EN Official Journal of the European Union C 231/58

Opinion of the Committee of the Regions on the Communication from the Commission — European Neighbourhood Policy — Strategy paper

(2005/C 231/08)

THE COMMITTEE OF THE REGIONS,

Having regard to the Communication from the Commission to the Council and the European Parliament — European Neighbourhood Policy — Strategy Paper (COM (2004) 373 final);

Having regard to the Commission's decision on 13 May 2004 to consult it in accordance with the provisions of the first paragraph of Article 265 of the Treaty establishing the European Community;

Having regard to the decision by its Bureau on 15 June 2004 to instruct the Commission for External Relations to draw up an outlook opinion on the matter;

Having regard to the Communication from the Commission to the Council on the Commission proposals for action plans under the European neighbourhood policy (ENP) (COM(2004) 795 final);

Having regard to the proposal for a Council decision on the position to be adopted by the European Community and its Member States within the Association Council established by the Euro-Mediterranean Agreement establishing an association between the European Communities and their Member States, of the one part, and the Hashemite Kingdom of Jordan, of the other part, with regard to the adoption of a Recommendation on the implementation of the EU-Jordan Action Plan (COM(2004) 796 final);

Having regard to the proposal for a Council decision on the position to be adopted by the European Community within the Joint Committee established by the Interim Association Agreement on trade and cooperation with regard to the adoption of a Recommendation on the implementation of the EU-Palestinian Authority Action Plan (COM(2004) 789 final);

Having regard to the Proposal for a Council Decision on the position to be adopted by the European Community and its Member States within the Association Council established by the Euro-Mediterranean Agreement establishing an association between the European Communities and their Member States, of the one part, and the Republic of Tunisia, of the other part, with regard to the adoption of a Recommendation on the implementation of the EU-Tunisia Action Plan (COM(2004) 792 final);

Having regard to the proposal for a Council decision on the position to be adopted by the Communities and its Member States within the Cooperation Council established by the Partnership and Cooperation Agreement establishing a partnership between the European Communities and its Member States, of the one part, and Ukraine, of the other part, with regard to the adoption of a Recommendation on the implementation of the EU-Ukraine Action Plan (COM(2004) 791 final);

Having regard to the proposal for a Council decision on the position to be adopted by the Communities and their Member States within the Association Council established by the Euro-Mediterranean Agreement establishing an association between the European Communities and their Member States, of the one part, and the State of Israel, of the other part, with regard to the adoption of a Recommendation on the implementation of the EU-Israel Action Plan (COM(2004) 790 final);

Having regard to the proposal for a Council decision on the position to be adopted by the European Communities and their Member States within the Cooperation Council established by the Partnership and Cooperation Agreement establishing a partnership between the European Communities and their Member States, of the one part, and the Republic of Moldova, of the other part, with regard to the adoption of a Recommendation on the implementation of the EU-Moldova Action Plan (COM(2004) 787 final);

Having regard to the Communication from the Commission to the Council and the European Parliament: Building our Common Future: Policy Challenges and Budgetary Means of the Enlarged Union 2007-2013 COM(2004) 101 final;

Having regard to the Proposal for a Regulation of the European Parliament and of the Council laying down general provisions establishing a European Neighbourhood and Partnership Instrument COM(2004) 628 final;

Having regard to the Communication from the Commission: Paving the way for a New Neighbourhood Instrument COM(2003) 393 final;

Having regard to the Report of the European Parliament on Wider Europe — Neighbourhood: A New Framework for Relations with our Eastern and Southern Neighbours (COM(2003) 104 — 2003/2018(INI));

Having regard to its opinion on the Communication from the Commission to the Council and the European Parliament: Wider Europe — neighbourhood: a new framework for relations with our eastern and southern neighbours (CdR 175/2003 fin) (1);

Having regard to its outlook opinion on the Euro-Mediterranean Partnership and local and regional authorities: the need for coordination and a specific instrument for decentralised cooperation (CdR 327/2003 fin (2));

Having regard to its opinion on Local and regional government in Russia and the development of cooperation between the EU and Russia (CdR 105/2004);

Having regard to its opinion on Northern Dimension — Second Action Plan 2004-2006 (CdR 102/2003 fin (3));

Having regard to its draft opinion on the Commission to the Council and the European Parliament: Building our Common Future: Policy Challenges and Budgetary Means of the Enlarged Union 2007-2013 (CdR 162/2004 rev. 3) (rapporteur: Cllr Sir Albert Bore, Birmingham City Council (UK, PES));

Having regard to its draft opinion (CdR 336/2004 rev. 1) adopted on 7 February 2005 by the Commission for External Relations (rapporteur: Lord Hanningfield, Essex County Council (UK/EPP)).

1) Whereas, in the light of the European Neighbourhood Policy, it should now look to extend its external relations activities, within the parameters of its resources and institutional mission, beyond the current accession states to include, but not exclusively, those countries detailed in the ENP;

2) Whereas, its priority for external relations must remain with the local and regional authorities of the existing applicant countries;

3) Whereas, it should also give high priority under the ENP to dialogue and cooperation with all the states on the EU's northern, eastern and southern borders;

adopted the following opinion at its 59th plenary session, held on 13 and 14 April 2005 (session of 14 April).

1. The Committee of the Region's views

1.1 General remarks on European Neighbourhood policy

THE COMMITTEE OF THE REGIONS

1.1.1 welcomes this important and necessary document by the European Commission, providing as it does a real and genuine opportunity to define and improve relations between the European Union and its neighbouring countries;

1.1.2 acknowledges that with the recent enlargement of the European Union and subsequent changes to its external borders, this policy is a timely and welcome step forward designed to share the benefits of the EU's enlargement with neighbouring countries in strengthening stability, security and well-being for all concerned;

1.1.3 agrees that the European Neighbourhood Policy offers a means to reinforce relations between the European union and neighbouring countries and to prevent the emergence of new dividing lines between them;

1.1.4 stresses that the European Neighbourhood Policy whilst offering an improved relationship between the EU and its neighbouring countries is distinct from the process of enlargement itself and should be viewed in such a context;

1.1.5 stresses the importance that local and regional government has to play in this process and is concerned at the absence of any substantive mention and defined role for local and regional government within the Policy;

1.1.6 agrees that the policy will encourage neighbourhood countries to participate in various EU activities, through greater political, security, economic and cultural cooperation;

1.1.7 considers that the European Neighbourhood Policy seeks to support efforts to achieve greater respect for improved human rights, civil society and develop good governance in these countries;

1.1.8 welcomes, in this connection, the recent political developments in Ukraine and in Georgia. The European Neighbourhood Policy must actively support this country's progress towards greater democracy and a market economy;

1.1.9 agrees that the European Neighbourhood Policy seeks to improve trade relations and economic development between the EU and neighbourhood countries;

1.1.10 acknowledges that the European Neighbourhood Policy is important to promoting the closer cooperation between countries included in the ENP and the EU in combating terrorism, illegal immigration and cross-border crime such as drugs and human trafficking;

1.1.11 supports efforts, in ENP countries with different ethnic minorities, to find innovative solutions to promote co-existence and respect for universally recognised fundamental principles.

1.2 Local and regional dimension of the European Neighbourhood policy:

THE COMMITTEE OF THE REGIONS

1.2.1 highlights that local and regional authorities in ENP countries should, wherever possible, play a greater role in the process of democratisation and devolution;

1.2.2 underlines that according to one of the Union's main principles — subsidiarity — which allows the most appropriate level of management to be chosen, local and regional authorities play a crucial and unique role in this context as they can ensure lasting and properly orientated relations;

1.2.3 notes the effectiveness of the bottom-up approach in encouraging the democratisation process;

1.2.4 adds that in practice local and regional authorities serve as good democratic apprenticeships for citizens, and hence are an important player in ensuring well-functioning democracies;

1.2.5 highlights the importance of developing and consolidating local government by means of cross-border cooperation and of making greater use of exchanges and shared knowledge with existing Euro-regions as a way of achieving the objectives set out in the Action Plan for each country;

1.2.6 notes the difficulties experienced by the local and regional authorities of those countries identified in the ENP in taking the necessary measures to adapt their administrative structures to European structures;

1.2.7 wishes to share with those countries outlined in the ENP the experienced gained by its members as a result of their contacts with local and regional authorities in the candidate countries during the enlargement process;

1.2.8 believes that local and regional authorities are the most appropriate level for decentralised cooperation with partner countries;

1.2.9 recalls the areas where the expertise of local and regional government has most to offer these countries: a. regional and spatial planning; b. urban planning; c. agriculture, fisheries and rural development; d. environment, resource management and civil protection; e. the sub-regional dimension of transport and energy; f. policies promoting SMEs; g. policies promoting employment; h. cultural and sporting initiatives; i. policies for safeguarding and fostering heritage; j. social proximity policies; k. education and training; l. health and social care; m. managing immigration flows, reception and integration policy; n. housing; o. security and safety measures; p. public procurement;

1.2.10 recalls that there is scope for action by local and regional authorities that complements and goes beyond the traditional limits of cooperation at the level of central governments. Indeed, it is at this level that the ENP as proposed by the Commission can be really effective;

1.2.11 points out that the decentralised cooperation practices developed in recent years have highlighted the responsibility that local authorities bear in their role as a catalyst for new cooperation processes.

1.3 Geographic coverage

THE COMMITTEE OF THE REGIONS

1.3.1 notes that those countries included in the ENP are diverse in their economic, social and political development and furthermore do not start from the same point in regard to their relations with the EU;

1.3.2 believes that strong regional and local institutions elected by and accountable to the people are necessary for truly democratic societies and anticipates the entry into force in 2006 of federal legislation on the remit of Russian regional and local authorities to be a step forward for potential cooperation between devolved authorities in the EU and Russia, notably by clarifying competencies with regard to cross-border cooperation;

1.3.3 is concerned that no direct mention is made within the ENP as to the ongoing problems in regard to Kaliningrad although accepts that the issue is adequately addressed in other documents and work of the Commission;

1.3.4 welcomes the decision to include the Southern Caucasus — Armenia, Azerbaijan and Georgia — in the European Neighbourhood Policy;

1.3.5 further welcomes the commitment of the EU to ‘support credible, concrete and sustained reform efforts, in particular in the above mentioned priority areas, by additional means of assistance’ (4).

1.4 Action Plans

THE COMMITTEE OF THE REGIONS

1.4.1 supports the idea of an all encompassing Action Plan jointly agreed by partner countries and the EU as the most effective way to achieve the objectives of the European Neighbourhood Policy;

1.4.2 agrees that the ambition and pace of development of the EU's relationship with each partner country will be determined by its degree of commitment to common values as well as its will and capacity to implement the priorities agreed in the Action Plan;

1.4.3 emphasises the importance of a strong focus on poverty alleviation and the importance of tackling corruption, described as ‘a significant obstacle to reform in many ENP countries’;

1.4.4 believes that it would have been advantageous for each Action Plan to have contained a specific section on the role of local and regional government in the relevant partner country, detailing clear targets for both the role of local government and the ways by which the partner country intended to devolve powers and strengthen local and regional government. This desire should be commuted to the Commission with a view that such a specific section should be incorporated in the next tranche of Action Plans;

1.4.5 believes that its members have an important role in analysing and debating the funding made available to each partner country especially in light of the statement made in the ENP strategy paper, ‘The Commission has proposed that existing funds or their successors be increased significantly under the new financial perspectives, in keeping with the priority given by the EU to the ENP.’ The new simplified funding mechanism intended for adoption in 2007 additionally makes such analysis and debate a priority.

1.5 European Neighbourhood Instrument

THE COMMITTEE OF THE REGIONS

1.5.1 welcomes the proposed new simplified funding system, the European Neighbourhood Instrument;

1.5.2 believes that the Commission as a priority must provide greater information and technical details as to how the Instrument will work in practice, how it will be administered and how it will be scrutinised.

2. The Committee of the Regions' Recommendations

THE COMMITTEE OF THE REGIONS

2.1 believes that the use of its members' experience could be used to develop local and regional democracy, which is indispensable to political stability in the countries identified;

2.2 recommends that in order to overcome the difficulties facing local and regional authorities in those countries identified in the ENP, the CoR develops suitable mechanisms to encourage direct dialogue and information transfers;

2.3 recommends that those countries carrying out the necessary reforms to place themselves on the road to democracy and free and fair elections should receive the full benefit of the ENP;

2.4 recommends that the European Neighbourhood Policy offers the prospect of new contractual agreements with partner countries which could take the form of European Neighbourhood Agreements. The scope of these would be defined in the light of progress in meeting the priorities set out in the Action Plans;

2.5 proposes that the Action Plans will be monitored using existing structures under the various Partnership and Cooperation/Association Agreements, with formal progress reports produced between two and five years after the Action Plans are adopted;

2.6 recommends to the European Commission that, like enlargement before, its members should play a leading role in the evaluation of the progress of the Action Plans focusing primary on the steps to empower and modernise local and regional government;

2.7 recommends that for the next tranche of Action Plans for each neighbourhood country a specific section on the role of local and regional government in each partner country should be included, detailing clear targets for both the role of local government and the ways by which the partner country intends to devolve such powers including a clear and transparent timeframe to achieve such an objective;

2.8 believes that any Action Plan must have joint ownership with the priorities based on clear and credible economic incentives for promoting positive change and thus assist the targeting of technical assistance;

2.9 believes that there is an urgent and fundamental need to improve and modernise local and regional government in those countries identified in the ENP including a dramatic improvement in regard to fair and free elections, democratic values and political freedoms at the local level and recommends that the Commission initiates a specific programme as part of the Action Plan for each neighbourhood country to achieve this objective (see appendix 1);

2.10 recommends that within the proposed new simplified funding system, the European Neighbourhood Instrument, serious thought should be given to a specific financial instrument that is tailor-made for decentralised cooperation and is intended for use by local and regional authorities to help modernise and reform their operations in the neighbourhood countries;

2.11 recommends that the European Commission gives to it and its members the possibility to play a leading and active role in assessing and discussing the new European Neighbourhood Instruments;

2.12 recommends, in order to facilitate this process, that a conference is held in 2006 that would seek to bring together representatives from local and regional government from all states as outlined in the ENP with the possibility of four separate conferences dealing in turn with the Mediterranean Region, the Baltic Sea Region and the countries of Eastern Europe and the Middle East.

Brussels, 14 April 2005 The President of the Committee of the Regions Peter STRAUB

(1) JO C 23 du 27.1.2004, p. 36

(2) OJ C 121 of 30.4.2004 p. 18-25

(3) OJ C 23 of 27.1.2004, p. 27

(4) European Neighbourhood Policy – Strategy Paper, 12.5.2004, p.11