Briuselis, 6.10.2004

KOM(2004) 657 galutinis

KOMISIJOS KOMUNIKATASTARYBAI IR EUROPOS PARLAMENTUI

Europos Komisijos strategijos dokumentas dėl plėtros proceso pažangos{SEK(2004) 1199, 1200} KOMISIJOS KOMUNIKATASTARYBAI IR EUROPOS PARLAMENTUI

Europos Komisijos strategijos dokumentas dėl plėtros proceso pažangos

ES plėtra, 2004 m. gegužės 1 d. prisijungus dešimt naujų valstybių narių, dar labiau sutvirtino Europos žemyno vienybę. Šią plėtrą palaikantys istoriniai ir politiniai argumentai yra įtikinantys: ji užtikrina taiką, gerovę, stabilumą bei saugumą ir duoda pakankamai daug ekonominės naudos.

Bulgarija ir Rumunija yra neatsiejama šio plėtros proceso, kuris buvo pradėtas 1997 m., dalis. Abi šalys jau artėja prie derybų pabaigos. ES tikslas abi šalis priimti narėmis 2007 m. sausio mėn., jei jos bus tam pasirengusios.

Šių metų reguliariosiose ataskaitose Komisijos pateiktas įvertinimas patvirtina, kad pasirengimo narystei strategija, kurią Sąjunga taikė Bulgarijai ir Rumunijai, pasiteisino. Pertvarkos procesą abiejose šalyse pagreitino plėtros perspektyva. Komisija dės visas pastangas, kad įvykdytų Europos Vadovų Tarybos tikslą 2004 m. sėkmingai užbaigti derybas su Bulgarija ir Rumunija (jei jos bus to vertos) siekiant 2005 m. pradžioje pasirašyti Stojimo sutartį.

2004 m. birželio mėn. Europos Vadovų Taryba patvirtino, kad stojimo derybos su Kroatija prasidės 2005 m. pradžioje. Remdamasi dabartinio plėtros proceso metu įgyta patirtimi, Komisija šiame dokumente pateikia bendrąsias minėtų derybų nuostatas. Ji taip pat supažindina su Kroatijai skirtos pasirengimo narystei strategijos turiniu, įskaitant finansines priemones.

Vadovaudamasi 2002 m. gruodžio mėn. Europos Vadovų Tarybos išvadomis, Komisija atskirame dokumente pateikia įvertinimą, ar Turkia atitinka Kopenhagos politinius kriterijus ir ar turėtų būti pradėtos stojimo derybos. [1] Visos Vakarų Balkanų šalys yra galimos šalys kandidatės. Buvusioji Jugoslavijos Respublika Makedonija jau pateikė narystės paraišką, ir Komisija, Tarybos prašymu, rengia nuomonę dėl šios paraiškos.

Bulgarijos ir Rumunijos pažanga narystės kriterijų atitikimo srityje vertinama reguliariosiose ataskaitose atsižvelgiant į faktiškai priimtus ar įgyvendintus teisės aktus ir priemones.

Šių metų reguliariosiose ataskaitose vertinamas Bulgarijos ir Rumunijos gebėjimas iki stojimo prisiimti visus narystės įsipareigojimus. Jose vertinama per paskutiniuosius metus pasiekta pažanga, pažanga, kurią kiekviena šalis padarė nuo 1997 m., kai buvo parengtos nuomonės, ir tai, kaip jos įgyvendina derybų metu prisiimtus įsipareigojimus.

Bulgarija ir Rumunija ir toliau atitinka Kopenhagos politinius kriterijus. Daugiau turi būti padaryta pirmiausia viešojo valdymo reformos, teisminės sistemos funkcionavimo ir kovos su korupcija srityse.

Bulgarija ir Rumunija atitinka kriterijų, pagal kurį jos turi būti veikiančios rinkos ekonomikos šalys. Tai, kad Bulgarijoje tęsiama reforma, o Rumunija ryžtingai įgyvendina struktūrinės reformos programą, turėtų joms leisti atlaikyti konkurencinį spaudimą ir rinkos jėgų veikimą Sąjungoje.

Bulgarijos ir Rumunijos pažanga priimant acquis ir toliau vertinama teigiamai, ir galima teigti, kad jos iš esmės įvykdė derybų metu prisiimtus įsipareigojimus. Jei bus išlaikytas dabartinis pažangos tempas, jos netrukus baigs teisės aktų perkėlimą, kurį būtina atlikti iki stojimo. Jos turi ir toliau dėti pastangas, kad sukurtų pakankamus administracinius ir teisminius pajėgumus, būtinus acquis įgyvendinti ir jo vykdymui užtikrinti.

Bulgarijai ir Rumunijai skirtų reguliariųjų ataskaitų išvados pateikiamos 1 priede. Reguliariosiose ataskaitose nurodomos kelios sritys, susijusios su politiniais ir ekonominiais kriterijais bei su acquis priėmimu, įgyvendinimu ir vykdymo užtikrinimu, kuriose dar reikalinga pažanga. Šiose srityse būtina imtis ryžtingų veiksmų siekiant iki stojimo ištaisyti nustatytus trūkumus.

Stojimo derybos yra toli pažengusios. Bendrosios Bulgarijos ir Rumunijos stojimo finansavimo nuostatos buvo nustatytos 2004 m. pavasarį. Tai leido 2004 m. birželį preliminariai uždaryti visus derybų su Bulgarija skyrius. Su Rumunija dar deramasi dėl trijų skyrių (konkurencija, aplinka bei teisingumas ir vidaus reikalai), taip pat dėl kai kurių 31 skyriaus (Kita) dalių. Būtina dėti daugiau pastangų visų pirma konkurencijos skyriuje numatytoje valstybės pagalbos srityje bei teisingumo ir vidaus reikalų skyriuje numatytose teismų bendradarbiavimo, kovos su korupcija ir organizuotu nusikalstamumu bei sienų tvarkymo srityse.

Vadovaujantis praktika, kurios buvo laikomasi į ES stojant kitoms šalims, derybų objektas galės būti tik iki tam tikro laiko priimtas acquis. Atsižvelgiant į tai, kad derybos yra labai toli pažengusios ir į tai, kad Stojimo sutartis turėtų būti pasirašyta kiek galima anksčiau 2005 m. pradžioje, Komisija mano, kad derybų objektas turėtų būti visas acquis, kuris buvo priimtas ir paskelbtas iki 2004 m. spalio 1 d. Todėl Bulgarija ir Rumunija turėtų pateikti savo pozicijas dėl viso naujo acquis, kuris buvo priimtas iki tos datos. Tai leistų iki derybų pabaigos išspręsti klausimus, susijusius su pereinamojo laikotarpio priemonėmis.

Stojimo derybų rezultatai, susiję su sutartomis pereinamojo laikotarpio priemonėmis ir techninėmis acquis adaptacijomis, kurios turės būti atliktos dėl plėtros, bus įrašyti į Stojimo sutartį. Ši Sutartis buvo pradėta rengti 2004 m. liepos mėn.

Kai dėl Sutarties teksto susitars visos šalys, pagal ES sutarties 49 straipsnį Komisija parengs ir pateiks savo nuomonę. Europos Parlamentas bus paprašytas duoti sutikimą, o Taryba tuomet priims sprendimą dėl Bulgarijos ir Rumunijos priėmimo. Siekiama Stojimo sutartį pasirašyti kuo anksčiau 2005 m., kad ji įsigaliotų 2007 m. sausio 1 d. Pasirašyta Sutartis bus pateikta dabartinėms ir būsimosioms valstybėms narėms ratifikuoti.

Komisija laikosi nuomonės, kad sprendimų priėmimo procedūros, susijusios su Bulgarijos ir Rumunijos prašymu taikyti pereinamojo laikotarpio priemones dėl institucijų aktų, priimtų per laikotarpį nuo 2004 m. spalio 1 d. iki stojimo dienos, turėtų būti racionalizuotos, kad būtų užtikrintas sklandus perėjimas nuo sprendimų priėmimo iki stojimo prie sprendimų priėmimo po stojimo. Be to, nuo Sutarties pasirašymo šioms šalims bus suteiktas aktyvaus stebėtojo statusas Taryboje, komitetuose, kuriems pirmininkauja Komisija, ir, prireikus, kitose institucijose.

Komisija atidžiai stebi, kaip Bulgarija ir Rumunija laikosi derybų metu prisiimtų įsipareigojimų. Nepaprastai svarbu, kad šie įsipareigojimai būtų vykdomi taip, kaip numatyta. Todėl pasibaigus deryboms Komisija ir toliau aktyviai stebės, kaip vykdomi minėti įsipareigojimai.

Remdamasi reguliariosiose ataskaitose atlikta analize, Komisija stebės pažangą aktyviai pasitelkdama asociacijos susitarimų struktūras, taip pat visas kitas stebėsenos priemones, įskaitant kitų šalių vertinimus. Nuo 2005 m. lapkričio mėn. Komisija kiekvienais metais parengs išsamias stebėsenos ataskaitas, apimančias visus acquis skyrius, viešąjį administravimą, teismus ir kovą su korupcija, taip pat ekonominių reformų rezultatus.

Komisija įspės apie bet kokį ekonominės reformos vilkinimą arba įsipareigojimų vykdomo vėlavimą, visų pirma politiniu lygiu nusiųsdama įspėjamuosius laiškus ir pagal galiojančias procedūras praneš apie tai Tarybai. Siekiant apsisaugoti nuo didelių trūkumų, Stojimo sutartyje bus įrašyti trys apsaugos straipsniai, kaip blogiausiu atveju taikoma priemonė (bendra ekonomika, vidaus rinka bei teisingumas ir vidaus reikalai).

Be to, kadangi tikėtina, kad laikotarpis nuo derybų pabaigos iki numatomos Bulgarijos ir Rumunijos stojimo dienos bus ilgas, ir atsižvelgiant į didelį dar neįvykdytų įsipareigojimų skaičių, Komisija mano, kad kaip atsargumo priemonę į Stojimo sutartį reikėtų įrašyti konkretų apsaugos straipsnį. Ši apsaugos priemonė, dėl kurios jau buvo susitarta derybose su Bulgarija, turėtų būti taikoma ir Rumunijai. Tai leistų Komisijai bet kuriuo metu iki Stojimo sutarties įsigaliojimo rekomenduoti Tarybai vieneriais metais iki 2008 m. sausio mėn. atidėti numatomą Bulgarijos arba Rumunijos stojimo datą, jeigu atsirastų neginčijamų įrodymų, kad iškilo rimtas pavojus, jog Bulgarija arba Rumunija yra aiškiai nepasirengusi iki 2007 m. sausio 1 d. įvykdyti narystės reikalavimų keliose svarbiose srityse.

Pasitelkusi pasirengimo narystei strategiją,Sąjunga ir toliau iki stojimo padės Bulgarijai ir Rumunijai rengiantis narystei. Ši pagalba apima nemažą finansinę paramą, skirtą abiems šalims paremti žengiant likusius žingsnius visiškos stojimo kriterijų atitikties link.

Administracinių ir teisminių pajėgumų stiprinimo procesas turės būti tęsiamas ir po to, kai Bulgarija ir Rumunija įstos į Sąjungą. Todėl Komisija siūlo numatyti specialią pereinamojo laikotarpio priemonę, skirtą institucinei plėtrai. Šioje srityje ir toliau bus taikomos tam tikros Bendrijos finansuojamos priemonės, kurių nauda pasitvirtino, pavyzdžiui, poravimas.

Remiantis ES sutartimi, Bulgarija ir Rumunija iš karto po įstojimo euro neįves. Taip pat ir Šengeno acquis taikymo srityje kontrolė prie vidaus sienų bus panaikinta tik praėjus tam tikram laikui po įstojimo, o kontrolės panaikinimo klausimas bus sprendžiamas kiekvienos naujos valstybės narės atveju atskirai po to, kai jos įvykdys Šengeno acquis.

Bulgarija ir Rumunija turės pateikti prisijungimo prie Europos ekonominės erdvės (EEE) paraišką, o prisijungti prie EEE jos turėtų tuo pat metu, kai įstos į ES. Kitų tarptautinių susitarimų pritaikomosios pataisos turės būti padarytos iš karto po to, kai bus pasirašyta Stojimo sutartis.

Šių metų reguliariosios ataskaitos rodo, kad Bulgarija ir Rumunija pasiekė dar didesnės pažangos Kopenhagos kriterijų įgyvendinimo srityje. Bulgarija ir Rumunija atitinka politinius kriterijus. Turėdama omenyje pažangą, kurios pasiekė abi šalys, įsipareigojimų vykdymo rezultatus ir atsižvelgdama į šiuo metu atliekamą parengiamąjį darbą, Komisija mano, kad iki 2007 m. sausio 1 d. šios šalys atitiks ekonominius bei acquis kriterijus ir bus pasirengusios narystei.

Komisija dės visas pastangas, kad įvykdytų Europos Vadovų Tarybos tikslą 2004 m. sėkmingai užbaigti derybas su Bulgarija ir Rumunija (jei jos bus to vertos) siekiant kaip galima anksčiau 2005 m. pradžioje pasirašyti Stojimo sutartį.

2004 m. birželio mėnesį Briuselyje susirinkusi Europos Vadovų Taryba padarė išvadą, kad Kroatija yra šalis kandidatė, su kuria stojimo derybos prasidės 2005 m. pradžioje ir paprašė, kad Komisija parengtų Kroatijos pasirengimo narystei strategiją. Komisija mano, kad sustiprinta pasirengimo narystei strategija, kuriai buvo pritarta 1997 m. gruodžio mėnesį Liuksemburgo Europos Vadovų Taryboje, turėtų būti taikoma ir Kroatijai. Toliau pateikiamos šios strategijos ypatybės.

Peržiūros procedūra, kuria siekiama įvertinti šalies kandidatės pažangą siekiant narystės, bus pradėta taikyti Kroatijai nuo 2005 m. Tai reiškia, kad Komisija pradės skelbti Kroatijai skirtas reguliariąsias ataskaitas nuo 2005 m. rudens. Stabilizavimo ir asociacijos proceso kontekste Komisija jau yra pasiūliusi Europos partnerystę, pagrįstą savo nuomonės apie Kroatijos narystės paraišką duomenimis. Šis dokumentas bus Kroatijos pasirengimo narystei vadovas.

Kroatijai, kaip šaliai kandidatei, turėtų būti taikomos visos trys finansinės pasirengimo narystei priemonės: Phare institucinei plėtrai ir ekonominei bei socialinei sanglaudai, ISPA aplinkai ir transportui, SAPARD kaimo plėtrai. Komisija pateiks pasiūlymą iš dalies pakeisti šias tris pasirengimo narystei priemones reglamentuojančius reglamentus, kad nuo 2005 m. sausio 1 d. jų taikymo sritis apimtų ir Kroatiją. Atsižvelgdama į tinkamo Kroatijos pasirengimo narystei poreikius, Komisija rekomenduoja, kad 2005 m. Kroatijai būtų skirti 105 milijonai eurų (80 milijonų eurų Phare ir 25 milijonai eurai ISPA), 2006 m. 140 milijonų eurų (80 milijonų eurų Phare, 35 milijonai eurų ISPA, ir 25 milijonai eurų SAPARD). Šios sumos bus finansuojamos pasirengimo narystei lėšomis, numatytomis dabartinių finansinių perspektyvų 7 išlaidų kategorijoje. Komisija pateikė Tarybai pasiūlymą sukurti naują pasirengimo narystei priemonę (IPA), kurią taikant Kroatijai būtų skiriamos lėšos nuo 2007 m. ir kuri būtų sukurta dabartinių pasirengimo narystei priemonių (Phare, ISPA ir SAPARD) pagrindu. Sprendimas dėl sumų, kurios turi būti skirtos Kroatijai nuo 2007 m., bus priimtas tvirtinant kitą finansinę perspektyvą.

Stabilizavimo ir asociacijos sutartis (SAS), su Kroatija pasirašyta 2001 m. spalio mėn., dabar buvo ratifikuota. Siekiant įgyvendinti su prekyba susijusius SAS aspektus, 2002 m. kovo mėn. įsigaliojo laikinasis susitarimas. Bus įsteigti stabilizavimo ir asociacijos taryba, komitetas ir pakomitečiai. Komisija siūlo, kad SAS struktūros būtų naudojamos net tik klausimams, susijusiems su sutarties įgyvendinimu, spręsti, bet būtų ir forumas, skirtas aiškinti acquis ir stebėti pažangą, kurios pasiekė Kroatija derindama savo teisės aktus su acquis pagal derybose prisiimtus įsipareigojimus.

Bendrasis susitarimas, sudarantis sąlygas Kroatijos dalyvavimui Bendrijos programose ir agentūrose, turėtų įsigalioti pirmoje 2005 m. pusėje po to, kai jį ratifikuos ES institucijos ir Kroatija. Kroatijos finansinis įnašas kiekvienai programai gali būti iš dalies finansuojamas Phare lėšomis.

Komisija mano, kad be pirmiau minėtų sustiprintos pasirengimo narystei strategijos dalių, turėtų būti tęsiamas ir sustiprintas politinis dialogas su Kroatija siekiant išspręsti Nuomonėje akcentuotus klausimus. Tokie klausimai apima santykius su Tarptautiniu baudžiamuoju tribunolu buvusiajai Jugoslavijai, mažumų teises, pabėgėlių sugrąžinimą, teismų reformą, regionų bendradarbiavimą ir kovą su korupcija. Visų pirma Kroatija turi vykdyti įsipareigojimus, susijusius su regionų bendradarbiavimu, vykstančiu Vakarų Balkanų stabilizavimo ir asociacijos proceso kontekste. Komisija reguliariai susitiks su Kroatijos valdžios institucijomis ir stebės su šiais klausimais susijusią padėtį bei nuolat apie tai informuos Tarybą.

2004 m. birželio mėn. Briuselio Europos Vadovų Taryba nusprendė, kad ,,prieš prasidedant deryboms su Kroatija, Taryba, atsižvelgdama į patirtį, įgytą penktojo plėtros proceso metu, patvirtins bendrąsias derybų nuostatas". Komisija siūlo minėtas bendrąsias nuostatas pagrįsti šiais principais:

- derybose su Kroatija turėtų būti vadovaujamasi stojimo sąlygomis, kurios buvo apibrėžtos 1993 m. Kopenhagos Europos Vadovų Taryboje. Šios sąlygos yra tinkamos priemonės šalies kandidatės pasirengimui vykdyti narystės įsipareigojimus vertinti ir gali būti naudojamos kaip aiškios reformos proceso gairės.

- Derybų pažanga visiškai priklausys nuo politinių reformų tvarumo ir nuo to, ar Kroatija vykdys savo įsipareigojimus, susijusius su regioniniu bendradarbiavimu su kitomis buvusiosios Jugoslavijos šalimis, ir kitus atitinkamus tarptautinius įsipareigojimus, pavyzdžiui, bendradarbiavimo su Tarptautiniu baudžiamuoju tribunolu buvusiajai Jugoslavijai (angl. ICTY) įsipareigojimą.

- Remdamasi Europos Sąjungos sutartimi ir Konstitucija Europai, Komisija rekomenduos laikinai sustabdyti derybas tuo atveju, jei bus rimtai ir nuolat pažeidžiami laisvės, demokratijos, pagarbos žmogaus teisėms ir pagrindinėms laisvėms bei teisinės valstybės principai, kuriais yra grindžiama Sąjunga. Taryba sprendimą dėl tokios rekomendacijos turėtų priimti kvalifikuota valstybių narių balsų dauguma.

- Derybos vyks remiantis "nuopelnų" principu. Turėtų būti ribojama visų pereinamojo laikotarpio priemonių taikymo sritis ir trukmė, o jų poveikis konkurencijai ar vidaus rinkos veikimui neturėtų būti didelis.

- Iš karto po to, kai oficialiai pradės derybas su Kroatija, Komisija surengs formalų acquis nagrinėjimo procesą, vadinamą patikra, kad Kroatijos valdžios institucijas supažindintų su acquis ir išsiaiškintų, kokie klausimai greičiausiai iškils derybų metu.

- Atlikusi tam tikro skyriaus patikrą, Komisija savo naujausios nuomonės apie Kroatiją pagrindu rekomenduos pradėti derybas dėl to skyriaus, jeigu Kroatija bus pakankamai tam pasirengusi.

- Derybų tempas priklausys nuo to, ar Kroatija teisingai perkelia ir įgyvendina acquis, įskaitant veiksmingą ir efektyvų taikymą pasitelkus tinkamas administracines ir teismines struktūras.

- Prieš pradėdama derybas dėl tam tikro skyriaus, Komisija pateiks Tarybai pasiūlymą dėl gairių, kurių pagrindu tas skyrius bus preliminariai uždaromas. Tos gairės gali būti susijusios su teisės aktų suderinimu arba patenkinamais jų įgyvendinimo rezultatais. Šis metodas pasitvirtino pirmiausia konkurencijos skyriuje.

- Derybų pažanga priklausys to, ar Kroatija įvykdys savo įsipareigojimus pagal Stabilizavimo ir asociacijos susitarimą, ypač tuos įsipareigojimus, kurie atspindi pagal acquis taikomus reikalavimus, pavyzdžiui, konkurencijos srityje. Prieš preliminariai uždarant tam tikrą skyrių, kiekvienas įsipareigojimas turi būti iki galo įvykdytas.

- Pasitelkusi visas turimas priemones, Komisija atidžiai stebės Kroatijos pažangą siekiant narystės.

IšVADOS IR REKOMENDACIJOS

Atsižvelgiant į tai, kas buvo išdėstyta pirmiau, Komisijos išvados ir rekomendacijos yra šios:

šių metų reguliariosios ataskaitos rodo, kad per praėjusius metus Bulgarija ir Rumunija pasiekė dar didesnės pažangos stojimo kriterijų įgyvendinimo srityje.

Bulgarija ir Rumunija atitinka politinius kriterijus. Turėdama omenyje pažangą, kurios pasiekė šios šalys, duomenis, rodančius, kaip jos įgyvendina savo įsipareigojimus, ir atsižvelgdama į šiuo metu atliekamą parengiamąjį darbą, Komisija mano, kad iki 2007 m. sausio mėn. šios šalys atitiks ekonominius bei acquis kriterijus ir bus pasirengusios narystei.Komisija dės visas pastangas, kad įvykdytų Europos Vadovų Tarybos tikslą 2004 m. sėkmingai užbaigti derybas su Bulgarija ir Rumunija (jei jos bus to vertos) siekiant kiek galima anksčiau 2005 m. pradžioje pasirašyti Stojimo sutartį.

Reguliariosiose ataskaitose nurodomos kelios sritys, susijusios su politiniais ir ekonominiais kriterijais bei su acquis priėmimu, įgyvendinimu ir vykdymo užtikrinimu, kuriose dar reikalinga pažanga. Šiose srityse būtina imtis ryžtingų veiksmų siekiant iki stojimo ištaisyti nustatytus trūkumus. Kad galėtų analizuoti pažangą ir palengvintų sėkmingą narystę Europos Sąjungoje, Komisija vykdys sustiprintą stebėseną ir reguliariai atsiskaitys Tarybai. Nuo 2005 m. lapkričio mėn. Komisija Tarybai ir Parlamentui teiks išsamias metines stebėsenos ataskaitas. Komisija mano, kad į Stojimo sutartį reikia įrašyti konkretų apsaugos straipsnį, kuris Komisijai leistų rekomenduoti Tarybai iki Stojimo sutarties įsigaliojimo vieneriais metais iki 2008 m. sausio mėn. atidėti Bulgarijos arba Rumunijos stojimo datą, jeigu atsirastų neginčijamų įrodymų, kad iškilo rimtas pavojus, jog Bulgarija arba Rumunija yra aiškiai nepasirengusi iki 2007 m. sausio 1 d. įvykdyti narystės reikalavimų keliose svarbiose srityse.

Kaip nurodyta pirmiau, Komisija rekomenduoja šalims kandidatėms skirtą sustiprintą pasirengimo narystei strategiją, kuriai buvo pritarta 1997 m. gruodžio mėn. Liuksemburgo Europos Vadovų Taryboje, taikyti ir Kroatijai.

Komisija primena, kad Europos Vadovų Taryba nusprendė derybas su Kroatija pradėti 2005 m. pradžioje, ir siūlo, kad šiam tikslui būtų baigtos rengti bendrosios derybų su Kroatija nuostatos, pagrįstos šiame dokumente išdėstytais principais.

ANNEX: CONCLUSIONS OF THE REGULAR REPORTS ON BULGARIA AND ROMANIA

Bulgaria

Since the Commission concluded in its 1997 Opinion that Bulgaria fulfilled the political criteria, the country has further consolidated and deepened the stability of its institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities. This trend has been confirmed over the past year. Bulgaria continues to fulfil the political criteria.

Tangible progress was made in public administration reform with the adoption of amendments to the Civil service law. The specific structures for co-ordinating European integration continue to function well, and in view of Bulgaria's aim of building a qualified and efficient civil service by the time of accession this progress needs to spread throughout the public administration. Also, interdepartmental coordination should improve. Attention should be given to the legal framework for local and regional administration, which will play an important role in the implementation of the acquis.

Building on important reforms of the judiciary system achieved in recent years, there have been positive developments with regard to the recruitment and appointment of judges. Still, certain key parts of the reform of the judiciary remain to be adopted. The complexity and efficiency of the penal structures, in particular in the pre-trial phase, is a matter of concern. Strong efforts will be necessary to foster Bulgaria's capacity to prosecute organised crime and corruption, which involves further reforms in the structures of the judiciary and of the police.

Bulgaria has implemented several measures in the fight against corruption, but it remains a problem. Renewed efforts are needed, including tackling high level corruption.

Bulgaria continues to respect human rights and fundamental freedoms. Further progress should be pursued in specific areas to improve their implementation in practice. Comprehensive legislation on anti-discrimination was adopted but the independent body required by the law has not yet been established. The freedom of expression is ensured by law. However, the legal framework regarding libel and defamation by journalists needs to be revised. Efforts to address inadequate living conditions in certain prisons and problems of ill-treatment in custody need to be sustained. Trafficking in human beings is a serious problem and needs to be addressed. A new law on public health should address most of the issues related to the placement of mentally disabled people. The structures responsible for child welfare and their co-ordination with the relevant ministries need to be reinforced.

Efforts have been made in the past years to develop a framework to tackle the problems faced by minorities, but the situation on the ground has not evolved much. Sustained efforts including allocation of appropriate financial resources will be necessary to effectively implement the intentions and to combat in particular anti-Roma prejudice.

The 1997 Opinion already acknowledged the substantial reform efforts undertaken by the Bulgarian authorities to transform their economy. Since the Opinion economic structure and performance have significantly improved. Macroeconomic stability has been achieved soon after the Opinion, profound economic reforms have been carried out over the entire period while the Bulgarian authorities' commitment to the economic requirements of EU accession has been sustained.

Hence, it is concluded that Bulgaria isa functioning market economy. The continuation of its current reform path should enable Bulgaria to cope with competitive pressure and market forces within the Union.

Improvements can be made in sustaining macroeconomic stability and in deepening structural reforms. The current account deficit has widened substantially in 2003 and could, if continuing, warrant a further policy response. The business environment, in particular the efficiency of the administrative and judicial system as well as regulatory procedures, should be further improved to increase Bulgaria's attractiveness for investment. In spite of significant achievements, privatisation still needs to be completed. While the legal framework is largely in place, the actual restructuring and liberalisation of the network industries need to progress further in order to enhance competition and efficiency. The ongoing reduction in unemployment should be further supported by reducing rigidities in labour market regulation.

Since the Opinion, Bulgaria has made good progress in adopting the acquis and more recently, has also made progress in gradually building up the administrative capacity to implement and effectively enforce the acquis.

Over the past year, Bulgaria has made further progress in the vast majority of the chapters of the acquis and is on track to complete the required legislative transposition before the planned date of accession if the current pace of progress is maintained.

Overall, Bulgaria has now achieved a reasonable degree of alignment with the acquis in the large majority of areas. It is also on track in developing adequate administrative capacity to implement the acquis in a considerable number of fields. Bulgaria has established most of the necessary institutional structures. Nevertheless, in some sectors, further efforts and resources are required to strengthen the capacities of these institutions and to ensure their effective functioning. In order to cover the remaining gaps, due attention should be given to the full and timely implementation of the strategies and action plans for the reinforcement of administrative capacity already approved in these areas.

In the field of internal market, Bulgaria has continued to make progress in most areas as regards the free movement of goods in terms of transposition of the acquis and the development of the administrative capacity. However, further efforts are required to develop the administrative capacity to implement the acquis on industrial products and as regards foodstuff and food safety. Mutual recognition clauses are still to be introduced into the Bulgarian legislation falling under the non-harmonised areas. Alignment of the legislation on public procurement needs to be completed. As regards free movement of persons, some progress was made in the field of mutual recognition of professional qualifications but work is still needed on the framework legislation for mutual recognition and with regard to the future co-ordination of social security systems. As regard the right for establishment and the freedom to provide services, efforts are required to unequivocally eliminate the remaining restrictions and discriminatory measures on foreigners despite some corrective actions. As regard financial services, major parts of the acquis on insurance remain to be transposed. In the area of free movement of capital, Bulgaria still has to adopt legislation on capital movements and payment systems. Efforts to improve the framework in the fight against money laundering should be maintained.

As regards company law, particular attention should be paid to the effective enforcement of industrial and intellectual property rights, in particular through strengthening border controls and improving co-ordination between the law enforcement bodies. In the area of competition, Bulgarian has further updated its legislative framework and further strengthened its administrative capacity. Sustained efforts are required in order to continue to improve the quality of its State aid enforcement.

Regarding agriculture, Bulgaria has continued to make good progress in the transposition process. Further strengthening of administrative structures has been noted. However, significant work is still needed in the veterinary field and in the setting up of the paying agency and IACS. With regard to fisheries, legal alignment has taken place according to schedule. However, further progress has to be made regarding the administrative and technical capacity for inspection and control.

As regard transport, Bulgaria has made steady progress in transposing the acquis in most sectors, however administrative capacity should be further strengthened. Further efforts are needed to align the inland waterway legislation. Particular attention should be devoted to improving the maritime safety record and to the building up and reinforcement of the necessary capacities and structures for Port State and Flag State control.

In the area of taxation, Bulgaria's indirect legislation is to a significant extent aligned with the acquis, notably as far as VAT is concerned. Further transposition is required as regards excise duties and direct taxation. Efforts should continue as concerns specifically interconnectivity with EU systems.

On social policy and employment, progress has continued in alignment with the acquis. Further efforts for the effective implementation of the transposed legislation need to be undertaken in particular in the areas of labour law, occupational safety and health, public health, anti-discrimination as well as equal opportunities for women and men. Administrative capacity needs to be strengthened, inter alia with regard to ESF management and implementation.

Regarding energy, Bulgaria is making good progress in its legislative alignment and in its preparation to the internal energy market. The restructuring and privatisation of the energy sector is progressing well but particular efforts are still needed to improve energy efficiency and the use of renewable energy. Bulgaria must continue to respect its commitments on nuclear safety, notably as regards closure commitments for certain units of the Kozloduy nuclear power plant, and to ensure a high level of nuclear safety in its installations.

Although a reasonable degree of alignment with acquis in the telecommunications has been reached, Bulgaria needs to adopt further implementing legislation and ensure that the regulatory body is strengthened.

Concerning regional policy and co-ordination of structural instruments, Bulgaria has made progress notably with regard to establishing the legal framework and designating institutional structures. However, considerable efforts are still needed to improve the administrative capacity in key Ministries and improving the capacity of other relevant bodies, such as the intermediate bodies, and other relevant players both at central and regional level. Priority must also be given to the setting up of efficient and integrated monitoring and evaluation systems as well as to further improving the financial management and control systems. Attention must be paid to observance of an ambitious planning schedule for the National Development Plan and to the full involvement of relevant partner organisations in this process.

With regard to the environment, Bulgaria has achieved a reasonable degree of alignment with the acquis and the necessary administrative structures are in place. However, further strengthening of the enforcement authorities notably at regional and local level is required as well as the provision of adequate financial resources for State and private sector investment.

In the area of consumer and health protection, a reasonable degree of alignment with the acquis has been reached in the area of safety related measures. However, further alignment is particularly needed with regard to the non-safety related measures and Bulgaria should ensure that the administrative structures in place can effectively enforce legislation and carry out market surveillance activities.

In the area of justice and home affairs, further good progress could be noted as regards the management of the future external borders. However, significant further efforts are needed to strengthen the law enforcement capacity and policy formulation in order to step up the fight against organised crime and corruption. Bulgaria needs to press ahead and dedicate adequate resources to fundamental reforms of the police and of the judiciary, including the reform of the pre-trial phase and the implementation of the strategies against crime. Overall, the full and timely implementation of the main strategies and action plans in the area of justice and home affairs, together with the entry into forceof the planned amendments to the legislation on the penal procedure, legal aid, asylum, mediation and forfeiture of criminal assets should address the bulk of the issues covered in this chapter.

Regarding customs, Bulgaria has achieved a high degree of legislative alignment and has improved its administrative capacity. Efforts should continue in the IT area as well as to further improve revenue-collection and controls.

Further progress has been made in strengthening financial control in Bulgaria. More effort is needed to ensure the protection of the EC financial interests and of the euro against counterfeiting, as to well as to further strengthening the administrative capacity to implement sound financial control systems.

Overall, the capacity of the law enforcement and regulatory bodies to ensure a level playing field within the internal market through effective implementation and enforcement of the acquis must be enhanced. The continued reinforcement of the judicial system and administrative structures in certain areas will require particular attention, notably as regards public procurement, competition and justice and home affairs. Bulgaria should devote more efforts and financial resources to make the necessary investments to apply the acquis, notably in agriculture (in particular in the veterinary field), transport and environment. Continued efforts are required to establish the necessary administrative capacity to ensure the sound and efficient management of EU funds, notably the Structural Funds.

In the accession negotiations, all 31 chapters have been provisionally closed. The commitments made in the negotiations are with a view to accession in 2007. Bulgaria is generally meeting the commitments that it has made during the negotiations although delays have been noted in specific areas.

Bearing in mind the progress achieved since the Opinion, the level of alignment and administrative capacity that Bulgaria has achieved at this point in time and its track record in implementing the commitments that it has made in the negotiations, and taking into account their preparatory work in progress, the Commission expects Bulgaria to assume the obligations of membership in accordance with the envisaged timeframe. In the period leading up to accession, Bulgaria needs to continue its preparations, in line with the commitments it has made in the accession negotiations.

Romania

Since the Commission concluded in its 1997 Opinion that Romania fulfilled the political criteria, the country has further consolidated and deepened the stability of its institutions guaranteeing democracy, the rule of law, human rights and respect for and protection of minorities. This trend has accelerated over the past year. Romania continues to fulfil the political criteria.

Progress was made to address the need for administrative and judicial reforms. A public administration reform strategy was launched in May 2004, covering the area of civil service reform, decentralisation and deconcentration, and policy co-ordination. A positive start was made to the reform of the civil service. The establishment of the Chancellery of the Prime Minister should help to improve policy coordination and consistency. The use of emergency ordinances was restricted to "extraordinary circumstances", but this has not yet led to a decrease of their use. The laws on the freedom of information and transparency in the legislative process should still be fully implemented. The revision of the Constitution in October 2003 contributed to streamlining the parliamentary process by giving both chambers primary responsibility for different types of legislation. Efforts to improve the policy-making and legislative process should continue. Further efforts are also needed to strengthen local and regional governance with a view to ensuring proper implementation of the acquis at those levels.

The management of court cases and the quality of judgments needs to improve. Official surveys confirm the possibility for the executive to influence the outcome of judicial proceedings. However, organisational and legislative changes introduced in Romania's judicial system should help to make it more independent and efficient. Their implementation on the ground is a matter of priority.

Corruption in Romania continues to be serious and widespread. Romania's anti-corruption legislation is generally well developed, but its ability to curb corruption will depend on the effective implementation of the law. In particular, additional efforts are required to ensure the independence, effectiveness and accountability of the National Anti-Corruption Prosecution Office. It should concentrate its resources on investigating high-level corruption.

Romania continues to respect human rights and fundamental freedoms and has made further progress in several areas. The introduction of national standards for child protection services and of strict rules on inter-country adoption, which appear to be in line with the UN Convention on the rights of the child, should further improve the protection of children's rights. As regards freedom of expression, the legal situation of journalists has improved but the economic situation of many mass media organisations remains precarious and further efforts are necessary to guarantee media independence. Although the restitution of agricultural land is almost completed, a more speedy and transparent approach is needed to further the restitution of buildings and religious property. Efforts to address the problems of ill-treatment in custody, trafficking in human beings and prison overcrowding should be sustained.

The Roma Strategy, which is explicitly aimed at addressing discrimination, is being implemented but de facto discrimination against the Roma minority remains widespread. The support for an inclusive approach to education is a positive development. The same encouraging trend has been noted in health care and employment.

The 1997 Opinion already acknowledged the substantial reform efforts undertaken by the Romanian authorities to transform their economy. Since the Opinion economic structure and performance have significantly improved. Macroeconomic stability has been achieved, profound economic reforms have been carried out while the Romanian authorities' commitment to the economic requirements of EU accession has been sustained.

Hence, it is concluded that Romania complies with the criterion of being a functioning market economy. Vigorous implementation of its structural reform programme should enable Romania to cope with competitive pressure and market forces within the Union.

Improvements can be made in sustaining macroeconomic stability and in deepening structural reforms. Priority should be given to preserve the momentum in disinflation and safeguard the sustainability of the external position by maintaining a prudent policy mix and by further reducing the deficit of the broader public sector. To achieve this, significant improvements in enforcing financial discipline, continuous adjustments of energy prices towards cost recovery levels and improved financial performance of public enterprises are vital. Fiscal sustainability needs to be strengthened by advancing expenditure reform and further improving tax compliance. The privatisation process should be accomplished, post-privatisation disputes be settled and non-viable enterprises more actively dismantled. In key sectors, such as energy, mining and transport, perseverance in restructuring and a more manifest strive for privatisation should go hand in hand. Substantial progress in the functioning of the judiciary and the public administration, including an even and predictable application of law, is required to create an enabling business environment with a level playing field.

Since the opinion, Romania has made good progress in adopting the acquis and more recently, has also made progress in gradually building up the administrative capacity to implement and effectively enforce the acquis.

Over the past year, Romania has made further progress in the vast majority of the chapters of the acquis and is on track to complete the required legislative transposition before the planned date of accession if the current pace of progress is maintained.

Overall, alignment with the acquis has reached a fair level in the large majority of areas. The administrative capacity has been strengthened in the majority of areas but there is still room for improvement since not all the necessary institutions are yet in place. In order to cover the remaining gaps, due attention should be given to the full and timely implementation of the strategies and action plans for the reinforcement of administrative capacity already approved in these areas.

In the area of internal market, Romania has continued to make progress with the transposition of legislation in the field of the free movement of goods. However, transposition of the public procurement legislation must be completed. In addition, practices which put Romania's commitment to open and transparent procurement procedures into question should be discontinued. Legislation has been further aligned in the area of free movement of persons, in particular as regards mutual recognition of professional qualifications and free movement of workers. Alignment needs to be completed as regards citizens' rights and administrative and training capacities should be enhanced in general. In particular in the field of financial services, Romania achieved substantial progress in freedom to provide services. Romania should continue to pay attention to the removal of identified barriers against the right of establishment and the freedom to provide services and to the development of the insurance and financial securities markets. While alignment with the acquis on free movement of capital has further improved, outstanding restrictions to capital movements and payments should be removed and the enforcement record of the National Office for the Prevention and Control of Money Laundering needs to be improved.

Romania has continued to make progress in transposing the company lawacquis as such and the acquis concerning the protection of intellectual and industrial property rights. However, the level of enforcement of such rights has not kept pace with this. Romania's legislative alignment on accounting and auditing should be completed. While the Romanian competition legislation is broadly in line with EC anti-trust rules, current proposals needed to complete alignment of the state aid legislation are being prepared. The enforcement record of the Romanian competition authority still needs to be considerably improved in state aid matters. Recent efforts in this respect need to be stepped up. Romania needs to ensure that restructuring aid given to steel companies is in line with the Europe Agreement.

Romania made significant progress to further transpose the agricultural, veterinary and phytosanitary acquis and has strengthened its administrative capacity. However, overall administrative and enforcement capacities should be further enhanced. Particular attention should be paid to reinforcing the SAPARD Agency and to establishing the necessary elements of a functioning IACS. Upgrading plans for non-complaint establishments in the veterinary sector should be introduced with no delay. Steady progress has taken place in the fisheries sector in terms of alignment and administrative capacity. However, sustained efforts are needed to recruit sufficient staff in the Fisheries Inspectorate and provide it with adequate inspection tools. The fishing database should be established.

Romania has continued to make progress with the transposition of the transportacquis and building up the administrative structures in the areas of road, rail and aviation transport. Alignment is fairly advanced in the maritime sector. The technical state of the inland waterway fleet should be improved.

Romania has made some progress in aligning with the acquis on taxation and particular attention should now be paid to completing alignment and strengthening administrative capacity. Transposition of the acquis on social policy and employment has continued. Future efforts should focus on completing legislative alignment in the area of labour law and on strengthening the Labour Inspectorate to ensure proper implementation in the area of health and safety at work. Due attention should be paid to the promotion of social dialogue and to the improvement of the health status of the population, which is well below the EU average. Administrative capacity with regards to ESF management should be strengthened as a matter of priority. Legislative progress in the energy sector should be matched by full implementation and increased administrative capacity, in particular with regard to the internal energy market structures. The restructuring of energy markets process needs to be completed.

Romania has performed steady progress as far as industrial policy is concerned, but the key challenge is its implementation as structural weaknesses limit the capacity for enforcement. Transparency of the privatisation process should be fully ensured. Progress has continued in the area of telecommunications with liberalising the telecommunications market and completing the transposition of the acquis.

As regards regional policy and co-ordination of structural instruments, progress has been made in preparing for the implementation of structural policies with the designation of the Managing and Paying Authorities and establishing their tasks and adoption of the 2004-2006 National Development Plan. Efforts need to be continued to bring the administrative capacity up to the level required in order for Romania to reap full benefits of the structural instruments. Environment is an area where Romania has achieved a good level of alignment with the acquis in most of the sectors, whereas implementation is, in general, still lagging behind. Further transposition should concentrate on completing the alignment in the areas of horizontal legislation, air quality, waste management, water quality, nature protection and a number of other sectors. Implementation of the transposed acquis remains a key challenge and, therefore, requires enhanced efforts. It is of utmost importance that the environmental administration at all levels obtains sufficient resources in order to cope with the increasing recruitment, training and equipment needs. Strategic planning, adequate investment and financing plans also have to remain in the focus of the public services in the field of environment.

Legislative alignment on consumer and health protection is well on track and Romania has made good progress as regards improvement of administrative capacity and the general co-ordination of market surveillance activities. These efforts should be maintained and consumer movement should be strengthened.

Legislative progress has been made in many areas of justice and home affairs and especially so in migration, asylum and judicial co-operation in civil and criminal matters. However, implementation capacity should be significantly strengthened in almost all areas, as should inter-agency co-operation. Many agencies and institutions involved in law enforcement are still affected by staff shortages, which will also require enhanced training capacity. The independence of the judiciary must be ensured on the ground. As regards the fight against corruption, implementation capacity should also be significantly strengthened and the existing legislation should be rigorously enforced. Romania should implement its current plans to fully address the above issues of concern and in particular increase its administrative capacity in the relevant institutions, implement an effective reform of the judicial system, recruits and train the necessary staff and take measures that have a significant impact on corruption.

Limited progress has been made in the area of customs and legislative alignment should be completed.Internal co-ordination improved.Furthermore, any customs duties and charges having equivalent effect with regard to export and import to and from the Community will have to be abolished. Romania has pursued its efforts in the financial control area. However, the legislative framework should be completed in the area of external audit and protection of the Communities' financial interests. Administrative capacity should be strengthened to implement sound financial system.

In a number of important sectors, the overall capacity of the public administration to implement and enforce the newly adopted legislation should be enhanced. Romania has started to address this issue through the comprehensive reform of its public administration. These concerns extend beyond the adoption of the acquis and also apply to the management of EU financial assistance. Furthermore, there are a number of areas where further efforts will be needed to complete the work, in particular as regards company law, competition policy, environment and justice and home affairs, customs and financial control.

In the accession negotiations, 27 chapters have been provisionally closed. Romania is generally meeting the commitments that it has made during the negotiations, although delays have been noted in specific areas.

Bearing in mind the progress achieved since the Opinion, the level of alignment and administrative capacity that Romania has achieved at this point in time and its track record in implementing the commitments that it has made in the negotiations, and taking into account their preparatory work in progress, the Commission expects Romania to assume the obligations of membership in accordance with the envisaged timeframe. In the period leading up to accession, Romania needs to continue its preparations, in line with the commitments it has made in the accession negotiations.

[1] Europos Komisijos rekomendacija dėl Turkijos pažangos siekiant narystės, KOM(2004) 656.