Opinion of the Committee of the Regions on the Communication from the Commission: Paving the Way for a New Neighbourhood Instrument
Date: 2003-10-09
Institutions: European Committee of the Regions
Subjects: Commonwealth of Independent States, EU programme, European Committee of the Regions, Mediterranean third countries, Russia, cross-border cooperation, enlargement of the Union, opinion

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Opinion of the Committee of the Regions:

— on the ‘Communication from the Commission to the Council and the European Parliament
Wider Europe — Neighbourhood: A New Framework for Relations with our Eastern and
Southern Neighbours’, and

— on the ‘Communication from the Commission: Paving the Way for a New Neighbourhood

Instrument’

(2004/C 23/10)

THE COMMITTEE OF THE REGIONS,

having regard to the Communication from the Commission to the Council and the European Parliament
on a Wider Europe — Neighbourhood: A New Framework for Relations with our Eastern and Southern
Neighbours (COM(2003) 104 final);

having regard to the decision of the European Commission of 13 June 2003 to consult it on this subject,
under the first paragraph of Article 265 of the Treaty establishing the European Community;

having regard to the decision of its Bureau of 8 April 2003, in accordance with the fifth paragraph of
Article 265 of the Treaty establishing the European Community, to instruct the Commission for External
Relations to draw up an opinion on the subject;

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

having regard to the Declaration of the Euro-Mediterranean Conference in Barcelona of 28 November
1995 and the Association Agreements of the European Union with Tunisia, Israel, Morocco, the
Palestinian Authority, Jordan, Egypt, Lebanon, Algeria, Syria and Libya;

having regard to the Conclusions of the Vienna European Council of December 1998 on the northern
dimension and the Partnership and Cooperation Agreement between the European Union and Russia and
the Partnership and Cooperation Agreements between the European Union and Ukraine, Moldova and
Belarus;

having regard to its Opinion on the Communication from the Commission on a Northern dimension for
the policies of the Union (CdR 107/99 fin) of 15 September 1999 (1);

having regard to its Resolution on Decentralised cooperation and the role of regional and local authorities
in the Euro-Mediterranean partnership (CdR 40/2000 fin) of 16 February 2000 (2);

having regard to the Action Plan for the Northern Dimension with external and cross-border policies of
the European Union (2000-2003) of 14 June 2000;

having regard to its Opinion on Regional and local authorities and the European Union’s strategy for the
Mediterranean (CdR 123/2000 fin) of 20 September 2000 (3);

having regard to the Conclusions of the Valencia Euro-Mediterranean Conference of 22 and 23 April
2002;

having regard to the Conclusions of the Luxembourg Ministerial Conference on the Northern Dimension
of 21 October 2002;

(1) OJ C 374, 23.12.1999, p. 1.
(2) OJ C 156, 6.6.2000, p. 47.
(3) OJ C 22, 24.1.2001, p. 7.

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having regard to the Progress report on the Communication from the Commission on the impact of
enlargement on regions bordering candidate countries — Community action for border regions
(COM(2002) 660 final) of 29 November 2002;

having regard to the Conclusions of the Copenhagen European Council of 12 and 13 December 2002;

having regard to its Opinion on the Report from the Commission: Explaining Europe’s enlargement
(CdR 325/2002 fin) of 13 February 2003 (1);

having regard to the Resolution of the European Parliament on the conclusions of the negotiations on
enlargement in Copenhagen of 9 April 2003;

having regard to the conclusions of the meetings of the General Affairs and External Relations Councils
of 15 April, 30 September and 18 November 2002 and of 24 February, 18 March and 14 April 2003;

having regard to the Conclusions of the European Conference of 17 April 2003;

having regard to the Conclusions of the mid-term Euro-Mediterranean Conference held in Crete on 26
and 27 May 2003;

having regard to the Commission Working Document on the Second Northern Dimension Action Plan,
2004-2006 (COM(2003) 343 final) of 10 June 2003;

having regard to the opinion on the Northern Dimension — Second Action Plan 2004-2006 (CdR 102/
2003 fin) of 9 October 2003;

having regard to the draft opinion (CdR 175/2003 rev. 2) adopted by the Commission for External
Relations on 5 September 2003 (rapporteur: Mr Chaves González, President of the Region of Andalusia
(ES-PES));

whereas:

1.

2.

3.

4.

5.

6.

new prospects are opening up for relations between the European Union and its future neighbouring
countries following the fifth enlargement of the Union;

for decades the countries of the southern and eastern Mediterranean have represented a priority area
for the EU on account of their strategic importance in political and economic terms and their human
and cultural proximity;

the EU’s relations with Russia, Belarus, Moldova and Ukraine will be of key importance to security
and stability in Europe following enlargement;

in the Laeken Declaration, the European Union undertook to guarantee peace and stability through
support for freedom, solidarity and diversity;

the European Union’s external relations should be strengthened by supporting the political and
economic reforms referred to in the Conclusions of the Copenhagen European Council;

political, economic, cultural and social cooperation between the EU and these regions must be
stepped up in order to prevent the emergence of new fault lines in Europe, by creating an area of
prosperity for these countries and the people of Europe as a whole;

(1) OJ C 128, 29.5.2003, p. 56.

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7.

8.

the development of regional and interregional cooperation is one of the most important foundations
for implementing the neighbourhood policy in these areas;

regional and local authorities have been pursuing cooperation policies as part of their own remit,
particularly in connection with cross-border cooperation with third country bodies,

adopted the following opinion at its 51st plenary session of 9 October 2003.

The Committee of the Regions

1. Wider Europe: accepting the challenge

1.1.
welcomes this timely and necessary initiative by the
European Commission, introducing a new political, economic,
social and cultural perspective in relations with our neighbours
to the south and east, especially at a time when the latest EU
enlargement procedure is generating new and ambitious
expectations among these countries;

believes that once the enlargement process is success-
1.2.
fully completed,
the EU is duty-bound to contribute to
the economic and social development of the neighbouring
countries, not only at European level, but also by redefining
the role it should play within the world order and reflecting
the on-going processes of globalisation;

1.3.
agrees with the Commission on the need to launch new
initiatives to promote regional and sub-regional integration in
certain of its surrounding areas, allowing interdependence
between these areas and the European Union to be created;

1.4.
considers that the European Union also bears a crucial
responsibility in promoting political and democratic stability,
security, sustainable development and social cohesion among
our neighbours, thereby creating a friendly neighbourhood
based on real cooperation at all levels and across all sectors;

1.5.
believes that fostering intercultural dialogue is a basic
ingredient of the new neighbourhood policy, and that it should
be reinforced through a series of measures demonstrating the
diversity encountered across Europe, focusing on respect for
human rights and the fight against discrimination, racism and
xenophobia;

1.6.
believes that the success of this new neighbourhood
policy should be rooted in broader involvement and commit-
ment on the part of civil society in the European Union and
the neighbouring countries;

1.7.
is convinced that glaring economic differences across
national frontiers can only undermine social order in the
immigration, trafficking,
affected regions and breed illegal
organised crime and other related problems;

considers that the achievement of a ‘ring of friends’
1.8.
around the European Union will have a beneficial effect on the
political stability and economic development of both the
Member States and the neighbouring countries. However, a
narrow focus on extending the internal market or security
aspects will not by itself ensure full cooperation between
countries. The European Union must also commit itself to
promoting cultural cooperation, sustainable development and
economic, social and territorial cohesion;

2. A new vision and a new offer

2.1.
considers that the neighbouring countries should be
offered worthwhile and encouraging prospects: continuing
with the present association and cooperation approach is not
enough. Stability, security and prosperity must be practical,
achievable goals for both the EU and its neighbours;

2.2.
therefore supports the creation of a common area
embracing the EU and its partners paving the way for a single
market, free trade, an open investment system, approximation
of legislation and the use of the euro as a reserve and reference
currency for trade with the neighbouring countries. The
ultimate purpose would be to apply the concept of ‘sharing
everything with the Union but institutions’, without thereby
barring the prospect of EU accession for neighbouring Euro-
pean countries if they meet the Copenhagen criteria;

2.3.
also urges a common approach to tackling the main
threats presently facing us as regards crime, terrorism, illegal
immigration and environmental challenges;

2.4.
advocates the development of a new political dialogue
based on a series of shared values and principles, specifically
concerning policies such as the environment,
transport,
research, education and culture. The dialogue should be
extended to society in general in order to counter stereotypes
and facilitate mutual understanding;

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highlights the existence of a range of policies forming
2.5.
part of this outlook which are of particular significance to
regions, and consequently:

2.5.1.
calls for a detailed examination of the problems
hampering trade in border regions, and supports harmonis-
ation of legislation and enhanced security as a means for
promoting trade;

2.5.2.
urges that special attention be given to the economic,
social and humanitarian impact on the EU’s regions and
municipalities of integration in the field of legal migration and
control of illegal immigration. There should be an overall
review of
the problems and opportunities arising from
migration flows;

2.5.3.
calls for a dedicated transport policy for these areas,
whose remoteness and particular communication problems
come on top of their combined land and sea borders;

2.5.4.
supports the introduction of energy models integrat-
ing security of EU supply, promotion of renewable sources
and conversion of energy sources presenting the greatest risks
for the environment and populations;

underlines the need for

2.5.5.
the new neighbouring
countries to commit themselves to measures ensuring environ-
mental protection and enhancing and safeguarding biodiv-
ersity;

advocates financial support on the part of

2.5.6.
the
European institutions, and more specifically the EBRD and
EIB, to promote local production systems which, based on
small and medium-sized enterprises, can ensure the success of
the planned political and economic reforms in the countries
concerned;

2.6.
demands that such policies be allocated adequate
financial resources so that they can take firm root and the
credibility of the proposed initiatives is not undermined;

supports the Commission’s proposal to apply a struc-
3.2.
tured and progressive approach to moving forward with
cooperation, based on mutual obligations and the ability of
each partner to meet their commitments, and the establishment
of specific targets against which results can be measured before
moving on to succeeding stages;

agrees with the establishment of country action plans
3.3.
to be negotiated between the European Commission, the
Member States and each of
the neighbouring countries.
However, the Committee of the Regions asks to be consulted
during the negotiating process for each of the action plans, so
that the active role of European regional and local authorities
in neighbourhood policy can be taken into account;

3.4.
believes that adoption of a common strategy towards
its neighbours is a vital step in the EU’s relations with its
immediate surroundings.
these
countries do not all start from the same point in their relations
with the EU, meaning that it is essential to distinguish two
differentiated lines of action: one for the Mediterranean and
the other for Russia and the NIS;

It notes, however,

that

Russia and the NIS

3.5.
argues for a new initiative which, founded on earlier
experiences (European Economic Area, Council of the Baltic
Sea States, Northern Dimension, etc.) and comparison with
other processes, such as the Mediterranean one, can upgrade
existing cooperation between the EU, Russia and the NIS;

3.6.
calls for increased cooperation between Russia and the
EU, using the Northern Dimension framework as a catalyst,
for which an appropriate financial framework must be created,
and consequently urges that the Northern Dimension forum
planned at the General Affairs Council held in Luxembourg on
9 April 2001 be set up and opened to local and regional
authority representatives;

3. Neighbourhood: different countries, common inter-
ests — a differentiated, progressive and benchmarked
approach

3.7.
supports restoring the dialogue between the EU and
Belarus in order to back democratic and economic change and
progress on human rights in the country, and to enable EU
local and regional authorities to offer their experience in this
regard;

3.1.
believes that if the objectives of the EU’s neighbour-
hood policy are to be attained, new common mechanisms and
structures must be introduced which go beyond the present
agreements, lending fresh impetus to existing processes;

3.8.
advocates a rapid and lasting solution to the Transdnie-
stria problem, which is the main obstacle to Moldova’s political
and economic progress and is a source of regional tensions;

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The Mediterranean

Common aspects

3.9.
points out that an essential instrument for relations
with the countries on the southern and eastern shores of the
Mediterranean already exists: the Barcelona Euro-Mediterrane-
an Conference, with its three political, economic and socio-
cultural aspects. Although the Euro-Mediterranean partnership
has not met the expectations created in 1995, it represents an
innovative framework for relations between the European
Union and the Mediterranean partner countries, with the
ambition of setting up a free-trade area by 2010;

3.10.
considers that the Barcelona Process should be further
developed by gradually integrating the Mediterranean countries
into all the European Union’s policies, in keeping with the
degree of mutual commitment;

considers that closer cooperation of this kind entails
3.11.
an intensified political dialogue, which is more necessary than
ever in the wake of the war in Iraq and the unresolved Israeli-
Palestinian conflict;

3.12.
supports the creation of the European Investment
Bank’s Facility for Euro-Mediterranean Investment and Partner-
ship (FEMIP), believing that this instrument should serve as a
launch-pad for a fully-fledged Euro-Mediterranean Bank;

is of

the view that

the European Union’s new
3.13.
neighbourhood policy towards the Mediterranean must be
underpinned by a strategic concept fully covering all the issues.
It therefore draws attention to the need to forge a real
intercultural dialogue promoting knowledge of ‘the Other’ and
mutual understanding, and fostering Mediterranean cultural
diversity;

3.14.
stresses that neighbourhood policy must be pursued
differently, depending on the relations and commitment of
each of the partner countries with the EU, and envisaging
increased aid for those fulfilling their commitments. In this
regard, it supports the Kingdom of Morocco’s request to have
special status vis-à-vis the European Union;

calls for backing for cooperation between European
4.2.
local and regional authorities and their counterparts in the
neighbouring countries to the south and east of the EU. Such
backing should adopt a ‘bottom-up’ approach to ensure they
are integrated into the new neighbourhood policy;

4.3.
asks that EU local and regional authorities be consulted
before new neighbourhood policy initiatives are proposed, in
keeping with the Commission’s White Paper on European
governance, particularly with regard to identification of objec-
tives, benchmarks and the timetable for implementing the
action plans for each country;

also calls for border regions to be involved in for-

4.4.
mulating, implementing and evaluating the action plans;

urges coordination and complementarity between
4.5.
cooperation initiatives funded by the European Union,
its
Member States and European regional and local authorities in
the neighbouring countries,
in order to ensure maximum
consistency and synergy of the resources deployed;

4.6.
calls for special attention to focus on border regions,
providing them with proper means and instruments, reflecting
the approach adopted by the November 2002 proposals for
Community action for border regions;

4.7.
proposes that an intensive and open debate on the
EU’s political limits be initiated, covering the different levels of
governance, especially local and regional levels, as a means of
ensuring that the diversity and uniqueness of geographical
Europe is recognised;

4.8.
restates the essential part that European regional and
local authorities are taking within the various cross-border
and interregional cooperation processes as key players in
decentralised EU cooperation;

4. Broader and more proactive involvement of local and

regional authorities

calls in general for the active involvement of local and

4.1.
regional authorities in this new policy, and in particular:

4.9.
calls for a support instrument to be set up for regional
and local authorities, especially in border regions, so that they
can effectively discharge their responsibilities in the field of
integration and social awareness regarding immigrants. In this
connection,
it advocates including the local and regional
dimension in the EU’s migration policies;

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Russia and the NIS

4.10.
urges the establishment of a forum for local and
regional authorities to assess the level of political and adminis-
trative decentralisation in Belarus, Moldova, Russia and Ukrai-
ne, so that the local and regional players from the EU and
these countries can draw together strategically;

4.11.
calls for regions to be involved in shaping transport
infrastructure schemes so that border areas can be better
integrated and structured;

calls for the Euro-Mediterranean Foundation to be an
4.18.
overarching body embracing all national, regional and local
initiatives throughout the European Union and the southern
and eastern Mediterranean. The Foundation should act as a
catalyst and forum for dialogue between the Christian, Islamic
and Jewish cultures and serve as a model for involving local
and regional authorities from around the Mediterranean by
drawing together civil societies. It accordingly emphasises the
importance of pursuing a specific information and awareness
programme actively involving regional and local authorities
and targeting Mediterranean populations.

4.12.
urges that backing be given to a programme to
replace nuclear energy with more environment-friendly models
and to encourage new, renewable sources of energy;

5. A new neighbourhood instrument

advocates increased cross-border cooperation in cus-
4.13.
toms control and management as a means of preventing
people-trafficking and normalising trade in goods;

5.1.
supports the strategy and guidelines contained in the
Commission Communication: Paving the way for a New
Neighbourhood Instrument;

The Mediterranean

4.14.
renews its call, pursuant to the Barcelona declaration
and the conclusions of the Stuttgart conference and the
Cologne European Council, for regional and local authorities
to be more closely involved as frontline players in establishing
an area of peace, stability and progress in the Mediterranean;

repeats that this requires the establishment, within
4.15.
the Euro-Mediterranean institutional framework, of a regional
and local body which would bring together regional and local
authorities from both sides of the Mediterranean, and which
would promote the partnership and develop programmes to
be carried out throughout the Mediterranean;

regrets that, although the Barcelona declaration envis-
4.16.
aged that city and regional representatives would hold meet-
ings to take stock of their problems and exchange experiences,
no such meetings have yet been held; calls, therefore, for them
to begin this year;

5.2.
considers that the measures proposed by the Com-
mission should ensure the necessary coordination between
the various programmes for cross-border and interregional
cooperation between the European Union and the neighbour-
ing countries. The lack of such coordination, as highlighted
by the Committee of the Regions and other Community
institutions, has hitherto blocked the cooperation which is
fundamental for contributing to the harmonious development
of neighbouring countries;

considers that this new instrument should strengthen
5.3.
current methods of cross-border and interregional cooperation
so as to enable local and regional authorities to participate
more actively in such cooperation;

5.4.
agrees with the Commission that the new neighbour-
hood instrument should have a single approach to cooper-
thus facilitating the joint programming of actions
ation,
between the administrations of
the European Union and
neighbouring countries;

4.17.
reiterates its request for decentralised Euro-Mediter-
ranean cooperation to be made one of the pillars of the
Barcelona process, and also requests that, on behalf of
the European Commission, regional and local authorities
administer the Community financial resources earmarked
for the Mediterranean partner countries under decentralised
cooperation;

5.5.
stresses the importance of the participation of local
and regional authorities in shaping, applying and further
developing the new neighbourhood instrument. To this end it
calls on the Commission to organise conferences and seminars
explaining and analysing the fruitful cooperation being carried
out, with their own resources, by local and regional authorities
across borders;

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supports the establishment of the new neighbourhood
5.6.
instrument in two phases. With regard to the first phase
(2004-2006), the Committee stresses that it is important for
the neighbourhood programmes to be up and running at the
beginning of 2004. By the same token, it considers that the
Commission should take account of the programmes that EU
regions and municipalities are in the process of developing
with administrations in neighbouring countries, supporting
pioneer cooperation initiatives such as the Andalusia-Morocco
cross-border Development Programme financed by the govern-
ments of Andalusia and Morocco;

5.7.
stresses that, besides the cross-border cooperation
linked to Interreg III A, the new instrument should cover the

interregional cooperation provided for in Interreg III B. In this
connection, and for those specific areas which have borders
with neighbouring countries, the Committee calls for the
launch of programmes to tackle integrated development, with
a special focus on spatial planning, the environment, SMEs,
employment, economic and social policy, culture, and the
management of migratory flows, with special attention to
safety, reception and integration;

5.8.
with regard to the second phase, calls for the partici-
pation of the Committee of the Regions in the formulation and
definition of the post-2006 new neighbourhood instrument,
involving it in the process of discussion and approval.

Brussels, 9 October 2003.

The President

of the Committee of the Regions

Albert BORE