European Parliament resolution on the implementation of the Common Strategy of the European Union on Russia (2000/2007(INI))
Date: 2000-12-13
Institutions: European Parliament
Subjects: EU programme, EU relations, Russia, administrative reform, cooperation policy, foreign policy

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Wednesday 13 December 2000

COUNCIL
COMMON POSITION

AMENDMENTS
BY PARLIAMENT

(Amendment 15)
Article 12(1), first paragraph

1. Member States shall bring into force the laws, regulations
and administrative provisions necessary to comply with this
Directive before 1 January (*). They shall forthwith inform the
Commission thereof.

1. Member States shall bring into force the laws, regulations
and administrative provisions necessary to comply with this
Directive before 1 January (*). They shall forthwith inform the
Commission thereof.

(*)

Five years from the beginning of the year following that in which
the Directive is adopted.

(*) Twenty-four months from the beginning of the year following

that in which the Directive is adopted.

11. Common strategy on Russia

A5-0363/2000

European Parliament resolution on the implementation of the Common Strategy of the European
Union on Russia (2000/2007(INI))

The European Parliament,

$ having regard to the Common Strategy of the European Union on Russia adopted by the European

Council at Cologne on 4 June 1999 (1),

$ having regard to the work programmes of the Finnish, Portuguese and French Council Presidencies,
1999-2000, for the implementation of this strategy, and to the reports on implementation submitted
by the Finnish and Portuguese Presidencies,

$ having regard to the Partnership and Cooperation Agreement (PCA) between the European Union and

Russia, which entered into force on 1 December 1997,

$ having regard to the conclusions of the European Councils at Cologne (3-4 June 1999), Helsinki

(10/11 December 1999) and Santa Maria da Feira (19/20 June 2000),

$ having regard to the Commission communication ‘A Northern Dimension for the Policies of the Eur-
opean Union’ (COM(1998) 589 $ C4-0067/1999) and to the Action Plan for a Northern Dimension
in external and cross-border policies, endorsed at Feira,

$ having regard to the conclusions of the General Affairs Council of 10/11 July 2000,

$ having regard to the Commission proposals to the Biarritz European Council of 13/14 October 2000

to guarantee long-term EU energy independence,

$ having regard to the joint statements of the EU-Russia summits at Helsinki, on 22 October 1999, and

at Moscow, on 29 May 2000,

$ having regard to Russia’s Medium-Term Strategy for Development of Relations Between the Russian

Federation and the European Union 2000-2010, presented at the Helsinki EU-Russia summit,

$ having regard to the Commission evaluation of the TACIS Country Programme in Russia on behalf of
the EC-SCR Evaluation Unit, January 2000, and the Commission evaluation of the TACIS European
Senior Service Network, October 1999,

$ having regard to the NATO-Russia Founding Act, adopted at Paris on 27 May 1997,

(1) OJ L 157, 24.6.1999, p. 1.

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$ having regard to its numerous resolutions on the war in Chechnya,

$ having regard to its resolution of 4 May 1999 (1) on the Commission communication ‘A Northern

Dimension for the Policies of the European Union (COM(1998) 589 $ C4-0067/1999)’,

$ having regard to its recommendation of 5 May 1999 to the Council on the Common Strategy towards

the Russian Federation (2),

$ having regard to Rule 163 of its Rules of Procedure,

$ having regard to the report of the Committee on Foreign Affairs, Human Rights, Common Security
and Defence Policy and the opinion of the Committee on Citizens’ Freedoms and Rights, Justice and
Home Affairs (A5-0363/2000),

A. whereas comprehensive cooperation between the European Union and Russia represents a decisive
contribution to security and stability on the European continent now that the division of Europe has
been overcome; whereas particular importance is therefore attached to the EU strategy for a deeper
relationship with Russia and to the action plan,

B. whereas recognition of the democratic order and protection for human and minority rights forms the
basis for such a deeper relationship; whereas the development and consolidation of democracy and the
rule of law in Russia must therefore have priority,

C. whereas the Union’s relationship with Russia is crucial for the pursuit of social, economic and political
security in Europe; whereas a range of shared values, against which Russia also wishes to be measured,
makes it possible to significantly deepen this relationship,

D. whereas the Member States and the TACIS Committee are bound by the Common Strategy; whereas
Member States should align their policies towards Russia with the Common Strategy; whereas close
coordination between EU Institutions and Member States is essential,

E. whereas, according to Article 23(2) TEU, all decisions on the implementation of the Common Strat-
egy, regardless of which pillar they come under, should be taken by qualified majority vote in the
Council,

F. whereas the adoption of the Common Strategy was not accompanied by any decision to match the

objectives pursued with an increase in the available financial resources,

G. whereas TACIS remains virtually the only EU instrument available in the Russian Federation; whereas
the influence of TACIS on socially and economically balanced development in the country is minimal;
whereas the significance of expanding education and science programmes for democratic consolida-
tion has not been sufficiently considered to date,

H. whereas the appropriations available for Russia under the TACIS programme should primarily be
focused on the creation and stabilisation of civil society and on checks and balances mechanisms in
this still unstable society,

I. whereas support for the establishment and full implementation of the rule of law and the proper
functioning of democracy, good governance in federalism and the development of a civil society
should be a major issue to be addressed in the TACIS programme,

J. whereas the European Senior Service Network (ESSN), through which retired EU managers and civil
servants have transferred knowledge and know-how to the newly privatised sector in Russia in a direct
and speedy manner, has proved to be a highly efficient TACIS programme, but this programme is not
receiving the funds that it merits,

(1) OJ C 279, 1.10.1999, p. 31.
(2) OJ C 279, 1.10.1999, p. 224.

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K. whereas the funds available for Russia under the TACIS programme should be focused on projects
which have proved to be effective or where the cost/benefit expectations in social, democratic or
economic terms are high, using fully the provisions under the new TACIS regulation on the dialogue
mechanism,

L. whereas the ability of the Commission Delegation in Moscow to play an effective role in the context
of EU assistance programmes in Russia is severely constrained by long bureaucratic procedures and
misunderstandings caused by various factors such as over-centralised decision-making procedures, on
both sides resulting in delays and leading to non-optimal decisions,

M. whereas Russia and the Union not only have great common interests in trade, investments, raw mate-
rials, energy, science, culture, the mass media, technology, infrastructure, environment, nuclear safety
and the fight against organised crime, but also in seeking a certain degree of convergence in their
respective foreign, security and defence policies, particularly in the Balkans, the South-Caucasian
republics, Central Asia and the Middle East,

N. whereas the common strategy with Russia includes a series of joint instruments for a European secur-
ity concept, forms of dialogue, joint conflict prevention measures and disarmament talks, including
special mechanisms to develop joint initiatives with regard to specific third countries and regions
and, hitherto, very little has been done to underpin these possibilities with specific actions,

O. whereas the EU Northern Dimension policy has hitherto been underused, even though it includes
important approaches to issues of cooperation with Russia in a spirit of partnership with regard to
the enclave of Kaliningrad and cross-border cooperation between Russia and the Baltic States; whereas
this policy should be fully utilised in promoting prosperity, stability and security and in protecting the
environment in the Baltic Sea and Barents regions and in the Arctic; whereas the Kaliningrad region in
particular should not remain an impoverished and unstable enclave within an enlarged Union,

P. whereas developing the huge oil and gas resources in North-West Russia and the Barents Sea area and
developing the infrastructure for transporting the oil and gas to the European market would, as a part
of the Northern Dimension policy, contribute significantly to the security of energy supply to the EU;
whereas such development must, however, take account of the rights of indigenous peoples and
include environment protection measures,

Q. whereas the safety of Russian, EU and third country citizens as well as nature and in particular the
oceans demand urgent action to bring the hazards represented by poorly maintained nuclear installa-
tions, submarines and waste dumps in North-Western Russia under control and whereas the ‘Kursk’
tragedy is a stark reminder of these hazards; whereas cooperation activities in this field require an
appropriate legal base, appropriate resources as well as improved willingness and interest on the Rus-
sian side and further coordination between donors,

R. whereas the accidents of the ‘Kursk’ nuclear submarine and the Moscow TV tower demonstrate the
need to modernise Russia’s technological infrastructure, and therefore to extend the opportunities for
cooperation,

S. whereas under the US disarmament programme Cooperative Threat Reduction (CTR) specific pro-
grammes for dismantling ballistic missile submarines were developed, as well as possibilities for an
extension of CTR to general-purpose submarines that pose even larger environmental threats to
Northern Europe; whereas the US Congress is only willing to provide half of the funding necessary
for CTR continuation;

T. whereas the EU has carried out a number of studies to determine the extent of the radiation hazard in

North-West Russia and the best way of tackling the problem,

U. whereas the EU is considering the possibilities under the new TACIS regulation for funding or co-

funding large investment projects to reduce these hazards,

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V.

whereas the proposals put forward in the Russian-Lithuanian Nida Initiative are of great value to the
Northern Dimension Action Plan,

Wednesday 13 December 2000

W. whereas the President of the Commission has proposed strengthened EU/Russia energy cooperation
at the Biarritz European Council, guaranteeing EU energy independence while offering Russia a key
role in the EU future strategy on energy supply,

X.

Y.

Z.

whereas Vice-Prime Minister Khristenko and Foreign Minister Ivanov have responded positively to the
Commission’s energy proposals, provided that Russian efforts to increase energy production and
export to Europe are supported by European investment and technology transfers, particularly in
the Barents Sea, Komi region and the Caspian Sea basin,

whereas the joint declaration between the Community and the three Caucasus republics issued at
their summit meeting of 22 June 1999 established a clear link between continued EU support and
conflict resolution, and whereas it is to be hoped that the Community will make decisive use of this
momentum in order to deploy its considerable instruments and resources to play an even stronger
role in the various peace efforts,

whereas President Putin and the new government have initiated important reforms to reinforce the
Federation; whereas questions remain, however, as to respect for the decentralised character of the
Federation and the constitutional role of federal courts; whereas the implementation of these reforms
and their coherence will therefore have to be judged at a later stage,

AA. pointing out, in this regard, that the independence of the judiciary must be strictly enforced being

one of the prerequisites of a modern state,

BB. whereas the Finnish Presidency initiated structured co-operation between the Union and Russia in the
field of justice and home affairs at the EU-Russia Summit in Helsinki (22 October 1999) and an EU-
Russia Conference in Moscow (16 December 1999) on co-operation in the combat against organised
cross-border crime,

CC. whereas Russian civil society suffers from a tendency for national TV operations to be concentrated

in few hands, leading to a one-sided supply of information,

DD. whereas Russian civil society is in a new process of formation following a long period of totalitarian-
ism and absence of freedoms and suffers from important deficiencies and restrictions in the legal,
political and economic system, with churches and religious (charity) organisations being particularly
vulnerable as to their registration, taxation, property and freedom of access to the public sphere,

EE. whereas it is EU policy to support regional co-operation as an instrument to create a just interna-
tional order and good neighbourly relations based on common principles, norms and values,

FF. whereas, however, it is necessary to ensure that co-operation is entirely voluntary and that no coun-
try is subjected to any kind of undue pressure when it considers, agrees to or implements co-opera-
tive arrangements,

GG. whereas, according to a declaration by the CIS Summit in Moscow on 21 June 2000, a free-trade
area within the CIS should be set up before the end of 2000, but no measures have yet been
embarked on in this connection,

HH. whereas in connection with its military campaign in Chechnya, Russia has contravened principles of
humanitarian law and failed to honour commitments made in the frameworks of the OSCE and the
Council of Europe;

II.

whereas,
conduct of Russian troops in Chechnya are emerging,

in the absence of a full and independent investigation, new appalling reports as to the

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JJ.

whereas following its resolution of 18 November 1999 (1) proposing to freeze TACIS assistance
except for projects promoting democratic values, and following the invitation to suspend the ratifica-
tion of the EU $ Russia Scientific and Technological Cooperation Agreement and the relevant deci-
sion of principle at the Helsinki European Council, these measures were taken; whereas the practical
effects of these measures unfortunately have been limited and their impact on Russian policy-making
probably insignificant; whereas the restrictive measures are now being revoked;

KK. whereas generally little coherence exists between the policy responses towards Russia of the EU and

its Member States and those of other key actors like the USA and Japan,

LL. whereas, given that Russia is in a political union with Belarus, it is appropriate in the interest of
Russia’s democratic legitimacy for President Putin and the Russian government to point out clearly
and consistently the comprehensive need for democratic progress and reforms in Belarus, not least in
the light of the report submitted by the parliamentary troika from the EU, the Council of Europe and
the Organisation for Security and Cooperation in Europe (OSCE) in Minsk on 16 October 2000,

MM. whereas it is essential to continue to contribute to the International Science and Technology Center
(ISTC) in Moscow, with the aim of helping Russia to make the best use of the knowledge of its
scientists and prevent the transfer of know-how on weapons of mass destruction to states represent-
ing an international safety risk,

NN. whereas the lack of information on the EU, its policies and the enlargement process may be a source
of suspicion and misunderstanding while the possibilities of in-depth information to political and
opinion makers as well as to the large public (e.g. by European radio and television broadcasting in
Russian language) are often neglected,

OO. whereas study exchanges between Russian and EU universities are of great importance for future
seriously impede such

mutual understanding and whereas existing (Schengen) visa regimes
exchanges,

On Principles and Instruments

Affirms its determination to continue the EU-Russia strategic partnership with an optimal depth and

1.
width, in spite of crises and setbacks;

Stresses that the EU Strategy towards Russia should concentrate on fostering the process of demo-
2.
cratisation of state and society, a political system based on the rule of law and respect for human rights,
the freedom of the press, as well as the federalisation of the Russian administration;

3.
Expresses its concern about the case of the journalist, Grigori Pasko, after the decision of the Military
section of the Supreme Court to retry him before a Military court in Vladivostok on charges of espionage
and high treason because of his reports on the dumping of nuclear wastes in the Sea of Japan by the
Russian Navy;

Supports a double-track strategy of collaborating with Russia in order to strengthen the rule of law
4.
and the democratic structures of State and society using all the instruments at its disposal, e.g. the Com-
mon Strategy, the Action Plan, TACIS and to encourage the Russian side to contribute its part to the
success while, whenever necessary, explicitly condemning human rights violations and the disproportion-
ate use of force, as in the case of Chechnya;

5.
Calls upon the Russian Government to give free and effective access to the International Committee
of the Red Cross and ECHO to all places of detention in Chechnya and neighbouring areas, notably in the
alleged ‘filtration camps’, in order to ensure treatment of all detainees in conformity with international law;

Supports the conviction rising amongst Russian authorities that no purely military solution to the

6.
Chechen conflict exists and that war criminals should be brought to justice;

(1) OJ C 189, 7.7.2000, p. 243.

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Encourages the Russian Government and the State Duma to continue investigating all the human

7.
rights violations that have taken place during the conflict;

Strongly urges the Commissioner in charge of humanitarian operations to visit Chechnya without
8.
further delay in order to carry out an accurate and thorough assessment of the needs of the civilian popu-
lation in terms of humanitarian aid;

Asks the Council to be aware of the role the Union has to play in the restoration of the rule of law,

9.
living conditions and stability in the Caucasus region;

10.
Further to its assent to the ratification of the Scientific and Technological Co-operation Agreement
with Russia, calls on the Commission and the Member States to promote science and technology projects
forging close links between the Union and Russia;

11.
Demands that the budgets destined to Russia be monitored for efficiency of use and if after the
appropriate adjustments have been made it is judged necessary, the budget should be adapted both to
the objectives of the Common Strategy and to the priority that Russia has been given as a real strategic
partner of the Union;

Calls on the Commission to turn the EU Northern Dimension policy into a coherent programme

12.
with its own budget line;

13.
Calls on the Commission, in the context of the Northern Dimension, to create a special plan for
regional and cross-border cooperation with Russia for the Kaliningrad region and the eastern border of the
Baltic States, in order to bring about a solution to the border treaties situation and at the same time to
make the Kaliningrad enclave into a pilot region for cross-border cooperation with Russia;

14.
Calls upon the Commission and the Commissioner responsible for external relations, who in accor-
dance with declaration 32 to the Amsterdam Treaty should be Vice President of the Commission, to take
very determinedly the Commission’s role as a policy initiator, with the High Representative for the CFSP
being responsible for co-ordination with the Council and the Member States;

15.
Calls on the Commission and the Council to pay special attention to the Medium-Term Russian
Strategy for the Development of Relations between the Russian Federation and the European Union
(2000-2010);

On TACIS and Cooperation on Specific Issues

16.
Calls on the Commission to direct existing TACIS support $ particularly in the creation and rein-
forcement of the structures of civil society, independent media and social security structures $ towards
close co-operative partnership rather than assistance, as well as to reinforce support for the achievement of
a state based fully on the rule of law, a functioning democracy, and the practices of a democratic federal
state, taking account of its highly efficient European Senior Service Network;

17.
Calls on the Commission to make greater provision for the social dimension of the TACIS pro-
gramme, addressing the most deprived people, the elderly, orphans, juvenile delinquents and young people
by seeking special ways of promoting and strengthening cooperation in programmes designed to increase
social protection and combat poverty;

Calls on the Commission to devote particular attention to projects which will have tangible long-

18.
term economic effects for Russia;

Calls on the Commission to ensure that

19.
instruments and programmes for cooperation and
exchanges between NGOs and groups within civil society, universities, etc., are introduced swiftly and
effectively in order to promote shared values, the exchange of ideas and experiences and the development
of an open society;

20.
Urges the Commission and the Russian government to jointly explore further ways of co-operating
in eliminating nuclear hazards, to find or create appropriate legal bases and to pursue rapid conclusion of
the negotiations on an international agreement establishing the Multilateral Nuclear Environmental Pro-
gramme in the Russian Federation (MNEPR);

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Calls on the Commission and the Council to significantly contribute to joint efforts as to the

21.
decommissioning of obsolete submarines in Russia’s Northern Fleet;

22. Welcomes the establishment of the ‘Kursk Foundation’ initiated by the government of the Russian
Federation, which will combine Russian and international expertise to neutralise all potential environmen-
tal dangers emanating from the submarine;

23.
Calls on the Commission and the Council to investigate the possibilities for increasing assistance in
the storage of nuclear waste on the Kola Peninsula, as well as in upgrading nuclear reactors according to
the standards of the IAEA in case no other alternatives exist;

24. Welcomes the Commission’s proposals as to greater co-operation on rehabilitating production and
transport installations in the Komi and Caspian Sea regions, as well as to exploit the gas reserves in the
Barents Sea; considers that the new energy strategy should be planned and executed in close co-operation
with all countries concerned;

Calls on the Commission to extend EU support to European law centres at Russian universities and
25.
academic institutes, and to promote awareness of the effects of EU-enlargement on the structure of com-
mercial and other relations between Russia and the CEECs;

Calls on the Commission and the Member States, through their bilateral programmes, to raise envir-

26.
onmental awareness and to help Russia prioritise such policy;

Calls on the Commission to investigate the possibilities of promoting Russian-language radio and

27.
television programmes on the EU, its policies and its enlargement in the Russian Federation;

28.
Calls on the Commission and the Council to adapt current (Schengen) visa policies in order to
provide Russian students with sufficient time to participate in exchange programmes, as well as to con-
siderably broaden opportunities to study in EU Member States;

Calls on the Commissioners responsible for enlargement and external relations to initiate economic

29.
cooperation projects involving Kaliningrad and surrounding regions;

Requests Russian, Lithuanian and Polish authorities to co-operate with the Commission in order to
30.
find creative solutions to the legal and juridical problems that complicate the design of an appropriate
regime for the movement of goods and people between an enlarged Union, Kaliningrad and other regions;

Calls on the Commission to continue TACIS support to train civil servants in the field of justice and

31.
home affairs, so as to strengthen the rule of law and the independence of the judiciary;

On the Delegation of the Commission in Russia

32.
Calls on the Commission to upgrade its Delegation in Russia in order to carry out its assistance
programmes more effectively, taking into account the specific features of the Union’s relationship with
Russia;

33.
Calls on the Commission to investigate the possibilities for a significant delegation of competencies
to this Delegation, including an increased use of lump sum budgets in particular for civil society and
democratisation projects, to the Delegation of the European Commission in Russia, whereas the Delegation
should have sufficient EU staff to manage these budgets;

On Administrative Reforms in Russia

34.
Supports President Putin’s efforts to restore the authority of the state and to reform the federation;
however, pleads for a proper balance between the legislative and executive powers and for the application
of proper methods which inter alia respect the mandate of the federal courts and the principle of decen-
tralised government, instead of strengthening presidential powers;

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Applauds the tax reforms, which are crucial for achieving and sustaining balance in the public

35.
finances;

Supports all efforts on the part of Russia and calls for active EU participation with a view to ensur-
36.
ing that effective action is taken to combat organised crime and corruption, which is endemic in Russia
and creates obstacles to the country’s economic development and its relations with the European Union;

37.
Calls on Russia to complete its ratification of, and to fully implement, the international conventions
listed in the EU Action Plan on Common Action for the Russian Federation on Combating Organised
Crime;

Points to the fact that Russian criminal law on money-laundering needs revision and more effective

38.
implementation;

39.
Calls on the Russian government and the Duma to provide an adequate and fair legal framework
for the freedom of activity, registration and taxation of NGOs and churches, and to guarantee free access
for religious organisations to the public sphere;

On Foreign Policy

Considers that more of a shared perspective between EU and Russian foreign policies should be

40.
sought on the basis of common principles and responsibilities;

Calls on the Commission to draft a South-Eastern Dimension policy for the Caucasus in which the
41.
interests of Russia and the new States in the Caucasus region, which emerged following the disintegration
of the Soviet Union, are duly taken into account, in order to restore a stable and just international order in
the area;

Urges the Russian Government to suspend the implementation of the new visa regulation with

42.
Georgia which would deliver a crippling blow to the Georgian economy and spoil bilateral relations;

Supports regional cooperation that is genuinely voluntary, mutually beneficial and compatible with

43.
the legitimate interests of third countries;

Calls on Russia to ratify the already signed border agreement with Lithuania and to sign and ratify

44.
the border agreements with Estonia and Latvia, which have been initialled;

Regards Russia as an important partner in the Balkans and calls on it to play a construction role in

45.
the development and stabilisation of that region;

46. Welcomes the Presidency Conclusions of the Feira Council, underlining that Russia as well as other
countries may be invited to take part in EU-led operations;

Requests the Council to study Russian proposals aimed at increasing shared security on the conti-

47.
nent while maintaining full solidarity and common security within the framework of NATO;

Calls on the Commission and the Council to continue their support for Russia’s pursuit of member-

48.
ship of the WTO;

Requires to be consulted before the Council proposes to the European Council a prolongation of

49.
this Common Strategy or any review or adaptation of it;

*

*

*

Instructs its President to forward this resolution to the Council, the Commission, the governments

50.
of the Member States, the Russian State Duma and Federal Government.