COMMISSION OF THE EUROPEAN COMMUNITIES 
MMm Brussels, 20.11.1996 
COM(96) 593 final 
COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
Action Plan for Ukraine 
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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL 
Subject: Action Plan for Ukraine 
This document addresses two complementary objectives : giving The Ukraine authorities a 
strengthened political signal of support from the EU and exploring the means for an 
improved development of the existing assistance and the synergetic ties between the 
Community and the Member States in this area. 
1. The political signal is in response to a request from the Ukraine authorities. This 
request comprises, first, a short-term aspect : to receive visible support from the EU. Over 
the longer term, it is a matter for the EU to take note of the request from the Ukraine 
authorities to secure a firmer anchorage in the European structures and possibly 
membership in the EU. 
Confronted by serious challenges in consolidating its independence and in its integration 
into the world economic market, Ukraine has achieved substantial advances particularly 
since October 1994. It now finds itself, as it were, standing at a crossing point of a river, in 
having established the basis of a democracy, achieved a true macro-economic stability, 
initiated the transformation of its economy and found a position in the international 
community. It is now facing perhaps the most difficult stage of its economic and political 
transformation : the restructuring of its industry and energy base, the implementation of 
the rule of law and of a democratic society and the strengthening of the parameters of its 
independence, particularly the lifting of the Russian yoke. 
The results obtained are to be credited to the courageous and determined policy followed 
since the election of President Kuchma in 1994, and also to the resolute support of the 
international community, particularly the EU and the United States. This support must be 
maintained and developed in response to the request of the Ukraine authorities and should 
accompany a deeper transformation of the economy and of society. 
The political question posed by Ukraine about its place in Europe cannot be given a 
definitive response here. Rather, it is suggested that this leads to consideration within the 
framework of the Community and of the Common Foreign and Security Policy (CFSP) of 
the type of relationship to be established with a country that is near to the EU, one that is 
important in terms of trade and security. 
2. The development of European assistance: this document attempts to assess what has 
been accomplished and to highlight both the strong and the vulnerable points of Ukraine 
after five years of independence. On the basis of this assessment, it proposes six 
approaches for action for the Community and its Member States : 
- support for the reform of the economy; 
- social transformation; 
- introduction of Ukraine into the European security architecture and the strengthening of 
the political dialogue; 
- support in regional cooperation; 
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- the deepening of contractual relationships; 
- the reform of the energy sector. 
The short-term priority measures are as follows : (i) the ratification of the PCA by the 
Member States and its entry into effect, (ii) the decision concerning balance of payments 
assistance for 1997, (Hi) the financing and the implementation of the agreement between the 
G7, the EC and Ukraine on the closing down of Chernobyl, (iv) the work of the working 
group on bilateral trade and (v) putting in place an environment conducive to private 
investment in Ukraine. 
The support for Ukraine as conceived under the Common Position of November 1994 is a 
collective EU action, and the PCA is an agreement of a mixed type. In this perspective, 
this document incorporates the suggestions made by the Member States in particularly in 
the area of the CFSP. Similarly, its implementation will involve close cooperation between 
the Community and the Member States. 
This document, which is addressed to the Member States for their general guidance 
comprises proposals for concrete action. These are presented in the last section in the 
order of priority corresponding to the topics discussed in the document. However, while 
the strategy of the EU towards Ukraine is uniform, the legal bases of the concrete measures 
are diverse. The measures indicated may give rise to (i) measures of assistance within the 
competence of the Community, covered by the Tacis regulation, (ii) measures within the 
competence of the Community to implement the Interim Agreement, (iii) measures falling 
within mixed competence to implement the PCA when ratified, (iv) measures arising under 
Titles V and VT of the Treaty on European Union, (v) measures arising within the sole 
competence of Member States. 
This document has no budgetary implications apart, of course, from the Chernobyl matter, 
the financing of which should be specified in 1997 by G7 and from possible macro-financial 
assistance for 1997 which will be the subject of a Council decision (15% of the amount to 
be established must be guaranteed under the budget). 
Conclusion: the Commission should transmit this action plan to the Council to be 
incorporated, where appropriate, in the conclusions of the Dublin European Council (14 
and 15 December). 
i-t 
Brussels, 20 November 1996 
Action Plan for Ukraine 
For five years Ukraine has affirmed its independence and taken up an appropriate position 
for itself in the continent of Europe, that of a large country occupying a key position, 
destined to one day become an immediate neighbour of the EU. It has been able to maintain 
its cohesion, begin developing a democratic system, engage in an economic transition which 
is progressively opening it up to the world economy and appear on the international scene 
as a reliable partner, playing a stabilizing role in the region. 
These results are due to the courageous and determined policy conducted since the election 
of President Kuchma in 1994 but also to the resolute backing of the international 
community, notably the EU, whose technical and financial assistance from its whole range 
of instruments was ECU 2.8 billion over five years (1991-95). US assistance amounted to 
ECU 1.05 billion over that period. 
The European Union has consistently reaffirmed the importance which it attaches to 
Ukraine. The objectives, as announced in the Common Position of November 1994, are : 
the development of a strong political relationship, support for Ukraine's independence, the 
development of democracy, economic reform and its entry into the world economy. The 
Union welcomes the Ukrainian desire for rapprochement with Europe and it intends, 
within the framework of the European architecture drawn up by the Copenhagen 
European Council, to develop partnership relations with Ukraine. The Community 
and its Member States have, in the light of this, signed a Partnership and 
Cooperation Agreement and developed an overall strategy of support for transition 
and for Ukraine's integration into the European arena. 
Ukraine recently celebrated the fifth year of its independence. Consideration of this period 
enables one to better gauge the results of the reforms undertaken and to understand what 
remains to be accomplished in terms of social and economic transformation. This 
document, on the basis of such an analysis, seeks specifically to determine the thrust of 
priority action which should lead to the establishment of a real partnership by the year 
2000. 
UKRAINE AFTER FIVE YEARS OF INDEPENDENCE : 
1. The achievements of the policy of reforms are substantial : 
a) Politically, the progress of democracy in Ukraine is real (free elections, a multi-party 
system, freedom of the press, freedom of religion, respect for Human Rights and fair 
treatment of minorities). Ukraine has demonstrated its capacity to resolve internal conflicts 
by political dialogue and compromise. The adoption of a new Constitution on 28 June 
1996 constitutes decisive progress in the stabilization of the system. This text, which still 
has to be implemented, establishes a parliamentary system which conforms to the traditional 
The most recent positions taken are those in the Declaration made by the Presidency in Rome in 
May 1996 and the conclusions of the Troika Meeting of Political Directors of November 1996. 
principles of separation of powers, executive responsibility, application of the rule of law 
and independence of the judiciary. 
The entry of Ukraine into the Council of Europe (in Nov. 1995) constitutes a recognition 
of these initial achievements and encouragement to push ahead with them. 
b) Economically : in spite of a slow start (Oct. 1994), Ukraine has very quickly 
implemented a macro-economic stabilization policy, the results of which have borne 
fruit (see Annex III). Microeconomic liberalization has started (freedom of internal and 
external trade, freeing of prices and a reduction of state intervention). Structural reforms 
(privatization and conversion of public enterprises, administrative reform and tax reform) 
have begun and are expected to be accelerated in the coming years. 
c) Foreign policy : Ukraine has emerged as an element of stability in the region. The 
policies adopted (on nuclear disarmament, adherence to preventive diplomacy, the policy of 
conciliation towards Russia and rapprochement with the West) have increased Ukraine's 
international credibility. Similarly, Ukraine has affirmed its identity by an active policy of 
diplomatic presence at important international occasions and fora (the 1995 Euro-
Mediterranean Conference, implementation of the Bosnia Peace Plan). The country, which 
remains a substantial military power, has participated in peacekeeping operations (the 
Ukrainian contingent in IFOR) and in joint exercises with Western forces. Political dialogue 
with the EU has developed in an intensive and consistent manner. 
d) Consolidation of independence : although Ukraine lacks an ethnic identity and a 
unitary culture, this consolidation has benefited from the will of its people to control their 
own affairs. Trends towards the breaking up of society have not solidified, in spite of 
economic and social difficulties. 
2. Weaknesses remain : 
a) the consolidation of democracy and of the process of transformation in general 
requires the development of a free civil society (political parties, free trade unions, media) 
and also a substantial effort at the training of leaders among the population. The 
transformation of the country and its entry into the world economy takes effect through the 
improved understanding by the people as a whole of the working of the democratic system 
and of the market economy. 
This requirement is of particular importance to the civil administration, which should be 
able to assume the functions incumbent on it within a state based on the rule of law 
(defence of the general interest rather than sectoral or group interests, impartiality and 
respect for the law) and in a free economy (regulation rather than management, 
comprehension of the increased complexity of autonomous market mechanisms and of an 
economy open to world trade). This requirement is also relevant to managers in the private 
sector and business leaders. 
b) economic transformation is difficult but also crucial, in that it is a necessary condition 
for the maintenance of independence. 
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- The economic situation remains uncertain : GDP in real terms is 42% of the 1989 
level, industrial production has fallen continuously since independence . A substantial 
budget liquidity crisis has developed, the decrease in structural expenditure not having 
been sufficient to achieve budgetary deficit targets, due to the fall in tax receipts. 
Although the underground or black economy, estimated to be 50% of GDP, compensates 
to some degree, its scale is a sign of serious economic and social disruptions. 
- Reform of the economic, industrial, financial and administrative structure remains 
to be implemented. These reforms have begun but there are serious countervailing forces : 
the political opposition of the officials of the previous administrative system, the highly 
inappropriate nature of the means of production (heavy industries which are difficult to 
transform), shortage of capital, scarcity of leadership potential and the reduction in living 
standards. 
In May 1996 the EU recognized that Ukraine was an economy in transition. In fact, with 
respect to liberalization and share of the private sector in the economy, Ukraine is in the 
last group among countries in transition, according to World Bank figures . The decisive 
switch to a market economy has not yet taken place in Ukraine, unlike in certain other 
countries in Central Europe. The Ukrainian economy is thus deprived of the benefits of 
integration in the world market, such as foreign investment, which is itself an important 
source of competition on the home market, transfer of know-how and creation of jobs. 
c) Energy, and nuclear safety in particular, is foremost amongst the challenges facing 
Ukraine, whose economy must cope with an energy crisis greater than that experienced by 
the West in the 1970s, while simultaneously coping with substantial restructuring of its 
economy. 
The energy problem is closely intertwined with the main challenges facing reform in 
Ukraine : its independence as a nation is linked to its dependence on foreign primary 
sources of energy and its accumulated debt, production processes and jobs are related to 
doubts about the viability of many of its companies once energy is only available at market 
prices, social cohesion is linked with the drastic impact of price changes on the standard of 
living, the restructuring and the environmental and safety linkages of the coal and nuclear 
sectors. The issue of nuclear safety also influences Ukraine's relations with its western 
partners to the extent that this country is still too often perceived, domestically and 
internationally, in the light of its capacity to meet its commitments with respect to 
Chernobyl. Likewise in Ukraine, the credibility of Western countries will depend to a large 
extent on their ability to fulfill their commitments regarding Chernobyl. 
d) The future is subject to four potential obstacles : 
- The level of dependence on Russia, which is perceived as critical by the 
Ukrainian authorities, preoccupied as they are by the ongoing disputes and the pressures 
2 
Production has fallen consistently since 1990. Industrial production in real terms has fallen to 35% of the 1990 level, agricultural production has fallen to 65%. 
3 "From Plan To Market". July 1996. 
60% of primary energy is imported; 90% of oil comes from Russia and Turkmenistan. 
11 
being exerted for increased integration within the structures of the CIS. The key aspects of 
this dependence are : the energy imbalance, commerce (half of visible trade), unresolved 
conflicts (the Black Sea fleet), latent disputes (frontier recognition, Crimea) and the 
presence of a large Russian minority in Ukraine 5. 
- The loyalty of the population is one of the major challenges of the transition. 
The durable maintenance of independence largely depends, on the capacity of the regime to 
create an economic system which satisfies the expectations of the population : these 
expectations are closely related to the standard of living in Russia . The sharp deterioration 
in living standards limits support for the reforms. In this respect regular payment of public 
sector salaries by the state constitutes a prerequisite in restoring the credibility of the new 
economic policy. 
- The heterogeneous nature of Ukrainian society is marked by the dichotomy 
between and the divergent historical experiences of the russianised east and the more 
nationalist, pro-European west. A prolonged deterioration of the economic situation or an 
over-strong pro-Ukrainian linguistic shift in the public authorities cannot but bring out 
latent separatist tendencies. 
- The position of Ukraine within Europe : the Ukrainian authorities fear that any 
enlargement of NATO and the European Union to the Central and Eastern European 
countries will leave their country in a "security vacuum" between the Euro-Atlantic bloc 
and the Russian sphere of influence/Treaty of Tashkent. The pivot of Ukraine's foreign 
policy is the parallel improvement of its relations both with Russia and with the West. 
Ukraine seeks in and from Europe a stable anchorage which would provide a concrete 
guarantee of its independence. The United States, which is very attentive to this country 
and very active there, has shown its wish to establish a "strategic partnership" with Ukraine, 
which has taken the form in particular of a mechanism of dialogue and cooperation at a 
very high level (the Gore-Kuchma Commission). 
The Ukrainian authorities expect from the EU comparable political responses substantial 
enough to meet the strong challenges of stability and social and economic progress which 
the Community pursues in Europe as a whole. 
3. International aid is substantial : so much so that the problem lies more in the capacity 
of the country to absorb it, and in its capacity for repayment of loans in the long run, unless 
there is significant economic growth. 
EU assistance may be calculated, taking all instruments into account, at ECU 2. 8 billion 
over five years (1991-95), of which 1215 from Community sources and the rest from 
Member States. Since the acceleration of the reforms, a spectacular growth of macro-
financial assistance has taken place. No doubt this should be followed up within the 
framework of the IMF and of the World Bank and in liaison with the principal donors, to 
accompany the deepening of the structural reforms and their budgetary implications. 
Over 11 million Ukrainians (22% of the population) are Russian. They are heavily concentrated in 
certain regions; 44% of the population in the Donbass are Russians, 33% in Donetsk and 63% in the 
Crimea. 
Real wages in Ukraine are about 62% of the level in Russia. 
12 
Assistance from the USA (ECU 1,05 billion or US $1405 million between 1991 and 95), is 
strongly increasing since 1996, with Congress having decided to make Ukraine a priority 
for American aid in that region. Ukraine is the third largest recipient of American aid (after 
Israel and Egypt). Coordination is implemented with the Community, notably via 
Transatlantic Cooperation. 
EU OBJECTIVES AND ACTION GUIDELINES 
The Ukraine authorities have clearly indicated their objective of integrating the country into 
the various European structures. This strategy conforms to the objective of regional 
stability sought by the EU, and also to the objectives of the Common Position. A 
strengthened partnership corresponds to the particular situation of Ukraine, which 
occupies a pivotal position in Europe. 
Consideration should be given to the place of Ukraine on the map of Europe which will 
emerge from the enlargement of the Union to the countries of Central and Eastern Europe, 
and to the type of relations to be established with this country. The importance of Ukraine 
for the Union, already perceptible, will be clear to all when it has a common border with the 
EU : comparable to a large European country in the size of the population (52 million), 
one of the biggest potential economic markets at the very gates of the Union, a transit area 
for Russian gas on its way to the EU, with coastal access to the Black Sea, this country is 
an essential element in the stability of the region. To this has to be added a favourable 
political consideration that the Union cannot ignore : Ukraine is an emerging democracy, 
and it takes its inspiration from Europe. 
The support of the Community and its Member States may be developed in the six 
following directions (see the last part of this document for concrete measures): 
1) support for the reform of the economy; (Community + Member State action); 
2) social transformation; (Community + Member State action); 
3) introduction of Ukraine into the European security architecture and the strengthening of 
the political dialogue; (CFSP 2nd Pillar : Commission + Council + Member States); 
4) support for regional cooperation; (Community + Member State action); 
5) deepening of contractual relationships; (Community + Member States); 
6) reform of the energy sector. (Community + Member State action); 
1) support for the reform of the economy : the Community will continue to support a 
policy of macro-economic stabilization in conjunction with the IMF and will develop its 
backing for the deepening of the reforms, both in the framework of the multilateral aid 
system of the IFIs and through its own means of action. It will attempt to accelerate the 
transition to a market economy, particularly through its assistance with the privatization 
process, the development of small and medium-sized enterprises, and also a more dynamic 
labour market. 
2) the transformation of Ukrainian society : the EU will back the legislative and 
administrative reforms which will promote the emergence of a pluralist society, the 
consolidation of democratic institutions and of a state based on the rule of law, the 
protection of individual rights, (in conformity with the political principles of the Council of 
13 
Europe, implementation of the Constitution). This implies the opening and modernization 
of education systems, the development of human resources, the training of officials of the 
civil administration, the private sector and also the components of a pluralist society 
(associative system, media, trade unions, political parties), and the development of a new 
system of social security. 
Entry into the Council of Europe involves several obligations for Ukraine, in particular the 
establishment of an independent system of justice, reform of the electoral law and the 
abolition of the death penalty which has not yet become effective. 
3. Introduction of Ukraine into the European security architecture. Consideration of 
Ukraine's place in the European security architecture has to be pursued, mainly through a 
strengthened political dialogue, and in respect both of the positions of Ukraine and that 
of the EU, the evolution of which is still in progress. The measures enunciated in the 
Common Position, already broadly under way, must be reinforced : political dialogue, 
cooperation of Ukraine with the Stability Pact, the North Atlantic Cooperation Council and 
the Partnership for Peace, as well as with the WEU. 
Beyond this, the strengthening of the partnership with Ukraine will take place in parallel 
with the enlargement of the EU to the countries of Central and Eastern Europe. This 
enlargement will itself contribute to the improvement of security in the region and thus 
Ukraine's own security. The new developments may be defined on the basis of the Council's 
ongoing deliberations on the integration of the countries of Central and Eastern Europe 
into the European Security Architecture and the position of Russia and Ukraine and the 
contribution of the EU to the drawing up of a model of European security within the 
framework of the OSCE. 
- Strengthening of political gatherings at various levels between the EU and 
Ukraine, including where necessary summit meetings; 
- The widening of the political dialogue to security topics, the development of 
common orientations with Ukraine in the area of international relations on topics of 
common interest, will constitute the next stages of development of this partnership. 
- Strengthening the OSCE will be pursued in order to provide for the integration of 
Ukraine into the European security model; 
- Consultations will be stepped up with the WEU. But the "special partnership" with 
NATO requested by Ukraine would no doubt be a more effective response to the security 
guarantees that country seeks. 
4. Support in regional cooperation will be developed to contribute to a "re-balancing" 
vis-à-vis the CIS and to "anchor" Ukraine within the continent of Europe. Ukraine has 
clearly indicated its rejection of a strengthening of the CIS and the priority which it gives to 
recognition of its independence and its territorial integrity . 
Although Ukraine is "founder member" of the CIS, it has not signed neither the January 93 
Charter, nor the October 92 agreement on the concept of military defence, nor that concerning the 
common defence of frontiers proposed by the Russians in February 95. It rejects the customs union. 
14 
- The multi-disciplinary regional measures which contribute to the development of 
Ukraine's relations with its immediate neighbours, particularly the countries associated with 
the Community, should be developed. In this respect, the joining of Ukraine to the CEFTA 
is to be encouraged and the Stability Pact constitutes a framework for the settlement of 
differences, as does the cross-frontier cooperation between Ukraine and the countries 
associated with the Community, who now possess experience of the transition to the 
market economy. 
- The EU could additionally use the political dialogue with Ukraine's neighbours to 
explain to them its policy to Ukraine and contribute to a balanced settlement of differences. 
(For example, for Russia, the solution of the current differences with Ukraine could ensure 
the existence of a stable and friendly partner on its south west flank. Such a development 
would constitute an advantage for Russia, since it would contribute to its own stability.) 
- The cooperation of the states bordering the Black Sea assumes a particular 
importance in this context. The interests of the Union in this region seem to converge with 
those of Ukraine, for whom this is of crucial importance : a potential access way to the 
Caspian basin and to Central Asia, allowing diversification of energy supplies, support for 
economic cooperation with a potentially strong grouping and seeking the stabilization of a 
particularly fragile geopolitical area. 
The Commission plans to strengthen its role in Black Sea cooperation, by participating 
actively in the activities of the Black Sea Economic Cooperation Council and better 
utilizing and coordinating the intervention of its aid programmes for the countries bordering 
the Black Sea (Tacis, Phare, Meda). 
5. The deepening of contractual relationships : 
o 
a) the implementation of the IA and the potential of the PCA is a priority of the 
Union in its relations with Ukraine for the years to come, as the Presidency, on behalf of 
the EU, stated in the Declaration of Rome in May 1996 : 
i) the ratification of the PCA by the Member States of the Union is a political 
priority. This already long process is currently faced by an unforeseen legal situation, 
linked to the need to also ratify the supplementary protocol following the enlargement to 
three new Member States. It is imperative, leaving aside the legal difficulties, to find a 
solution to enable the PCA to be implemented without waiting for the supplementary 
protocol. The Community and its Member States should be in a position to face up to their 
commitments with respect to Ukraine which, for its part, immediately ratified this 
agreement and for which its coming into effect assumes a high degree of political priority. 
PCA = Partnership and Cooperation Agreement between the European Communities and their 
Member States and Ukraine, signed in June 1994 currently being ratified; 
IA = Interim Agreement on Trade between the European Communities and Ukraine, signed in June 
1995, (consisting of the commercial parts of the PCA pending the latter's ratification), which came 
into effect in February 1996. 
15 
ii) the development of the contractual relations provided by the Agreement should 
lead to a progressive rapprochement between the parties in the very broad area of 
economic cooperation : commercial, industrial, scientific and administrative cooperation, 
coordination of laws . The PCA also represents a framework for sustained cooperation 
in the key areas of social transformation : education, transport, or of direct concern 
for the integration of Ukraine into the European arena : protection of the environment, 
customs cooperation, control of illegal immigration, drug trafficking and money laundering. 
Without listing here the various measures provided for under the PCA, certain areas of 
action deserve to be highlighted due to their particular importance or their potential for 
rapid development: 
- Transport (art. 64 of the PCA) is a major element in the development of 
economic activity and trade. The current situation, marked by the delay in privatization and 
under-investment, is inappropriate to the development of a modern and open economy. 
Infrastructure: The development now in progress of the TEN networks should go hand 
in hand with economic and trade rapprochement between Ukraine and Europe. The 
definition in 1994 of nine European corridors, two of which concern Ukraine, provides a 
framework for trade and investment coordinated by the Commission which has led to the 
signing of development agreements and the launching of measures on routes and frontier 
crossings. But a much more global effort is necessary. Since the aspect linked to structural 
investments is decisive, it is necessary to seek other sources of finance, notably in the 
private sector. A more active contribution by EBRD would also be desirable. But the 
participation of private investors in this market should be facilitated by the improvement of 
the legislative framework and particularly by a better transparency of the conditions for 
awarding public contracts in Ukraine. 
Transport services: In this context, the counterproductive Ukrainian policy of 
protectionism in air transport cannot be ignored. The benefit of public assistance by the 
Community in the improvement of the transport system must go hand in hand with the 
elimination of obstacles in terms of taxation of foreign companies. 
- Telecommunications (art. 66 of the PCA) : they play a vital role (together with 
information technology) as the enabling mechanism of the Information Society. In this 
respect the Community will support the following measures : (i) the adoption of a 
framework of laws and regulatory policies that encourage all types of investment in the 
telecommunications infrastructure and which maximize open access to it; (ii) the use of 
appropriate technical standards for hard-ware and services so that telecommunications 
TENs can be extended easily into Ukraine, (iii) the use of telematic services for vital sectors 
of the economy, e.g. for education, for health services, for transport, for publishing, for 
government administration and for electronic commerce generally. 
This development of cooperation is also requested by the European Parliament (report of Mme. 
Mann, December 1995). 
A 15% tax on foreign firms' turnover imposed when Air Ukraine does not operate the same route 
has already made several European companies cease activities in Ukraine. Besides the 
discrimination which goes against the principles of international air transport such a policy cannot 
be said to help Ukraine's integration with the world economy. 
16 
- Industrial cooperation (art. 53 of the PCA) is a sine qua non for the 
modernization of industry. Areas where cooperation with the private sector is practical will 
be identified. Industrial sectors with high value-added potential (the farm-produce industry, 
engineering, consumer industries) should be given priority, countering the current position 
which tends to preserve heavy industry by maintaining state intervention in sectors 
considered to be strategic . The latter are inappropriate to Ukrainian market demand : 
they stem from the structure of the former USSR with its military connotations. The 
interest of the private sector in industrial cooperation operations hinges on the effective 
privatization of enterprises and the potential for restructuring them. 
• 1 "2 
- Agriculture (art. 60 of the PCA) is a sector of high potential . The current 
yields of the main products (wheat, sugar, sunflowers), are half as large as those of a 
comparable European country. Taking account of the agricultural tradition and the quality 
of the soil in Ukraine, this country could achieve a spectacular and rapid increase in its 
yields and become again a big exporter to world markets, subject only to an effective policy 
of privatization, opening up to foreign capital and modernization. This applies also 
downstream to the food-product industry which, together with agriculture, constitutes one 
of the main potential areas for rapid wealth creation and export revenue for Ukraine. 
- Tourism (art. 72 of the PCA) is another sector in which there is a considerable 
potential for rapid development, with a notable advantage : it involves the creation of 
substantial numbers of new jobs. Again, what is needed is a policy of privatization and the 
modernization of accommodation, communication and transport infrastructure. 
13 
This applies particularly to Crimea , which has substantial assets in this sphere. 
- The environment (art. 63 of the PCA) has particular importance in Ukraine and 
not only because of the crucial nuclear aspect. The latest research confirms the existence of 
air, water and ground pollution exceeding currently accepted international standards by far. 
This situation is due to an obsolete industrial infrastructure, excessively hungry for energy 
and other raw materials, and to a lack of 
investment in anti-pollution processes. The Community intends to promote measures of a 
horizontal type in this sphere, as well as more specific measures. 
The share of heavy industry in industrial production increased from 39% in 1993 to 58% in 1996 
in the general context of reduction of overall industrial production. The Ukrainian authorities are 
rightly preoccupied about the insufficiency of domestic production of consumption goods. 
The farm-produce industry delivers 1/4 of Ukraine's GNP and provides employment to 1/4 of the 
active population. The significant reduction of agricultural production recorded in 1996, generally 
attributed to drought but also due to structural problems (particularly, the system of ownership is 
almost unchanged, and there is chronic under-investment). 
13 
Even before 1917, the Crimea was the favourite tourist spot for Russians. In 1996 4 million 
tourists were attracted to the area, against 8 to 10 millions before 1991. The conversion from mass 
tourism, with limited purchasing power, to a modern tourist service industry requires : (i) the 
reconstruction of communication and public service infrastructures, (ii) the privatisation of hotel 
and tourist facilities, and (iii) the assurance of maintenance of law and order. (For the current 
situation, see the OSCE report of August 96 on tourism in Crimea). 
17 
- Scientific and technical cooperation (art. 58 of the PCA). Ukraine has a high 
potential for Research and Development, but there are two main obstacles to its 
development : a lack of resources which is severe enough to compromise even the 
maintenance of the potential for research and is a source of isolation among researchers; 
and inadequate scientific training for the requirements of a modern economy. 
The opening of European research programmes under the Fourth Framework Programme 
(participation in specific programmes; INCO-Copernicus calls for tender and INT AS) and 
Community membership of the Ukraine Science and Technology Centre (USTC) will help 
address the first problem. The second is dealt with in the framework of the training 
measures listed under point 2. 
- The battle against organized crime and money laundering (arts. 68 and 79 of 
the PCA), has to be the subject of intense cooperation between the Community and its 
Member States and Ukraine. This is a matter of vital concern both for these national 
institutions and for their people. Beyond the effects which impinge on it directly, the Union 
must be very concerned at the development in Ukraine of organized crime and the 
weakening of government institutions due to the development of a black economy and the 
power of clans on the administration and the economy. 
The PCA provides for cooperation in the control of illegal migration (art. 27) and the fight 
against drugs (art. 79). The implementation of this cooperation involves consultation with 
the Ukrainian side, and comes under Titles V and VI of the Treaty on European Union. 
The potential of the Round Table of the Stability Pact may be used. The technical 
assistance of the Community could contribute to regional cooperation in these areas and in 
strengthening the capacity for action of the Ukrainian administration. Some research has 
already been started to draw up means of action in this sphere. 
b) Development of bilateral trade : although trade with the Community has grown 
substantially, Ukraine is still highly dependent on the CIS market.14 Ukraine is also 
concerned about its increasing trade deficit with the Community. 
The existence of a trade deficit is a normal phenomenon with economies in transition which 
have to import many capital goods and which lack products which are competitive in 
foreign markets. The effect of the Community's anti-dumping policy on trade should not 
be overestimated; it actually affects less than 1% of bilateral trade. Anti-dumping policy is 
an integral part of the rules of multilateral trade and as long as Ukraine is not recognized as 
a market economy the rules applicable remain those of reconstitution of real value, 
corresponding to state-run economies. The Commission reminded the Ukrainian authorities 
in May 1996 of the possibility of individual treatment for producers able to prove that they 
were producing without state intervention. 
The EC is the Ukraine's principal trading partner outside the CIS, with 15% of its trade and a 
positive balance of 700 Mecu in 1995. However in 1995, 45% of its product exports and 65% of 
its imports were still carried out within the CIS; see Annex IV 
Ukrainian exports outside the CIS consist mainly of métallurgie products (over 40%), iron ore 
and transport equipment, all these being products for which demand is stagnant and where 
competitiveness relates first and foremost to the prices. 
In the short term, EU action will relate to : 
- the establishment of a joint working party on trade which will carry out an 
comprehensive examination of the trading situation between the EU and Ukraine. In 
particular, it must identify the causes of the unfavourable balance linked with the current 
economic transition. It must seek methods of balancing trade, by identifying the various 
types of existing obstacles, acting as a monitoring and early warning unit regarding 
potential obstacles and difficulties, and following up decisions made in this connection, 
particularly by the Joint Committee: 
- assistance to Ukraine within the framework of its membership of the WTO will 
be continued with a view to adapting its commercial legislation to international standards as 
well as to the principles of the Interim Agreement, particularly in the spheres of standards, 
certification and intellectual property. 
- an easing of quantitative restrictions will be sought within the current steel 
negotiations. The Community is proposing a gradual liberalization of access to the 
European market in return for effective restructuring and liberalization of the Ukrainian 
system of production (particularly the abolition of government grants). 
The entry into force of the PCA will confirm the date set in Article 4, namely consultations 
in 1998 to see whether circumstances, in particular headway made by Ukraine with its 
reforms on the way to a market economy, and the state of the economy at the time, will 
allow the beginning of negotiations on the establishment of a free trade area. This outlook 
underscores the importance of continued economic reform. 
In the longer term, trade expansion and an improvement in the Ukrainian balance will above 
all be achieved by enterprise modernization, increased competitiveness and a more dynamic 
presence on world markets. 
c) growth of investments : foreign investments form the principal source of long-term 
capital, taking into account the low lending capacity of the Ukrainian banking sector and 
the limited borrowing capacity of enterprises. However foreign investments remain limited 
16 
- The development of an appropriate legislative framework in addition to its 
implementation procedures is a prerequisite for the growth of investments. In this respect 
the Ukrainian government must itself take the initiative : only a clear and committed policy 
of liberalization and privatization, including the introduction of legislation ensuring that 
foreign companies do not receive discriminatory treatment (as provided for in Article 30 of 
the PCA) is likely to attract foreign and national investors. Additionally, effective 
protection of intellectual property is an essential condition - although not sufficient in itself 
- for the encouragement of direct foreign investment and the transfer of technology. 
$150 - 200 million flow of funds per annum and $950 million in stock since 1989 against $3.9 
billion in Russia. 
17 
As a general rule, these rights under private law belong to private organisations which make their 
own decisions regarding their availability. Nevertheless the public authorities can encourage the 
transfer of technology by the use of appropriate measures. Although Ukraine is not yet a member of 
19 
Beyond privatization, conditions for the private sector are still very difficult (high levels of 
complicated and discriminatory taxation, administrative complexities, mafia payments). 
- The Community will supplement measures taken by the Ukrainian authorities in 
this sphere by the transfer of knowledge and discussions relating to the establishment of an 
investment fund (revolving fund). Such an instrument, specific to Ukraine, could stimulate 
investment and provide a cover for certain risks. The experience of the Jopp programme 
will be developed to finance SMEs, but it is not enough to provide a significant stimulus. 
The EBRD will be encouraged to develop its activities in Ukraine, in liaison with the 
Community. 
The Member States could study formulas for guaranteeing investments in addition to the 
development of a bilateral network for the encouragement of trade through linking the 
Chambers of Commerce. 
6. The reform of the energy sector : since 1992 one of the Community's priorities has 
been the reform of the energy sector and the improvement of nuclear safety in Ukraine. 
This will be continued, with the objective of reducing Ukraine's dependence and increasing 
the safety of its nuclear plants (35% of electrical energy is of nuclear origin). This initiative 
will take the form of a restructuring of the energy market in Ukraine, the encouragement of 
energy saving and a search for alternative sources of energy, the continuation of the effort 
to improve nuclear safety, particularly through implementation of the MoU relating to the 
closure of Chernobyl in the year 2000. 
a) Assistance from the EC in restructuring the energy sector : the Commission's 
objective is the promotion of an efficient energy sector, based upon the principles of the 
market economy and ensuring security of supply. 
Although these reforms are well under way, significant effort will still be required. In 
particular, it is necessary to speed up the process of privatization and the introduction of an 
appropriate legislative framework : in this sphere as in others, these factors influence the 
access to foreign investment. Ratification of the Treaty on the Energy Charter by Ukraine 
and the Community will ease the introduction of the plan of action. 
Various types of action will be intensified : (i) support for the implementation of an overall 
energy saving strategy, for the restructuring of the coal industry, relating in particular to 
social problems and the liberalization of the energy market; (ii) assistance in finding reliable 
sources of fuel supplies in addition to searching for other forms of renewable energy, (iii) 
the integration of Ukraine into regional working parties on the restoration of gas and oil 
pipelines; (iv) preparatory studies and measures accompanying loans made by the 
the WTO, the effective implementation of measures modelled upon those of the ADPIC (TRIPS) 
should ensure sufficient protection of intellectual property to encourage foreign companies to invest 
in the country and to ease the transfer of technology 
18 The EBRD committed ECU 150 million in Ukraine in 1995; it should be ECU 200 million in 
1996, chiefly in the private sector. It is participating in the financing of G7 Plan measures for 
Chernobyl and is managing the $ 200 million Nuclear Safety Fund (NSA). 
20 
international financial institutions, with regard to the implementation of investments which 
are economically viable and which respect the environment; (v) industrial cooperation, 
particular through the promotion of joint ventures between traders and component 
manufacturers. 
The importance of points (i) and (ii) should be emphasized, in that removal of the 
constraints imposed by Russia upon Ukrainian supplies is a priority. Coal can obviously 
not fulfill this function. Energy saving and the search for independent gas supplies must be 
contributory factors. 
21 
b) nuclear safety constitutes a priority 19 within the context of the overall reform of the 
energy sector in Ukraine. It is centered upon two fundamental factors : the improvement 
of nuclear safety and the closure of the Chernobyl nuclear power station. This agreement 
provides inter alia for the following commitments : to implement projects for 
decommissioning the Chernobyl nuclear power plant, to cooperate in the development of a 
cost-effective and environmentally sound approach to the shelter for Chernobyl 4, to 
develop an action plan for addressing the social impact of the closure of Chernobyl. 
- Assistance in improving nuclear safety essentially relates to power stations of the 
WER type which are in operation, through the programme of assistance on the sites, 
reinforcement of the body responsible for safety, and help on the Chernobyl site. 
- The EC contributes actively to the implementation of the agreement of 
December 1995 (MoU) relating to the closure of Chernobyl, with the firm intention of 
respecting the deadlines set. Preliminary studies financed by the Community should 
enable decisions to be taken within the framework of the G7 in 1997, regarding the 
additional financing to be anticipated, project by project. The contribution of Ukrainian 
resources which is stipulated in the MoU must also be carried out. 
The closure of Chernobyl has long term and short term aspects. 
- The long term aspect is related to the in depth restructuring of the energy sector. 
Investments are needed for the rehabilitation of the existing thermal power plants and for 
additional hydro-electric power plant. The MoU includes a comprehensive package of 
measures which go well beyond the year 2000, until the full restructuring of the energy 
sector will have been achieved. 
- The short term aspects concern safety risks associated with the present situation at the 
Chernobyl site (operation of reactors and status of sarcophagus) and the need to find 
replacement electricity for the reactors to be shutdown. In the view of the Ukrainian 
authorities, the completion of two nuclear reactors under construction at Rovno and 
Khmelnitsky (the R4K2 project), could bring by the year 2000 the compensating electricity 
capacity for the two Chernobyl reactors. 
- Two measures are of particular importance for the Community over the period up to 
mid 1997, in order to support the decision of Ukraine to close the Chernobyl plant by 
the year 2000. These measures relate to the financing of the completion of the two 
reactors under construction, the implementation of the necessary measures to assure the 
safety of the sarcophagus. 
For the completion of the two reactors 70% of the investment (about 1000 Mio$) should 
be paid by loans from Euratom (up to 400 mecu) and from the EBRD. The preparation of 
these financing decisions in under way. Safety, economic, environmental and financial due 
diligence has to be demonstrated. The EBRD and the Commission have agreed to entrust a 
panel of independent experts with a new least cost investment analysis in the context of 
the MoU requirement to "identify least cost power supply investments to meet Ukraine's 
future national power requirements". The financial due diligence will depend on Ukrainian 
See the Commission's Information Note of November 1996 on this subject. 
22 
decisions in the nuclear power sector, which should ensure that the borrower will be able to 
reimburse the loans. The current planning is to submit the loan decisions to the Commission 
and to the EBRD board by mid-1997. 
Although the funding of the sarcophagus ass such is not part of the MoU, it is considered 
essential by The Ukrainian President and, as agreed by the G7 Heads at the Moscow 
Summit, the G7 and Ukraine will begin to discuss this issue in December 96. 
The financing modalities for both the completion of R4K2 and for the sarcophagus require 
therefore urgent attention. 
c) The economic and social aspects connected with the accident and with the closure 
of Chernobyl also constitute an important part of the Community's overall assistance 
regarding Chernobyl. The social aspects of the closure of the power station form an 
integral part of the MoU and the EC must endeavour to contribute to an analysis of the 
problem of rehabilitation of the occupational groups which will be affected by the closure 
of the plant, the problem of the economic, social and environmental restoration of the 
regions affected by radioactive fallout, and medical assistance for the development of 
specific treatment (for example for cancer of the thyroid). 
AVAILABLE INSTRUMENTS 
This document, addressed to the Member States as a general guideline also includes 
information regarding concrete projects. These are set out in the last part in a thematic 
order which corresponds with the priorities set out above. However, whilst the Union's 
strategy with regard to Ukraine constitutes a coherent whole, the legal bases of the 
concrete initiatives are various. The projects mentioned could give rise to (i) assistance 
initiatives under the responsibility of the Community, covered by the Tacis Regulation, (ii) 
initiatives under the responsibility of the Community in implementation of the Interim 
Agreement, (iii) initiatives under joint responsibility in implementation of the PCA when 
this has been ratified, (iv) initiatives under Titles V and VI of the Treaty on European 
Union, (v) initiatives under the exclusive responsibility of the Member States for which the 
latter will take any decisions. 
1. At Community level : the Community has introduced a set of measures for assistance 
to Ukraine (see Annex II), some of which are open to all the NEI (Tacis) or others such as 
the macro-financial assistance which has been in progress since 1994, or the Euratom loan 
instrument for the improvement of nuclear safety which is only granted to a very limited 
number of countries. 
The priority objectives are defined by the Tacis Indicative Programme, signed in September 
1996 for the period 1996-99 (the reform of the legislative and statutory framework, 
enterprise reform and the development of the private sector, the reform of the energy sector 
and the environment), covering very broadly the objectives set out in this document and 
making it possible to embark upon initiatives without delay. A quarter of the budget which 
is available for the NEI over the period 1996-99 is allocated to Ukraine, of which an initial 
installment of approximately 110 Mecu will be committed before the end of 1996. 
23 
It will be advisable to study the possibilities of developing additional instruments in the 
infrastructure projects in Ukraine (particularly the trans-European networks), and of 
encouraging cooperation with the EBRD in order that the latter can increase its activity in 
Ukraine alongside the Community and the other principal partners. 
2. Cooperation under Titles V and VI of the Treaty on European Union (CFSP and 
Third Pillar) : developments relating to security in addition to initiatives for the control of 
organized crime and illegal immigration, necessitating an increased level of cooperation 
between the Commission, the Council and the Member States and Ukraine, and 
undoubtedly the development of specific instruments. 
3. At the level of the Member States, there is a significant level of potential which calls 
for a higher level of synergy between Community initiatives. The establishment of the 
Ukrainian Centre for Legal and Political Advice, in addition to a large German project, is in 
this respect a model to be followed. Some Member States are very committed with regard 
to Ukraine in a bilateral capacity, and all are through their contributions to international 
institutions such as the World Bank or the EBRD. 
Some spheres are suitable for decentralized initiatives : for example teaching and 
training, where the Member States should be encouraged to increase initiatives 
(secondment - of teachers, giving study grants in Europe, support for the teaching of 
European languages in Ukraine, networks of information exchange, university 
sponsorship), industrial and scientific cooperation. 
24 
CONCLUSION 
Ukraine has clearly demonstrated its ambition to become integrated into the European area 
and the new geopolitical scene will place this large country immediately adjacent to the 
Union. This is a quite new situation both for the Union and Ukraine. Until 1991 the Union 
had in this region only a single negotiating partner, which was geographically distant; it 
now has a new partner, geographically close, which is diplomatically demonstrating its 
dissimilarity as well as its readiness to contribute to the stability of the region. Ukraine has 
for the first time in its history a choice other than that of allegiance to one of its two 
powerful neighbours. 
Ukraine has also given pledges of its wish and ability to move closer to Europe and to 
reform its economy and its society. These pledges are of even greater value in that they 
have been produced from a situation of extremely severe constraint, which is described in 
the first part of this document. 
However, this country is still only in the middle of the river crossing and will not be able to 
continue without international support. This support must naturally be practical with the 
following immediate priorities: (i) the transformation of society by all the measures 
available under the PCA (ratification by the Member States and entry into force); 
(ii) support for the reform of the economy (decision 
regarding new macro-financial assistance for 1997); 
(iii) the reform of the energy sector, and in particular 
the closure of Chernobyl (financing and implementation of the agreement between the G7, 
the EC and Ukraine, including the financing of the sarcophagus); 
(iv) the search for improvements in bilateral trade 
(working party on trade); 
(v) the introduction of a framework conducive to 
private investment in Ukraine. 
These initiative priorities are developed within the operational section which follows. 
This support should also offer the authorities and the Ukrainian people a political 
perspective which will be substituted for any possible return to the former ways and will 
loosen the grip of dependence upon their powerful neighbour. 
The Union has a unique opportunity of contributing to the emergence of a large 
democratic country, which can contribute to the stability of the region, which has obvious 
economic potential and with which it would be linked by a solid partnership. 
20 
It is worth recalling that Ukrainian independence has twice hung fire (1648-1654 and 1918-
1921), through a failure to find support and an anchorage point outside its two powerful neighbours. 
Whilst the Ukrainian authorities are resolute in searching for anchorage within Europe, public 
opinion within the country provides a figure of 54% representing those who still see the future of the 
country linked with Russia. (Eurobarometer March 1996) 
25 
CONCRETE MEASURES 
1. SUPPORT FOR ECONOMIC STABILIZATION AND REFORM 
Measures implemented : 
Tacis : Action Programmes during the period 
1991-1995 have supported numerous projects in 
the areas of privatization, post-privatization, 
financial services, development of the SME 
sector, military conversion, and food 
production, processing and distribution. Tacis 
assistance in privatization has been a 
combination of institutional support, mostly to 
the State Property Fund (SPF) and the Small 
and Medium Enterprises' Development Agency 
(SMEDA), as well as support for the 
privatization of specific enterprises. 
Macro-financial assistance: disbursement of 
balance of payments aid of ECU 85 million in 
1995 and first tranche of ECU a maximum of 
100 million of a maximum 200 million for 
1996, in support of the programme of 
stabilization and of economic reforms, also 
linked to the registering of progress on 
Chernobyl. Measures to be implemented : 
Tacis : priorities set out by the Tacis Indicative 
programme for the period {support for the development of 
institutional cadre of officials, reform of the legislative 
and regulatory framework, enterprise reform and 
development of the private sector, reform of the energy 
sector and of the environment), corresponding to the 
shaping of the reform of the Ukrainian colony. 
- 1996 Action Programme approved by the Commission 
- 1997 Action Programme in preparation - Expected 
decision: 
Creation of the Ukrainian Centre of Legal and Political 
Advice, which will provide legal and economic policy for 
the use of the Parliament, the President and the Prime 
Minister (a complementary measure to that implemented 
by bilateral German assistance). 
Macro-financial assistance: payment, where possible, of 
the 2nd tranche of the loan of ECU 200 million decided 
on in 95; 
a request for 1997 is under examination. Timetable 
1996-1999 
October 96 
March 97 
Start of 97 
End 96 
January 97 
26 
2. TRANSFORMATION OF UKRAINIAN SOCIETY 
Measures implemented : 
legal advice activities on parliamentary 
procedures, banking legislation, and advice 
on economic policy in liaison with a 
German project of the Federal Ministry of 
the Economy. 
joint programme with the Council of 
Europe on adapting Ukrainian legislation to 
democratic criteria. 
training project for Ukrainian Members of 
Parliament. 
support for NGOs (Democracy, poverty 
alleviation, LIEN). 
policy advice for the strengthening and 
reorganization of public employment 
services. 
other activities have been carried out in 
education, retraining, vocational guidance 
and building social dialogue structures for 
effective policy making. Measures to be implemented : 
Community : 
• in conformity with the objectives of the implementation 
of the PCA the modernization and reform of state 
institutions will be a major objective for the period. 
• further support for the development of a free civil 
society and for democracy through the instruments 
developed for this purpose (Democracy, LIEN, City 
Twinning, TEMPUS, etc.) with particular stress on 
education and training issues. 
• furtherance and deepening of cooperation with the 
Council of Europe. 
• Continuation ofsupport for the development of an 
active employment policy. The assistance over 1996-
99 will focus more in-depth on (i) general policy 
support, (ii) promotion of active labour market 
measures, and (iii) institution-building. 
Member States : 
• provision of instructors, the providing of study grants 
in Europe, support for the teaching of European 
languages in Ukraine, information exchange networks 
and sponsorship of university institutions. Timetable 
1996-1999 
1996-1999 
1st half 97 
1996-1999 
27 
3. UKRAINE'S PLACE IN EUROPE'S SECURITY ARCHITECTURE 
Measures implemented : 
cooperation of Ukraine with the Stability Pact, 
the NEAP andPfP and also with the WEO, 
support for regional cooperation efforts. Measures to be implemented : 
CFSP: 
• strengthening of political meetings at various political 
levels with the possibility of organizing summit 
meetings where necessary; 
1. security questions: 
• strengthening of the political dialogue on security 
matters, and provision of information for Ukraine on 
the Union's policy in this area; 
• development of existing cooperation, and of contacts 
with specialists (particularly on the questions of illegal 
trafficking in nuclear materials): 
• development of joint action with Ukraine in the 
sphere of international relations, and association of 
Ukraine on a case by case basis of the steps taken by 
the Union (on questions such as the CTBT, mines and 
non-proliferation) ; 
• promotion of the ratification of international treaties 
by Ukraine; 
• further consideration within the Council on the 
position of Ukraine in the European architecture of 
security; 
• further support in the development of OSCE and its 
work on a European security model, in cooperation 
with Ukraine. 
2. foreign policy questions: 
• strengthening of political dialogue; 
• consultations with Ukraine prior to particular events 
(such as UNGA); 
• specialist consultations with the CFSP group, and 
on an ad hoc basis. 
Community (Tacis ) : 
• with respect to regional cooperation, strengthening of 
assistance by the improved coordination of the 
existing assistance programme and the development 
ofsynergetic links (Tacis, Phare, Meda, Black Sea 
cooperation, relations of Ukraine with countries of 
Central and Eastern Europe). Timetable 
28 
Measures to be implemented : Timetable 
5.a.6 Transport 
Community : 
• priority in assistance for the trans-European 
networks programme, in particular with respect to the 
multi-mode connection of Ukraine's national transport 
systems with those of the rest of the continent; 
importance of the improvement of border crossings in 
this context; 
• legal and technical advice for the adoption of more 
transparent legislation on calls for tender, the 
reorganization of the road transport sector, 
privatization of transport; 
• development of the preparatory stage of investments 
in infrastructures in close coordination with EBRD. 
Community + Member States : 
• action aimed at ensuring non-discriminatory treatment 
of air carriers flying to Ukraine 
• assistance in the organization and training of 
officials; 
Possibility of including Ukraine in such multi-lateral 
events/conferences as the next EU/CEEC Information 
Society Forum, which will take place in Brussels. It would 
be helpful if Tacis could meet the costs of Ukrainian 
participation in this (or an equivalent meeting) in the same 
way as Phare has done for CEEC countries. 
Autumn 97 
Nov. 96 
33 
Measures implemented : 
5.b) Development of bilateral commercial 
exchange 
• assistance to Ukraine in the matter of its 
gaining membership to the WTO with the 
intention of adapting its commercial 
legislation to international practice and 
also to the principles of the Interim 
Agreement, particularly in the sphere of 
standards and of the registration of 
intellectual and industrial property. 
anti-dumping policy, the position of the 
Commission, spelt out during the Joint 
Committee of May 1996, rests on the 
following elements : antidumping rules are 
an integral part of the rules governing the 
multilateral trade system, actual anti­
dumping measures affect a very limited 
share of EC trade with Ukraine, amounting 
to less than 1% of Ukrainian exports in 
1994. Eight products are affected. 
Two seminars on antidumping policy 
already took place in Ukraine. Measures to be implemented 
Community : 
• creation of a. joint working group (EC + Ukraine.) 
responsible for identifying causes of imbalance: study 
of measures to achieve trade balance, identification of 
various forms of obstacles, an alert system and 
following up decisions; 
• entry into force of the PCA will confirm the date set 
in Article 4. This prospect underlines the importance 
of continuing the economic reform process. 
• steel trade : the Commission will start negotiations 
on 28-29 November in Kiev for a new ECSC 
agreement. The directives foresee a longer 5 years 
agreement, seeking improved market opening in the 
Community with the possible eventual abolition of 
quantitative restrictions for Ukrainian steel products, 
in exchange for the achievement of appropriate market 
conditions within the Ukrainian economy, namely "the 
application of disciplines no less stringent than those 
applied in the Community, concerning competition and 
state aids". This offer will be a major prospect of 
market opening. 
• textiles: during 1996-99, gradual forthcoming 
liberalization of the Community regime towards 
Ukrainian products in accordance with the PCA. 
• membership of WTO : further assistance in the 
adapting of commercial legislation to international 
standards, in accordance with the PCA and with a 
view to the membership. 
• anti-dumping : organization of seminars for 
officials; 
• Commission available to examine the granting of 
individual treatment to producers in non-market 
economies that provide evidence that they operate 
without state interference. Timetable 
November 
96 
1998 
November 
96 
34 
Measures implemented : 
5. c) development of investment Measures to be implemented : 
Community (Tacis) : 
• assistance in developing the secondary market of 
shares of privatized companies (assistance to the 
Stock Exchange related to the setting up of custodians, 
the control and supervision of capital markets and staff 
training). 
• support to financial sector for the introduction of 
international accounting standards by Ukrainian 
banks. 
Member States : the promotion of investment under the 
auspices of the PCA (art. 54 of the PCA), requires the 
Member States to intervene. Research into investments 
guarantee systems, development of a system for 
promotion of trade/bilateral Chambers of Commerce. 
Germany announced the establishment of a German-
Ukrainian fund for SMEs, as a preliminary stage for a 
bank providing credits to SMEs. Timetable 
35 
6. ASSISTANCE TOWARDS REFORM OF THE ENERGY SECTOR 
Measures implemented : 
6. a) restructuring of the energy sector 
• The Community has put aside ECU 55 
million for the 1991-96 period, i.e. 35% of 
its technical assistance to Ukraine, to 
energy and 24% to nuclear safety?. 
Principal guidelines : 
(i) support for the implementation of the 
decentralized, competitive structure of 
production and distribution, based on prices 
reflecting costs; 
(ii) support for measures of energy savings 
and improvement of energy efficiency, 
particularly in industry; 
(iii) support for the modernization of production 
equipment. 
• The EBRD committed ECU 150 million in 
Ukraine in 1995; it is to commit ECU 200 
million in 1996, chiefly in the private 
sector. Measures to be implemented : 
The Community : will continue to develop a global 
approach for progress across all areas of energy 
production and usage, including energy efficiency: 
• create a structured dialogue with Ukraine on energy 
policy, to revitalize the sector within a competitive 
market focus and to ensure security of supply and 
energy diversification for both the EU and Ukraine; 
• define co-operative schemes, reinforced by exchanges 
of institutional experience and technological know-how; 
• promote funding of selected schemes through 
collaboration with appropriate financing institutions, 
especially the EBRD; 
• continue support to the restructuring of the power 
sector according to sound economic principles (least-
cost options, cost-based tariffs and efficient system of 
bill collection); 
continue efforts to implement energy efficiency policies 
and programmes in all sectors of the Ukrainian 
economy; 
• promote a global approach to the restructuring of the 
coal sector, taking into account the social dimension in 
Ukraine, especially in the Donbass region; 
• secure transit arrangements for oil and gas, which is 
important both in meeting European Union energy 
import needs and in providing a source of revenue to 
Ukraine: support to the participation of Ukraine to NIS 
working groups on rehabilitation, modernization and 
rationalization of oil and gas pipelines; 
encourage the development of legislative and financial 
frameworks within which industrial co-operation and 
joint ventures in the energy field can be established. 
• ratification of the Energy Charter Treaty to achieve 
these objectives. Timetable 
1996-1999 
36 
Measures implemented 
6. b) nuclear safety 
The EC plays an essential role in the 
implementation of the EU/G7 Plan formulated 
in Naples in 1994 for the restructuring of the 
nuclear sector and particularly the closure of 
Chernobyl. 
As a member of G7's Working Group for 
Nuclear Safety, the Community participated in 
the elaboration of the action plan and the 
negotiations. 
The Community is financially committed to 
assist Ukraine in the implementation of the 
Plan. 
The Community Vas, financed research in the 
following areas: 
* phasing out of reactors 1, 2 and 3 of the 
Chernobyl power station 
* ensuring the safe condition of the damaged 
reactor (sarcophagus) 
* completion oftheRovno 4 and Khmelnitsky 
2 reactors (project management, on-site 
inspection, engineering with a view to obtaining 
ofloan) 
The Community participates in the financing of 
the new installations necessary for the 
phasing out of Chernobyl 
The EBRD is participating in the financing of 
G7 Plan measures for Chernobyl and is 
managing the $ 200 million Nuclear Safety fund 
(NSA) Measures to be implemented 
Community : 
• contribution to the implementation of the agreement 
providing for the closure of Chernobyl in 2000. 
• decision within the G7 of supplementary funds to be 
provided project by project. 
(i) the granting of the Euratom loan to finance the 
completion of the two reactors at Rovno and 
Khmelnitsky if the current study confirms that this is 
the least cost solution as required in the MoU, 
(ii) the Community, together with its G7 partners, will 
have to take important political decisions regarding the 
necessary measures to assure the safety of the shelter 
(Chernobyl unit 4). 
(iii)The provision of Ukrainian funds planned under the 
MoU will also have to be confirmed. 
• Continuation of ongoing programmes in order to 
insure an increased level of protection and safety of 
existing nuclear power stations. Timetable 
Mid-1997 
Mid-1997 
Mid-1997 
1996-1999 
37 
Measures implemented : 
6. c) economic, social and environmental 
regeneration and secondary medical effects of 
Chernobyl 
• The Joint EU-Ukraine-US project to 
develop an action plan to address the 
social impact of closing Chernobyl 
Nuclear Power Plant (CNPP) commenced 
in October 1995, in response to the request 
from Ukraine to include this topical issue in 
the G7-Ukraine MoU. A number of project 
activities have been initiated at a local level, 
i.e. in the Slavutich region and the CNPP. 
They have resulted in a cooperative working 
environment with the key local actors who 
will be most affected by the closure. 
• Clean-up and secondary medical effects of 
the Chernobyl accident were already 
tackled through the Tacis Nuclear safety 
programme from 1991 to 1995, concerning 
in particular studies on the use of 
contaminated soil, radioactive waste 
treatment, development of thyroid cancer 
and its treatments, abstraction of ground 
water for domestic potable supply, use of 
contaminated forestry waste. Measures to be implemented : 
the EC will further contribute to the establishment of 
a programme aimed at alleviating the major social 
consequences of closing CNPP and an appropriate 
structure to administer the initiatives contained in the 
"closure package" through ways of training schemes, 
surveys (on population, labour mobility, compensation 
mechanisms), information campaigns to inform 
population on the ways it will be affected by the 
closure. Timetable 
1996/1997 
There shall be a continuation of past activities 
through the Tacis programme at a regional level, 
involving in particular the main contaminated 
populations and areas of Ukraine, Belarus and Russia, 
with the objective to try and define an overall long-
term strategy to tackle these issues. 1997 
38 
Annex I : THE TACIS PROGRAMME FOR 1996-99 IN THE CONTEXT OF THE 
NEW TACIS REGULATION 
The new Tacis Regulation, adopted in June 1996, does not alter in any respect the general 
approach of the previous regulation, i.e. it still focuses on the transfer of know-how in key 
sectors of reform. There are however some important innovative elements that allow the 
Tacis programme to have a broader set of instruments to assist the New Independent States 
in their reform process towards an open market economy with democratic institutions. 
These elements are particularly relevant for a country like Ukraine and they are mainly the 
following: 
• assistance may cover costs related to small-scale infrastructure projects in the context 
of border-crossing facilities; 
• the programme shall support the establishment of joint ventures through the funding of 
equity investment in small and medium-sized companies; 
• due regard shall be taken of the promotion of equal opportunities for women in 
recipient countries and of environmental considerations when designing and 
implementing programmes; 
• particular attention will be paid to border-crossing facilities on borders between the 
New Independent States and the Union, and the New Independent States and central 
Europe, as well as to measures on the Finnish-Russian border; 
Moreover, the Regulation encourages once again coordination and cooperation with the 
international financial institutions along these lines. 
The Tacis Indicative Programme for Ukraine for 1996-1999 has been prepared, negotiated, 
approved and signed on September 11, 1996. It will concentrate on three priority areas: 
institutional reform and development, support for economic reforms and private sector 
development, energy and environment. Within the first priority, the measures foreseen will 
aim at implementing the PCA provisions and adapting the institutional framework 
conducive to a democratic and market based society, forming the administration and 
developing the civil society. Within the second priority, three objectives will be pursued: 
the transfer of existing economic activities from the public sector to the private sector, the 
restructuring and development of privatized companies, the start-up and development of 
new economic activities by the private sector. Under the third priority area, assistance shall 
concentrate on the support of an overall sectoral reform policy while reducing the energy 
dependence of Ukraine, and envisage activities in the field of environment at horizontal as 
well as vertical level, within the scope of the Regulation, starting from projects aimed at 
increasing public awareness in this area. 
The Tacis Programme for 1996-1999 for projects benefiting Ukraine has duly taken into 
account these innovative elements of the new Tacis regulation. Indeed, environment issues 
will be considered in the development of projects at national and regional level; the 
programme JOP will, hopefully successfully, be developed in Ukraine for developing joint 
ventures based on specific local needs; cross-border cooperation and measures promoted at 
decentralized level by local and regional actors of Ukraine will be supported in the regional 
programmes for common environment projects as well as management of border posts and 
the development of the TENs all over Europe. In this latter context, extensive use could be 
envisaged of small-scale infrastructure projects. 
39 
The Commission shall therefore make technical assistance and small-scale infrastructure 
facilities for border crossings available to Ukraine for 1996-1999. Efficient and optimal use 
of these instruments will very much depend on the reform path that Ukraine will have 
followed all along this period. 
40 
Annex H : INTERNATIONAL AID TO UKRAINE 
International aid 1991-1995 : Grants loans Total 
European Union (mecu) : 871 1436 2744 
of which : 
Community: 340* 815 1155 
*(this compounds with the share of Ukraine in Tacis intestates (60 mecu total) and 
humanitarian aid ECHO (about 4 mecu). 
Member States : 556 1033 1589 
USA: 558 494 1052 
($ in mecu) 
1. Aid from the Union : the EC has implemented a series of instruments to assist Ukraine 
in its transition to a market economy and a democratic society. The technical and financial 
assistance may be calculated, including all instruments, at ECU 2.8 billions, of which 1215 
comes under the Community: Tacis: ECU 400 million (grants); loans for the balance of 
payments: up to ECU 285 million for 1995-96, the rest coming from the Member States 
(ECU 1589 million of which ECU 556 million are grants and ECU 1033 million are loans). 
Some Member States are very involved in Ukraine on a bilateral basis and all of them are 
through their contributions to international institutions such as the IMF, the World Bank 
and the EBRD. 
a) technical assistance: the Tacis programme represents ECU 400 million over 1992-95 
of which 105 million was for nuclear safety and ECU 62.5 million constituted the EUs 
contribution to the G7 Plan for Chernobyl. About ECU 538 million are planned for 
1996-99 with the following priorities: support for the legislative and regulatory institutions 
and the retraining of staff, enterprise reform and the development of the private sector and 
the reform of the energy sector and the environment. 
The total Tacis undertakings which will benefit Ukraine under the 1996 budget are 
estimated at about ECU 108 million in the form of grants. The national allocation 
(ECU 38.5 million) is already committed, as is the 1996 Tacis contribution under the E 
U/G7 Plan for the closure of Chernobyl (ECU 37.5 million). To this is added the measures 
provided as topic programmes, such as the Democracy, Nuclear Safety, Inter-state ... 
programmes, estimated at ECU 32 million. 
b) aid in the restructuring of the energy sector has constituted a priority of Community 
assistance since the beginning. This position is enshrined in the approach of G7, which has 
established a link between the measures for the closure of Chernobyl and the long-term 
reform of the energy sector in Ukraine. The Community's aid has been concentrated on the 
reorganization of the energy sector, the improvement of the efficiency of the production 
process in the oil, gas and coal sectors, and also in energy savings, for a total of ECU 55 
million. 
41 
For nuclear energy, the EC participated in the G7 Plan decided on in Naples in 1994. 
This provided overall measures for the restructuring of the nuclear sector and, in particular, 
the closure of Chernobyl, in the framework of the MoU signed on 20.12.95 with Ukraine. 
The financing will comprise grants, loans and local funding. The European Community has 
committed itself to put ECU 500 million in this action over three years (100 million from 
Tacis, 400 million of Euratom loans). The actual contribution of the EC has already been 
determined: 1994; ECU 25 million: 1995; ECU 37.5 million: 1996; ECU 37.5 million, of 
Tacis credits. 
c) macro-financial assistance: the EC paid Ukraine in 1995 a first loan to the balance of 
payments of ECU 85 million. The Commission is currently implementing the decision of 
the Council of October 1995 to grant a second loan up to a maximum of ECU 200 million. 
This aid is linked to the registering of progress on the nuclear question and to the 
furtherance of economic reforms. It is granted under particularly favourable financial 
conditions and is subject to a condition of the sharing in the settlement of the aid between 
the international donors. 
d) humanitarian aid - ECHO has financed humanitarian measures in Ukraine of a total 
amount of 1994; ECU 3.3 million: 1995; ECU 0.5 million: 1996; ECU 0.8 million. These 
measures, intended to deal with the consequences of the Chernobyl nuclear accident, have 
mainly consisted of the sending of equipment and medicines for detecting and monitoring of 
cancer. Ukraine has also benefited from programmes covering several countries (Russia, 
Ukraine, Belarus), for an amount of ECU 0.9 million in 1994, ECU 1.4 million in 1995 and 
ECU 0.5 million in 1996. 
2. Aid from the USA: $1405 million between 1991 and 1995 mainly to the support of 
democracy, the restructuring of the economy, the private sector, energy and financing 
linked to nuclear non-proliferation ($403 million between 1992 and 96). To this is added 
$400 million of commercial credit between 1992 and 96. Aid of $225 million is planned for 
1997. 
3. Other sources of aid (international aid) 
- aid from the World Bank and the IMF: $3.500 million of loans since 1994 of which 
$2 billions were in 1996; planned for 1997: a balance of payment loan of $550 million 
and loans of $200 million linked to projects; discussions in progress with the IMF for a 
loan of $3.1 billions over 3 years, and also a stabilization fund of $1.5 billions linked to 
the introduction of a new currency. 
- aid from the EBRD: ECU 150 million was committed to Ukraine in 1995 and this 
should amount to ECU 200 million in 1996, mainly in the private sector. The EBRD 
participates in the financing of the measures of the G7 Plan for Chernobyl and also 
through the Nuclear Safety Fund of $200 million (NSA) administered by the bank. 
- loans linked to the reform of the energy sector and to nuclear safety, approved or 
under negotiation for 1996-97: World Bank, $1,409 million; EBRD, ECU 975 million, 
(pm : Euratom, ECU 400 million). 
- loans linked to disarmament: $234 million promised in November 1994 by several 
European countries (conversion of defence industry, training of personnel, etc), $350 
42 
million committed by the USA and $1 billion promised by the USA and Russia in the 
form of compensation (mainly nuclear fuel). 
43 
Annex HI : THE ECONOMIC SITUATION OF UKRAINE 
1. The economic situation 
a) the Ukrainian economy is faced by considerable challenges: transformation from a 
planned economy heavily centered on heavy and military industries, controlled from abroad, 
to a market economy; an energy price crisis greater than that facing the West in the 1970s; 
a reshuffle of its trade markets. These challenges were aggravated by the absence of 
reforms between 1991 and 1994, a period of marked recession (economic activity had 
fallen in 1994 to half the level of 1990), hyper-inflation (over 10,000% in 1993), and 
budgetary deficit. 
The success of the economic transformation is a necessary condition for the maintenance of 
independence. It also constitutes the main preoccupation of the population. 
b) the policy of macro-economic stabilization implemented since October 1994 has given 
impressive results : reduction of inflation to 0.1% per month in July 1996, reduction of the 
budget deficit to 4.2% in the first half of 1996, relative currency stabilization. However, a 
serious crisis of budgetary liquidity has developed (1.5 billion of unpaid public salaries in 
August 1996). 
c) micro-economic liberalization has been taken on (liberalization of internal and external 
trade and prices, and the reduction of state intervention). Structural reforms (privatization 
and conversion of enterprises, reform of the state administration and of the tax system) 
have begun. 
The EU recognized in May 96 that Ukraine was an economy in transition. In fact, with 
respect to the liberalization of the economy and of the share of the private sector, Ukraine 
is in the last group among countries in transition, according to World Bank figures ("From 
Plan to Market"). In practice the transformation of the economy is colliding against 
strong political resistance, a conservative parliament, vested interests of the former 
nomenklatura in the economy and the administration, the low level of the standard of living 
of the population and of capital available for investment. 
d) the economic situation is uncertain: GDP in real terms is 42% of the 1989 level, 
production is still falling (currently less than 35% of the 1990 level in industry and 65% for 
agriculture). However this does not record the dynamism of the underground economy, 
which is estimated to be 50% of GNP and of services. 
e) investment is insufficient : (foreign investment: about $200 million in flux for 1995, 
$950 million in stocks since 1989, against $3.9 billions in Russia), the liberalization of the 
economy and privatization being incomplete, and the treatment of foreign enterprises being 
perceived as uncertain (instability of the legal framework, arbitrary behaviour by the 
administration, absence of reliable commercial courts). This situation has up till now 
deprived the Ukrainian economy of an essential backing of economic dynamism. 
O the population is affected, which substantially reduces the room for maneuver of 
economic policy. Real wages are 35% of their 1990 level (the average wage is $78 per 
month, below the estimated minimum requirement of $100). A "glimmer of social security" 
44 
was introduced in March 1995 and pensions doubled in April 1996 in order to partly 
compensate for the introduction of market mechanisms for the most destitute. 
The regular payment of wages constitutes a prerequisite to restoring confidence in the 
government's economic policy. 
2. The state of implementation of reforms : 
- macro-economic stabilization: reduction of budget deficit (this fell from 23% of the 
GNP in 1992 to 4.2% in the first half of 1996. Public expenditures were reduced from 
58% of GNP in 1992 to 40% in 1996); establishment of a restrictive monetary policy 
(limitation on money creation, freezing of bank credits to the private sector); tax 
reform (introduction of VAT law on the taxation of companies). 
- price liberalization, particularly of publicly set prices, rents and charges (80% of the 
actual price is invoiced), of energy and of basic living goods, is complete for 
enterprises, still partial for individuals. Since January 1996 the government has stopped 
covering payment defaults by consumers. However, since these, in particular the 
enterprises, are still not paying their energy bills, the suppliers are accumulating a large 
debt. 
- the liberalization of foreign trade and exchange is well advanced, in spite of the 
persistence of administrative obstacles. Negotiations for membership of Ukraine to the 
WTO are progressing. The relative stability of the currency has enabled a new national 
currency, the Hryvnia, to be introduced in September. 
- the privatization of enterprises has been delayed due to the complexity of the 
procedure adopted and the political opposition of the parliament. The latter has, for the 
fourth time (in July 1996), adopted a draft law which is unfavourable to the 
privatization of the food-product industry. 
"Small privatization" is well advanced: 33,000 small enterprises had been privatized by 1 
July 1996 (out of 45,000) and 2,100 medium and large enterprises (out of 8,000). There 
has only been limited privatization of land (33,000 private farms, representing 1.8% of the 
agricultural land of the country). 
Access to foreign investors is restricted: although in principle it is guaranteed by law 
(treatment as for nationals), in reality it is subject to numerous restrictions (priority given to 
employees, some shares are reserved for the state, reduced periods of publication, land is 
excluded). There is no secondary market and the law on bankruptcies is defective. One 
thousand enterprises are excluded from the privatization process. 
Beyond privatization, the operating conditions of the private sector remain very 
difficult : high, complex and discriminatory taxation, restrictive attitude by the 
administration, Mafia payments. 
3. The government has announced a huge reform programme for 1997 centering on 
micro-economic liberalization, the return to growth and the integration of the underground 
economy into the legal one. However, this programme still has to be accepted by 
Parliament. The measures under way or envisaged include: administrative reforms -
simplification of the government organizational structure, and development of the rule of 
45 
law in economic matters (establishment of a bankruptcy law and of a reliable system of 
commercial courts); tax reform of the taxable base, the rates and the methods of 
collection, so as to improve the budget balance and reduce the share of the underground 
economy; restructuring of the state budget, particularly with a reduction of grants to the 
economy and a better allocation of resources in favour of health and education costs, 
reform of the pension system (particularly, the creation of autonomous pension funds, 
independent of the state budget); reform of the financial system (consolidation of the 
independence of the central bank, introduction of a reliable mechanism of regulation and 
supervision of banking activities), development of a stock (and bond) exchange to mobilize 
domestic savings and foreign investment; further privatization (large enterprises, land, 
commercial assets), closing of loss-making mines; further trade liberalization, 
improvement of access to the Ukrainian market for foreign products and investments, 
implementation of the legislative and regulatory conditions for joining the WTO. 
4. Various figures on the Ukrainian economy: 
GDP : $44.3 billions in 1996. The GDP in real terms has fallen since 1989 (-40% between 
1989 and 1993, -24.3% in 1994, -12% in 1995, -8% predicted for 1996). The black 
economy is estimated at 50% of GDP. The IMF predicts a recovery in 1997 (+3%). 
Production : consistently falling since 1990. Real industrial production is at 35% of the 
1990 level, agricultural production at 65%. 
Inflation : clearly improved, 2% monthly in September 1996. The rate of annual 
inflation has decreased from 375% in 1995 (the first year without hyper-inflation) to 45% 
in 1996. 
Foreign trade : CIS 61%; EC 14.9%; USA 5.7%. See annex IV. 
Balance of payments : deficit of $5.7 billions in 1995, due to energy imports; deficit of 
$3.2 billions predicted for 1996 and $3.6 billions in 1997, before international financing. 
Foreign debt linked to energy: $4 billion with Russia (rescheduling agreement concluded in 
February 1995), $500 million with various creditors under Year 1995. 
Employment : low official unemployment rate (1%). A recent study by the ILO calculated 
hidden unemployment at 34% (unpaid holidays, reduced working hours). Survival is 
widely obtained by a second job. Employment structure: agriculture, 20%. 
46 
Annex IV : TRADE & INVESTMENT ISSUES BETWEEN THE EC AND UKRAINE 
1. Distribution of Ukrainian foreign trade : CIS 61 %; EC 15%; USA : 5,7% Ukraine 
has significantly reoriented its trade relations since 1991. It increased its exports towards 
Western countries and now reaches a positive balance with the West in general, but not 
with the EC. However it remains very dependent on CIS countries, with a substantial 
deficit (- $2.8 billions in 1995, $ 4.5 billion in 96), due mainly to energy imports. 
The EC is already Ukraine's main trading partner outside the CIS, with a share of 
15% of Ukrainian foreign trade. Although the EU's increasingly positive balance, is a 
problem for Ukraine, EC imports from Ukraine are also increasing (+35% in 1994, 
+15% in 1995). They amount to four times those of the USA. Trade with the EC comprises 
mainly machine-tools, electrical machinery (EC exports), steel and metal, mineral, chemical 
and textile products (EC imports). 
Trade data should be taken with caution as they only reflect part of the reality. There is a 
substantial amount of unregistered trade and barter trade (about 30%). 
Latest EC-Ukraine trade data (in million ecu, 12 Member states) : 
1993 1994 1995 
EC Imports: 934.6 1253.6 1452.6 (+15,6%) 
EC Exports: 1474.8 1667.7 2061.8 (+23,6%) 
EC Trade Balance: +540 +414 +609 (+47%) 
15 Member States (1995) : imports : 1518.7 million ecu; exports : 2214 million ecu; 
balance : +695.2million ecu; 
47 
2. Regulatory framework : Ukrainian trade was in principle liberalized (no more state 
trading, withdrawal of tariff measures and quotas on exports, withdrawal of quotas on 
imports). However there are strong pressures by various ministries for a strategy 
based on support for exports and substitution for imports, in order to protect 
domestic products. Therefore administrative intervention is generally intent on 
preventing free trade. 
Concrete obstacles remain such as indicative prices for exports, import licensing 
regimes for some products, which entail cumbersome and often arbitrary administrative 
control. Export tariffs were even recently reintroduced on some products namely ferrous 
scraps, non ferrous metals; following an EC request, the Ukrainian authorities promised to 
them rapidly. Such export restrictions create an unfair competitive advantage for domestic 
manufacturers as they get access to subsidized raw materials, and they may delay the 
process of industrial restructuring. They are against WTO rules and they are against the 
condition of the EU macro-financial loan that "no reversal shall be permitted in the 
liberalized trade and price regime". 
The Community's objective is to eliminate these restrictions to trade, and it would 
deem a reversal from liberalization very negative. 
3. Issues at stake in bilateral trade relations : 
- There are recurrent complaints from the Ukrainian authorities that EC trade is not open 
enough. Complaints refer to the EC positive balance, to areas of trade which are subject to 
quantitative limitations like steel, textile, agriculture, as well as to the antidumping policy. 
- The EC is concerned about unsatisfactory market access conditions in Ukraine for EC 
products and services, as European enterprises face numerous market access difficulties 
such as : tariff protection, discriminatory excise taxation regimes, technical barriers like 
non-transparent or discriminatory testing and certification requirements, pure discrimination 
by legislation, like the new law on public procurement which excludes foreign suppliers. 
These issues were discussed in depth and arguments were exchanged at the May Joint 
Committee meeting, and the Commission agreed in September 96 to set up a joint 
working group in order to look for ways an means to improve trade relations. 
4. detailed description of the bilateral trade issues. 
i) market access issues in the EC for Ukrainian products : 
a) the EC positive balance : the increase in EC import figures indicates that Community 
market access is not so restrictive. The existence of a trade surplus is a normal phenomenon 
with economies in transition as the latter still lack products which are competitive in 
western markets. The constantly falling trend of Ukrainian industrial production since 1990 
indicate that this is largely an industrial problem. 
Moreover the EC has made substantial trade concessions (most favoured nation treatment, 
General System of Preferences). 
48 
b) steel products : the current agreement on trade in steel products, signed in January 
1995 (for two years, extended to June 97), has set up an increase in steel quotas of 35% in 
1995 and 15% in 96. Quotas for 1995 have been fully used by Ukraine on flat products, but 
not on long products. The Commission had a first exchange of views on the new agreement 
with the Ukrainian authorities in October 96, in the framework of the ECSC contact group; 
it will start negotiations for a new ECSC agreement on 28-29 November (see last part 
of the main document). 
It should be noted that the Interim Agreement already entails an obligation to remove state 
aid which are detrimental to mutual trade. 
c) textile products : the new agreement concluded with Ukraine in November 199.5 
maintains existing quantitative limitations, except for five categories of textile imports 
where they are suppressed. The quota level was raised by 20%. This seems to be a 
satisfactory deal for Ukraine. 
Textile trade with Ukraine has increased strongly in 1994, leaving a small surplus for the 
EC : EC imports = 117.8 million ecu, exports = 124 million ecu; surplus = 6.2 million ecu, 
reduced from 15.5 million ecu in 1993. 
d) GSP : criticisms of GSP mainly stems from a lack of understanding of the Ukrainian 
authorities regarding the functioning and opportunities of the GSP system. Therefore the 
Commission has proposed at the Joint Committee to organize an information seminar. As 
regards the substance, a proposal for a revision of the preference levels was addressed to 
the Council, it foresees a 50% reduction of preferences for products of chapter 12, with the 
exclusion of these products in 1999. No change is expected as regards industrial products. 
e) antidumping policy : antidumping is a recurrent political issue for the Ukrainian 
authorities who keep stressing the "adverse" effect of the ad. policy in relation with EU 
trade opening. The position of the Commission was spelt out during the May 1996 Joint 
Committee: Anti-dumping policy is an integral part of the rules of multilateral trade and as 
long as Ukraine is not recognised as a market economy the rules applicable remain those of 
reconstitution of real value, corresponding to state-run economies. The Commission 
reminded the Ukrainian authorities in May 1996 of the possibility of individual treatment 
for producers able to prove that they were producing without state intervention. 
ii) market access issues in Ukraine for EC products and services : 
This is a main issue for the EC, as European enterprises face numerous market access 
difficulties. A comprehensive note on barriers to trade in Ukraine was handed over to the 
Ukrainian authorities during the May Joint Committee meeting. 
This problem of market access for EC products is interrelated with the issue of access 
for foreign investments. They have similar causes, namely misconceptions regarding 
the rationale of a free economy, reluctance to allow competition, and contradictory 
regulatory decisions. The consequences are also interrelated : they act as 
disincentives to potential foreign investors and the lack of competition and foreign 
investment delays the take-off of the Ukrainian economy. 
The Commission considers that the removal of these obstacles is in the interest of the 
Ukrainian economy itself, as they hamper its integration into the world economy. Moreover 
they are contrary to the PCA and the WTO rules and Ukraine will have an obligation to 
remove them. The Community offered support for this through its technical assistance, as it 
49 
is already the case for standards with Tacis assistance to Derzstandardt, as well as for the 
WTO accession process. 
Main obstacles : 
§ tariff protection : a number of tariffs have been increased in recent months, whereas a 
standstill would be appropriate during WTO access negotiations, and information of the EC 
would be desirable; 
§ discriminatory excise taxation regimes. Many excise rates are discriminatory to the 
detriment of imported goods. This is against national treatment for goods (Interim 
Agreement). 
§ technical barriers, like non-transparent or discriminatory testing and certification 
requirements. Separate certification of car spare parts for already certified types of motor 
vehicles is an example. This is uncommon and useless, it is also against national treatment 
for goods (I. A.). 
§ discrimination by legislation, like the new law on public procurement which excludes 
foreign suppliers. This is against national treatment for companies' operation (art.30 of 
PCA when ratified) as well as against WTO rules. The Ukrainian delegation at the Joint 
Committee indicated that the new law on public procurement is being revised so as to 
include foreign suppliers. 
Another case is air services taxation. Ukraine imposes a discriminatory tax when a foreign 
carrier operates a route to or from Ukraine, which is not operated by the Ukrainian carrier. 
This tax is against commonly accepted international air policy principles and is imposed to 
the detriment of the development of air services with Ukraine; 
The Ukrainian Delegation at the Joint Committee referred to the "Plan of priority measures 
regarding the accession of Ukraine to the WTO", approved by the Cabinet of Ministers on 
18 March 1996, which foresees in particular to bring the Ukrainian legislation in conformity 
with WTO rules» regarding import licensing, public procurement and intellectual property: 
but no deadline was given for implementation. 
Hi) WTO : prospects for Ukraine's application : 
The accession process of Ukraine to the WTO is going on, with the support of Tacis 
technical assistance. Problems raised by WTO members last year included the country's 
heavy dependence on barter (currently 30% of Ukrainian foreign trade), especially for 
agriculture, the rôle of state monopolies, export restrictions and high import barriers. 
A WTO working party was set up in December 93 to define Ukraine's terms of entry, and 
has met for the 3 rd. time in June 1996 to examine Ukraine's trade policies. 
This last meeting discussed the customs tariffs structure of Ukraine, as well as market 
access in Ukraine for goods and services. On the former issue, Ukraine made an offer with 
a fairly high tariff levels, liable to decrease to 14% on a weighted average basis until 2005. 
5. Investment review : evolution of investment flows and current legal framework for 
investment in Ukraine : 
50 
This is a main issue for the EC, and it should also be for Ukraine, as foreign 
investment is essential to foster restructuring of the economy. (Investment promotion 
and protection is mentioned in art. 54 of the PCA). The Commission is concerned that 
foreign investment remains low in Ukraine, (an inflow of direct foreign investment last year 
in the order of between $ 150 - 250 million), as privatisation has done little progress and 
the legislative and tax framework is still perceived as unpredictable. This brings the 
cumulative FDI since 1989 to between $950 million), of which about 80 % are in the form 
of equipment, and quite a substantial part had been undertaken by Ukraine - G7 countries 
joint-ventures. 
The new law concerning the "Regime for Foreign Investments" approved by the 
Werchowna Rada in March 1996, apparently does not give the adequate framework and 
guarantees liable to attract foreign investment. Too many exceptions written into this law 
raise doubts about the reliability and trustworthiness of its rules concerning national 
treatment to FDI, tax and customs duties privileges, long-term protection of FDI and 
repatriation. 
Some improvements can be expected from the proposed establishment of the "National 
Agency for Foreign Investment promotion" and political pressure from outside like, for 
instance, by Western business groups, including the Kiev based European Business Club. 
Without a radical change of mind translated into new transparent legislation, the insider and 
monopolist mentality will continue to discourage foreign investors and so delay 
considerably the necessary restructuring and modernising of the Ukrainian economy. 
51 
Annex V : NUCLEAR SAFETY IN UKRAINE 
This is a priority for the Community as part of overall reform of the energy sector in 
Ukraine Assistance for improving safety chiefly concerns: functioning VVER-type power 
stations en fonctionnement, via programmes to provide on-site assistance, strengthening 
the safety authority and aid for the Chernobyl site. 
i) The Memorandum of Understanding (MoU) on the closure of the Chernobyl 
Nuclear Power Plant signed on 21 December 1995 is a political agreement between the G7 
and Ukraine in support of the decision of President Kuchma to close the Chernobyl NPP by 
the year 2000. 
- The elements for cooperation laid down in the MOU relate to : power sector 
restructuring, energy investment programme, nuclear safety, social impact plan. The MoU 
includes a list of specific projects which are to be implemented, namely the sarcophagus, 
short term upgrading of Chernobyl unit 3, preparation of decommissioning of units 1-3, new 
generating capacities to replace Chernobyl. 
- The MoU also contains provisions concerning financial resources. The agreed principles 
for possible Western financial assistance necessary to supplement domestic Ukrainian 
resources are : revenue generating projects should be financed through loans, non revenue 
generating projects can be considered for grant financing. The MoU figures for Western 
financial support are : 1809 Million $ as loan financing, 498 Million $ as grant financing. 
These figures reflect loans and grants which were - at the time of the signature of the MoU 
-either firmly committed or likely to become available from the G7 members (including 
Tacis and Euratom), from the World Bank and from the EBRD for areas covered by the 
MoU. These figures do not include any provisions for the sarcophagus. 
- At the Moscow G7 summit on 26 April 1996, the G7 Heads and President Kuchma 
confirmed that the MoU should be implemented in all its terms. They also agreed that 
specific discussions would be held on the sarcophagus once the EC Tacis financed study 
would be finished (before end 96). 
ii) The European Community actively contributes to the implementation of 
the agreement and has a firm intention of respecting the time periods envisaged. 
Preliminary studies financed by the EC at the cost of 100 million ecu (1994 : 25 million ecu; 
1995 : 37.5 million ecu; 1996 : 37.5 million ecu), will enable the projected supplementary 
financing to be determined in the G7, project by project. The contribution by Ukraine 
specified in the MoU has also to be finalised. 
Two measures are of particular importance for the Community over the period up to 
mid 1997, in order to support the decision of Ukraine to close the Chernobyl plant by 
the year 2000.. These measures relate to the financing of the completion of the two 
reactors under construction, the implementation of the necessary measures to assure the 
safety of the sarcophagus. 
- For the completion of the two reactors 70% of the investment (about 1000 Million 
USD) should be paid by loans from Euratom (up to 400 Mecu) and from the EBRD. The 
preparation of these financing decisions is under way. Safety, economic, environmental and 
financial due diligence has to be demonstrated. The EBRD and the Commission have 
agreed to entrust a panel of independent experts with a new least cost investment 
analysis. The financial due diligence will depend on Ukrainian decisions in the nuclear 
power sector, which should ensure that the borrower will be able to reimburse the loans. 
52 
The current planning is to submit the loan decisions to the Commission and to the EBRD 
board by mid 1997. 
- As far as the sarcophagus is concerned, a Tacis study by EC and Ukrainian experts with 
participation of US and Japanese experts will provide proposals for short and long term 
measures by the end of 1997. On the basis of the results of this study, the G7 should 
discuss possible solutions with Ukraine. It is expected that the cost of these measures will 
amount to several hundreds of million ecus over the next 10 years. There is at present no 
identified financing source available. This will however become a subject for 
consideration by the G7 within the next months, in particular in 1997 when the G7 chair 
will be held by the US A. 
53 
FINANCIAL STATEMENT 
This document has no new budgetary implications. 
The proposals relating to Community assistance are covered by line B7.52 : Technical 
Cooperation with the Independent States of the former USSR (the Tacis Programme). The 
amount of credits in the line for Ukraine for the year 1996 is ECU 38.5 million and the 
1996 Tacis contribution to the EU/G7 Plan for the closure of Chernobyl is ECU 37.5 
million. To this has to be added the measures specified under the heading of thematic 
programmes such as the Democracy, Nuclear Safety and Inter-state Programmes, estimated 
at ECU 32 million. 
The financing of the Chernobyl dossier is yet to be decided within the G7 in 1997. 
The final macro-financial assistance for 1997 will be the subject of a Council decision (15% 
of the amount to be established must be guaranteed from the budget). 

ISSN 0254-1475 
COM(96) 593 final 
DOCUMENTS 
EN 11 
Catalogue number : CB-CO-96-608-EN-C 
ISBN 92-78-11837-0 
Office for Official Publications of the European Communities 
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