Commission and European Council that in implementing the Euro-Mediterranean programme continuity should be given to Euro-Mediterranean Conference held in Barcelona by providing adequate institutional support for the programme with the participation of the Parliament, the Council of Ministers and representatives of the Committee of the Regions as well as a permanent secretariat;

g) believes that the questions of internal security and immigration should be included, as a priority, in matters of external cooperation and thus also in Euro-Mediterranean policy, to take into account the threats posed by organised crime, drug trafficking and terrorism.

h) proposes that opportunities for cooperation initiatives between regions and local communities in European countries and regions and local communities in MNCs should be increased as much as possible, to give concrete form to the indication for decentralised cooperation, thus consolidating and developing the experience already under way and taking up the positive cooperation experiences of Central and Eastern Europe;

i) requests that the cooperation programmes already embarked upon with MNCs should be further developed within the overall framework of a Euro-Mediterranean partnership. The Committee of the Regions specifically asks that Interreg should serve as a reference for actions regarding cross-border cooperation between member and non-member countries and between Mediterranean countries;

l) hopes that the programme will devote greater attention to the themes of religious and cultural diversity and to the consequent reinforcement of initiatives for comparison and dialogue by supporting the creation of every type of scientific, academic and educational institution that is capable of encouraging understanding, exchange and tolerance between peoples; more precisely calls for support to be given to the means of development of state education in the MNC, within the framework of the Euro-Mediterranean partnership, in order to foster independent reasoning and a critical way of thinking from an early age;

m) suggests a reinforcement of initiatives for cooperation between networks of small and medium-sized companies; through a possible cooperation with the Chambers of Commerce; of those orientated towards the improvement of linkage infrastructure between Europe and Mediterranean countries, those destined to maximise the benefits of the tourist sector; possibly through the awarding of a cooperation grant to Euro-Mediterranean tourism with a view to elaborating partnership actions that balance demand, investment and know-how and result in a relaunch of Mediterranean supply;

n) underlines the fundamental importance of all forms of education as one of the major tools for development both within beneficiary countries and among immigrants present in Europe. The Committee of the Regions agrees that the Commission is right to underline the importance of encouraging the integration of young people, and particularly young women, into the labour market. The Committee of the Regions would also like to underline the importance of the training of human resources both in countries which are targeted by interventions and with regard to immigrants living in Europe;

o) recommends that great attention should be given to the opportunities provided by the presence, in the cities and regions of Europe, of immigrants from Mediterranean countries, since they constitute a natural 'bridge` for the approval and development of the cooperation initiatives planned for under the programme;

p) would like to draw particular attention to the environmental problems of the Mediterranean basin and urges the European Commission and all the countries of the Mediterranean basin to carry out, by means of an information exchange and a common strategy, careful monitoring of the dangers of further pollution; of the risk of desertification that threatens vast tracts of the area and of problems generated by the process of urban concentration. To this end, the Committee proposes that a Mediterranean environmental agency should be set up by the European Commission and MNCs that participated in the Barcelona Euro-Mediterranean Conference, with membership extended to all regions of the Mediterranean;

q) underlines the importance of applying the Local Agenda 21 programme aimed at protecting the environment. The local solutions implemented by regional and local authorities can make a substantial contribution to sustainable development. The experience accumulated at national level in Europe should be made available for application to the problems of the Mediterranean;

r) underlines the Committee's direct interest in being present, defining its own position and presenting its own viewpoint at the next Euro-Mediterranean conference in Barcelona, in order to turn the attention of the institutions most suited to all the regional and local realities involved when dealing with political, economic and social matters in Mediterranean countries;

s) the Committee of the Regions recommends that the process of integration and cooperation in the Mediterranean should be taken into account in the running of all of the programmes already under way;

t) the Committee of the Regions also recommends that policies designed for the Mediterranean should take into account all countries that border the Mediterranean.

Done at Brussels, 16 November 1995.

The Chairman of the Committee of the Regions Jacques BLANC