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V it ' COMMISSION OF THE EUROPEAN COMMUNITIES 
COM(94) 320 final 
Brussels, 13.07.1994 
W * '•? *fS# 
COMMUNICATION FRQM THE COMMISSION TO THE CQUNCH 
THE EUROPE AGREEMENTS AND BEYOND: A STRATEGY TO PREPARE THE 
COUNTRIES OF CENTRAL AND EASTERN EUROPE FOR ACCESSION 
Ban B 
THE EUROPE AGREEMENTS AND BEYOND: A STRATEGY TO PREPARE THE 
COUNTRIES OF CENTRAL AND EASTERN EUROPE FOR ACCESSION 
CQIVIfVlUNICATIQN FROM THE COMMISSION TO THE COUNCIL 
1. Introduction 
The European Council meeting in Corfu invited "the Commission to make specific proposals 
as soon as possible for the further implementation of the Europe agreements and the 
decisions taken by the European Council in Copenhagen. The European Council also asks 
the Presidency and the Commission to report to it for its next meeting on progress made on 
this basis, on the process of alignment since the Copenhagen European Council, and on 
the strategy to be followed with a view to preparing for accession." The present 
Communication is a first response to this request. 
The Copenhagen European Council concluded that " the associated countries in Central and 
Eastern Europe that so desire shall become members of the European Union. Accession 
will take place as soon as an associated country is able to assume the obligations of 
membership by satisfying the economic and political conditions required." The conditions 
specified by the European Council are: 
- stability of institutions guaranteeing democracy, the rule of lav/, human rights and 
respect for and protection of minorities; 
- the existence of a functioning market economy; 
- capacity to cope with competitive pressure and market forces within the Union; 
- ability to take on the obligations of membership including adherence to the aims 
of political, economic and monetary union. 
The European Council also concluded that "the Union's capacity to absorb new members, 
while maintaining the momentum of European integration, is also an important consideration 
in the general interest of both the Union and the candidate countries" . 
The goal for the period before accession should be the progressive integration of the 
political and economic systems, as well as the foreign and security policies of the associated 
countries and the Union, together with increasing cooperation in the fields of justice and 
home affairs, so as to create an increasingly unified area. The needs and capacities of each 
partner will determine the pace of their progress towards membership. 
The main instruments for promoting integration already exist. They are the structured 
relationship with the institutions of the Union, provided for in the Copenhagen conclusions, 
but still in its early stages, and the Europe agreements. These agreements provide a 
common framework for diverse forms of cooperation. This framework is flexible and 
dynamic, permitting the intensification of co-operation and integration, it is, therefore, the 
appropriate framework for developing a strategy with a view to preparing for accession. As 
negotiations for Europe Agreements are concluded with additional countries these countries 
could be included in f(he structured relationship discussed in this Communication. 
As far as the Union itself is concerned, its capacity to absorb new members wiii depend on 
the decisions to be taken on institutional questions by the 1996 inter-governmental 
conference, after which the enlargement calendar should be assessed. The Union will also 
need to consider its common policies, notably the common agricultural and structura! 
policies and their budgetary implications. As far as the associated countries are concerned 
it is clear that they will also need to prepare themselves and make the necessary efforts to 
take on the obligations of membership which would notably include the adaptation of their 
agricultural and structural policies. 
Accordingly, this Communication sets out a strategy covering the following inter-related 
areas: 
- the full implementation of the structured relationship between the associated 
countries and the institutions of the Union; 
- building on the basis of the Europe agreements to promote integration and 
regional cooperation. 
As requested by the Corfu European Council further specific proposals will be transmitted 
to the Council shortly. 
2. The structured relationship with the institutions of the Union 
The Copenhagen European Council concluded that "the Community proposes that the 
associated countries enter into a structured relationship with the institutions of the Union 
within the framework of a reinforced and extended multilateral dialogue and concertation on 
matters of common interest. The arrangements.... include dialogue and concertation on a 
broad range of topics and in several fora" 
The structured relationship was viewed by the European Council as a means progressively 
to involve the associated countries in the European Union's work in areas of common 
interest, through joint meetings of an advisory nature with the Union's institutions. The 
European Council concluded that the structured relationship would apply to all three areas 
("pillars") of the Union's activities. Thus joint meetings in areas covered by Community 
policies, especially with a trans-European dimension, the common foreign and security 
policy, as well as justice and home affairs, should all be included in the structured 
relationship. In order that these meetings should be effective, they should be announced 
well in advance to enable the necessary preparations to be made at joint meetings with 
COREPER, the political committee and the relèvent working groups level. 
The relationship will bring a double benefit. At the level of procedure, it will establish a close 
working relationship and habits of co-operation. At the level of substance, it will encourage 
the Union and the associated countries to work together in areas where solutions for 
pressing problems require action at the European level. 
Unfortunately, during the past twelve months, the structured relationship at ministerial levé! 
has been limited to two informal meetings (transport and ecofin). As part of political dialogue 
two troika meetings have been held on foreign affairs as well as a joint meeting of the 
political directors. 
There is no reason why the structured relationship should be confined to joint meetings with 
the Council. As has been suggested in a number of public statements, the European 
Parliament, too, should be encouraged to hold joint meetings on particular points of common 
interest with the associated countries. 
More than a year after the Copenhagen European Council, it is vital that the structured 
relationship provided for by the Council should gain credibility and that joint meetings with 
the associated countries should deepen co-operation so that the latter begin to feel part of 
the process of European integration. This will contribute to the stability of Europe as a 
whole. 
It is suggested that the Presidency and the Commission report to a joint meeting of the 
Essen European Council, with the participation of the associated countries, on progress 
made in the structured relationship and that, on that occasion, a provisional schedule be 
agreed of joint meetings in 1995. 
Community areas 
The structured relationship should be developed in Community areas especially those with 
a trans-European dimension such as transport, energy, telecommunications and research. 
These are areas in which efforts at the European level are necessary to ensure success. 
It is therefore in the interest both of the Union and the associated countries to work together 
in these areas. Other Community areas of common interest, which are discussed by the 
general affairs and ecofin councils, should also be included in the structured relationship. 
The Commission will be providing the Council with an indicative list of forthcoming Council 
meetings whose provisional agendas include items of common interest which could be the 
subject of joint meetings. Detailed work on common activities in these areas should be taken 
up within the framework of the Europe agreements. 
On this basis, the Commission invites the Presidency to draw up a schedule of joint 
meetings in 1994. It is also desirable to coordinate with future presidencies in order to 
establish an indicative work programme over a longer period. 
Common foreign and security policy 
This part of the structured relationship is especially important as a means for overcoming 
the widespread sense of insecurity in central and eastern Europe. It can reinforce efforts in 
the framework of the Western European Union, NATO and the Partnership for Peace, the 
Conference on Security and Cooperation in Europe and the stability pact, to increase 
security and stability throughout Europe. The Union and the associated countries have a 
common interest in preventing conflict related to issues such as borders and frontiers, and 
should consult frequently on foreign and security policy issues of mutual concern. 
In this area, the Copenhagen conclusions have been supplemented by the conclusions of 
the General Affairs Council of 7 March. Nonetheless, the existing political dialogue, which 
has so far mainly taken place in troika format, has not sufficiently addressed key foreign 
policy and security policy issues. The associated countries have expressed interest in this 
part of the structured relationship and have, for example, set up a network of shadow 
European correspondents as suggested by the Council. 
Above all the measures should be practical rather than formalistic and should tackle p^ii^ 
issues of mutual concern. Gradually joint meetings of the Union and the associated 
countries should replace the present troika format, as these provide a far greater opportunity 
for participation and a feeling of belonging, joint meetings should take place en the occa- .ion 
of regular Council meetings and, where appropriate, through coordination meetings ih IUL 
framework of relevant multilateral fora (the United Mations General Assembly, the CSCE 
Budapest review conference and summit, the stability pact and other fora). 
The Commission recommends that all practical steps be taken to implement effectively the 
arrangements agreed by the Council on 7 March 1994 and that a calendar be drawn up of 
joint meetings on substantial CFSP issues of mutual concern. 
Justice and home affairs 
Cooperation between the Union and the associated countries is indispensable if action at 
the European level in the fields of justice and home affairs is to be fully effective. For this 
reason, it is important for the Union to develop the structured relationship in this area by 
bringing to an early conclusion the current examination by Justice and Interior Ministries of 
the most appropriate procedure for consulting and informing the countries of central and 
eastern Europe on justice and home affairs issues. 
This will also help to prepare these countries for the obligations of the "acquis" in justice 
and home affairs which membership would entail. The experience already gained in this 
area can serve as a useful guide in developing the structured relationship with the countries 
of central and eastern Europe. A first important step in this direction will be taken in 
September 1994 with the invitation extended to the relevant Ministers from these countries 
to meet Ministers on the Union's side on the occasion of their planned informal meeting in 
Berlin. This could also provide the opportunity for a concrete follow-up to the Corfu 
European Council's conclusion which called on the German Presidency "to arrange a 
conference with the central and east European states on drugs and organised crime". 
3. Building on the Europe Agreements to promote integration and to prepare for 
enlargement 
The associated countries have made considerable progress in the reform and restructuring 
of their economies and in macro-economic adjustment. But major structural changes still lie 
ahead, including capacity reductions in heavy industry, promoting new industry and further 
developing small and medium sized enterprises, agricultural reform, modernisation of the 
banking sector, infrastructure and other areas. Above all, continued reform and sustainable 
economic growth are the key to successful integration with the Union. 
All the main areas for reform and reconstruction, including cooperation on macro-economic 
policies, are covered by the Europe agreements. These agreements also provide 
instruments for the promotion of regional cooperation among the associated countries, a 
process which has begun with the Central European Free Trade Area (CEFTA), the- Baiiic 
free trade agreement and other initiatives. Regional co-operation will help to foster trade 
and investment and improve growth prospects in the region. It is, therefore, cruder to 
exploit the full potential of the Europe agreements and to build on them in preparation for 
enlargement. 
Towards a wider European market 
To enable the associated countries to integrate progressively in a wider European market, 
as provided for by the Europe agreements, an appropriate legal and institutional framework 
is needed. To achieve this, each associated country should draw up a programme of 
priorities and a timetable in fields such as the approximation of legislation, and the 
implementation of competition and state aids policies which are transparent and compatible 
with those of the Union. 
After consultation with the associated countries, the Commission will prepare a White Paper, 
setting out a programme for meeting the obligations of the internal market which can be 
followed by each associated country and monitored by the Union. This could be 
accompanied by a study programme on the impact of further enlargement on the Union's 
common policies. The White Paper will outline ways to achieve a wider European market, 
including the enlarged Union, the EEA and the associated countries, with a total population 
of 450 million. 
Once satisfactory implementation of competition and state aids policies has been achieved, 
together with the application of other parts of Community law linked to the wider market, the 
Union could decide to progressively reduce the application of commercial defence 
instruments for industrial products for the countries concerned, since it would have a level 
of guarantee against unfair competition comparable to that existing inside the internal 
market. 
Social dimension 
It is also a clear objective of Union policy that economic and social policy should go hand 
in hand. For this reason the Copenhagen conclusions underlined, in the context of 
accession and to avoid distortion of competition, the importance of approximation of laws 
with regard to protection of workers in the associated countries to those applicable in the 
Community. The Union is, moreover, prepared to help the associated countries to formulate 
responses to the serious social problems emerging during the transition to a market 
economy including high levels of unemployment, poverty and social exclusion. 
Trade 
Free trade in industrial goods has now virtually been achieved. In these conditions, restraint 
should be shown by both sides in the use of commercial defence instruments. In the short 
term the Union should offer information to any associated country before the initiation of any 
anti-dumping or safeguard proceeding. 
To encourage integration and regional cooperation, further progress should be made 
towards full cumulation of rules of origin in trade between the Union and the associated 
countries. In addition, an initiative should be taken to promote regional trade and to foster 
cross-border co-operation throughout the region. 
Agriculture 
In view of the importance of agriculture to the Union and to the associated countries the 
Commission will prepare a review of options for future agriculture policies in a wider Europe. 
Other forms of co-operation 
The European Union and the associated countries should also intensify their co-operation 
in other fields covered in the Europe Agreements, such as culture. The decision to open 
up Community programmes to the associated countries will also promote co-operation in a 
wide range of Community policy areas. 
Alignment 
In order to promote regional cooperation and convergence and to stimulate trade, the trade 
provisions of the Europe agreements with Bulgaria and Romania should be brought into line 
with those of the agreements with the Visegrad countries. This alignment should apply to 
the timetable for all categories of products and to the specific provisions relating to 
agriculture. 
Financial Assistance 
Phare's emphasis should continue to shift towards support for investment and the private 
sector and the provision of assistance directly to end-users in beneficiary countries. Phare's 
programmes in support of democracy and civil society need to be strengthened in order to 
consolidate political reform and to strengthen stability. The Commission will shortly propose 
ways of increasing Phare's efficiency and effectiveness. The EIB and EBRD will also have 
a role to play and new forms of macro-financial assistance will be required notably to 
support the implementation of structural reforms. 
4. Conclusion 
The Commission invites the Council to approve the strategy outlined in this communication, 
further details of which will be transmitted shortly, with a view to its endorsement by the 
Essen European Council in December 1994, 
ISSN 0254-1475 
CO M (94) 320 final 
DOCUMENTS 
EN 11 
Catalogue number : CB-CO-94-342-EN-C 
ISBN 92-77-71841-2 
Office for Official Publicatioiis of the European Communities 
L-2985 Luxembourg 
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