Opinion of the European Economic and Social Committee on "The role of civil society in the new European strategy for the Western Balkans"
Date: 2003-12-10
Institutions: European Economic and Social Committee
Subjects: ESC opinion, Western Balkans, association, cooperation policy, democratisation, social policy

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Opinion of the European Economic and Social Committee on ‘The role of civil society in the new
European strategy for the Western Balkans’

(2004/C 80/36)

On 8 April 2003, in connection with the activities of the Italian presidency of the European Union, the
permanent representative of Italy to the European Union requested by letter an exploratory opinion of
the European Economic and Social Committee on ‘The role of civil society in the new European strategy
for the Western Balkans’.

The Section for External Relations, which was responsible for preparing the Committee’s work on the
subject, adopted its opinion on 21 November 2003. The rapporteur was Mr Confalonieri.

At its 404th plenary session (meeting of 10 December 2003), the European Economic and Social
Committee adopted the following opinion by 110 votes to one, with one abstention.

1. Background

1.1.
The raison d’être of this document comes from the
Italian presidency’s requests for exploratory opinions and
specifically an exploratory opinion on the role of civil society
in the new European policy towards the Western Balkans, with
the aim of establishing how civil society can contribute to
implementing the Thessaloniki agenda in the countries of the
region and the European Union (1).

Reference should be made here to the Commission
1.2.
Communication of 21 May 2003 on The Western Balkans and
European Integration (2). The EESC would also stress its
continuing commitment to supporting the creation and organ-
isation of associations and bodies representing civil society
and of non-governmental organisations, which are crucial to
the development of democracy at regional, national and
European level (3).

2.

Introduction

2.1.
The role of organised civil society within the new
strategy for the Western Balkans is to guarantee, over the

complex and structured process of the five countries’ cohesion
and integration with the EU, the realisation of specific objec-
tives relating to social development (4) that are important for
the Balkans and the whole of Europe.

The Thessaloniki agenda (5) sets out the basic action
2.2.
areas which governments should focus on: support for building
democratic institutions; economic development;
the fight
against organised crime and corruption; and regional inte-
gration and political cooperation, both within the region and
with the EU.

The European Commission proposal presented and
2.3.
ratified at the Thessaloniki summit (6) sets out the strategy for
consolidating the Stabilisation and Association Process (SAP)
and moving towards pre-accession agreements with the Balkan
countries, on the basis of mechanisms that have proved
successful with the other candidate countries. The politically
innovative element of Thessaloniki is that it enhances the
cooperation programme by establishing partnerships for Euro-
pean integration (7).

(1) The countries of

the Western Balkans are Albania, Bosnia
the Former Yugoslav Republic of
and Herzegovina, Croatia,
Macedonia, Serbia and Montenegro; the area also includes the
Kosovo region.

(2) Communication from the Commission to the Council and the

European Parliament — COM(2003) 285 final.

(3) For more on the context of central and south east Europe, see
the EESC opinion on Economic and social consequences of
enlargement in the candidate countries (OJ C 85, 8.4.2003, p. 65)
and the EESC opinion on Promoting the involvement of civil
society organisations in south east Europe — Past experiences
and future challenges (OJ C 208, 3.9.2003, p. 82).

(4) On the subject of social development, cf.

the Copenhagen
Declaration, Commitments 1-4. C. Turi, The international community
and social development: recent trends. In: La Comunità Internazionale,
quarterly publication of the SIOI (Italian Society for International
Organisation), Vol. LVI, No 1, 2001, pp. 53-74, Editoriale
Scientifica, Naples 2001.

(5) The Thessaloniki agenda for the Western Balkans: Moving towards
European integration. General Affairs and External Relations
Council, 16.6.2003.

(6) EU — Western Balkans Summit — Declaration — Thessaloniki,

External Relations Directorate-General, 21.6.2003.

(7) Assistance policies for the Balkans focus on cohesion objectives,
going beyond the reconstruction strategy, as suggested by the
document of the Greek presidency Working Document: Greek
Presidency Priorities for the Western Balkans of January 2003.

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In this new framework for relations and cooperation
2.4.
between the EU and the Western Balkans, the role of organised
civil society concerns:

dialogue and mutual understanding can provide a cast-iron
basis for devising realistic strategies that meet the partners’ real
needs (2).

— modernising laws and institutions to promote partici-
patory democracy, social and civil dialogue and better
governance;

— consolidating and creating a healthy and innovative

socio-economic and productive environment;

— establishing new socio-cultural conditions, promoting
and consolidating the rule of law, a spirit of community
and intercultural dialogue, political pluralism and a view
of Europe that includes the Balkans.

2.5.
The Thessaloniki agenda demonstrates that Europe
has assimilated its experience with the Central and Eastern
European Countries (CEEC) and that the EU intends to apply
some important lessons learned from that experience. Much
progress can be made towards establishing democratic systems
and the market economy, but a democratic form of govern-
ment is not in itself a guarantee of democracy. A complex
network of institutions and formal and informal processes
are required. Many democratic institutions in the countries
concerned by this opinion are still in their infancy and show
what might be considered ‘anti-democratic’ tendencies, such
as the tendency to centralise information and decision-making
processes. All this underlines the importance of cooperation
for constructing democracy, increasing awareness of social
problems and implementing social and economic initiatives in
local communities (1).

2.6.
The present opinion will dwell not only on key
problems and dangers that could lead to pessimism and
defeatism, but will also take a critical look at the opportunities
and strengths that can be exploited with a view to bolstering
the role of organised civil society in the Western Balkans.

2.7. More specifically, the Committee obtained a compara-
tive picture of the ‘possibilities, limits and perspectives’ regard-
ing social dialogue in south east Europe through the findings
of the 2002/2003 Phare project on the Promotion of the
culture and practice of social dialogue and of the participation
of civil society and related networks in the South East
Europe region, which was managed by the European Training
Foundation (ETF). This project demonstrated how direct

(1) The reality of cooperation, 1997/1998. Development assistance
in the annual reports of international NGOs, section on Western
assistance for the ex-Communist countries of Central and Eastern Europe,
pp. 212-220. Published by Movimondo e Manitese, Rosenberg e
Sellier, Turin 1998.

2.8.
Two critical questions emerge for the EU in relation to
the situation in south east Europe: how to define clear
parameters for establishing governance and the welfare state,
on the basis of European countries’ shared values; and how to
promote the principles and values enshrined in Europe while
facing the challenge of enlargement and the risks that globalisa-
tion brings for economic and industrial systems,
labour
markets and thus quality of life in Europe,
including the
candidate countries, and its neighbouring regions (3).

2.9.
The present opinion focuses initially on three macro-
level aspects of organised civil society’s role — the political
and institutional, economic and cultural importance of civil
society with respect to all its different components — and
describes certain current features of organised civil society in
the countries of the Western Balkans. The opinion then
presents an interpretation of the Thessaloniki agenda from the
perspective of civil society’s role. And finally, some ways of
strengthening organised civil society are considered, from a
regional, national and European angle.

3. Macro-level features of organised civil society’s role

3.1.
As a complex entity with a wide and diverse member-
ship, organised civil society has a crucial role to play in the
current stage of the Stabilisation and Association Process and
in the new Thessaloniki strategy to which the Balkan countries
and the European Union have committed themselves.

3.2.
Organised civil society must play an active role in order
for EU development, cohesion and integration programmes to
have a significant impact for their final and effective benefici-
aries — the citizens who are, wish to be and will wish to be
Europeans.

(2) The comparative study, by Darko Marinkovic, is available from
the ETF. At the end of the project, on 3-5.3.2003 in Zagreb, the
social partners of south east Europe endorsed the relevant
conclusions and recommendations.

(3) These are very complex issues, also from the perspective of EU
legal frameworks. One of the most significant developments in
the EU integration process has been the adoption of the EU
Charter of Fundamental Human Rights. The importance of this
document lies in its aim of clearly and unequivocally entrenching
the political, civil, economic and social rights of Europe’s citizens.
For an analysis comparing this charter with the European Social
Charter and the Council of Europe Social Security Code, see
Bertozzi, S., Socio-economic rights of European citizens in the 21st cen-
tury in La Comunità Internazionale, Vol. LVII, No 2, 2002, quarterly
of the SIOI, Editoriale Scientifica, Naples, 2003, pp. 233-244.

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Governments and public authorities must be totally,
3.3.
transparently and consciously committed if international pro-
grammes are to become meaningful for citizens. The develop-
ment of participatory democracy and the social and economic
fabric is largely a political issue, and not merely a technical
one.

Thus organised civil society encompasses virtually all
3.6.
spheres of action between the level of individuals and that of
the state. The social and cultural identity of each element of
civil society is linked to its modus operandi, which is not to
simplify the role actually played and responsibility held.

The importance of organised civil society playing an

3.4.
active role can be summed up in the following terms:

— socio-political and institutional, organised civil society
being the condition sine qua non for building social and
civil dialogue and participatory democracy;

— socio-economic, organised civil society being the key
factor for ensuring economic growth that is compatible
with human development of local societies;

— socio-cultural, in so far as organised civil society drives
and nurtures new cultural developments and forms of
action that are open to pluralism in all its social forms
and in line with the principles of the European Union
and international cooperation, i.e. civil dialogue, respect
for human rights and fundamental freedoms, the quest
for peace and better democracy, and sustainable develop-
ment.

For each of these macro-level features, civil society
3.5.
expresses itself, and is therefore regarded as, a complex whole
composed of different elements. Organised civil society can be
understood as a heterogeneous entity, comprising (1):

— workers’ and employers’ organisations;

— organisations representing other social and economic
players, e.g. sectoral, business, industrial, professional and
cooperative associations;

— non-governmental organisations (NGOs), which bring
together people with shared concerns, such as environ-
mental, charitable and welfare, consumer, human rights,
cultural and education/training organisations;

— so-called grassroots organisations, through which groups
of citizens (women, young people, families, the elderly)
can participate in the life of their local communities;

— faith-based organisations.

3.7.
A broad vision of social dialogue can also include all
these elements, to give a definition of social dialogue as
pluralist and multilateral,
though social dialogue in the
countries concerned by this opinion is in practice limited to
discussions (not always recognised) between government
authorities and employment-related organisations, i.e. trade
unions and employers’ organisations.

The problem of how independent the economic and
3.8.
social partners are from governments and public adminis-
trations, and from financial interests that are incompatible
with the objectives of social dialogue, already arises at this
level of social dialogue and tripartite consultation.

3.9. Within the extremely diverse context of
the five
Western Balkan countries, the most established tradition of
social dialogue lies with the trade unions. The dialogue has
mainly been engaged with government authorities and in the
context of large state-owned enterprises, whereas employers’
organisations are complete newcomers on the socio-economic
scene and are mainly linked to small- and medium-sized
enterprises. Chambers of
Industry and Commerce, where
they exist and are active, fulfil the functions of employers’
organisations, but
they are fully implicated in legal and
independence, autonomy
institutional
and representation of interests (2). The Economic and Social
Councils of the Western Balkans are also a new phenomenon, a
result of the Stability Pact and the Stabilisation and Association
Process, and in line with ILO guidelines (3).

issues regarding real

3.10. With respect to the elements of organised civil society
that are not key players in the world of work and industrial
relations,
the situation in the Western Balkans is rather
complex and difficult to analyse. In fact a substantial civil
society fabric has emerged from a decade of international
cooperation to promote human rights and disadvantaged
groups, but also and concurrently from technical measures
to support civil society and local communities (numerous
measures aimed at capacity-building, empowerment, trans-
parency, accountability, sustainability training, etc.).

(1) For a summary of

the criteria used to define civil society
organisations recommended by the EESC for the relevant auth-
orities, see the opinion to be found on page 82 of OJ C 208,
3.9.2003. The definitions used in the present exploratory opinion
are also consistent with those adopted by the UNDP and the ETF.

(2) D. Marinkovic, Social dialogue in south east European countries, in:
Collection/textbook for Trade Union education, published online by
Dragan Djuric, June 2003, pp. 15-18.

(3) For a comparative analysis of social dialogue in the various
national contexts, see dossier published by the ETF, Belgrade,
July 2002.

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This actual civil society overlaps considerably with
3.11.
NGOs operating at grassroots level. However, these indepen-
dent organisations cannot be seen as a product of locally-
rooted social movements, nor do they operate on the basis of
a local capacity to identify needs and autonomously frame
responses to those needs. Many NGOs function as suppliers of
social services, but they are generally dependent on large
international donors (the international financial institutions or
IFIs, United Nations agencies and the large international NGOs
linked to them) and tend to provoke competition between
each other on the private welfare market. NGOs are virtually a
self-perpetuating system of service delivery (1).

3.12.
The real challenge for local society is therefore to
transfer the skills and service capacity of NGOs active in the
various regions concerned to autonomous social organisations
and institutions, so as to create and reinforce independent civil
society organisations.

3.13.
In order to summarise the current position of organ-
ised civil society in the countries of the Western Balkans, it is
necessary to revisit the process of transition they have all been
through: a transition that is not just post-Communist, but
post-war, during which they had to build structures that never
previously existed and to reconstruct those that were violently
destroyed by war, hatred and crime.

Organised civil society itself

3.14.
is the most salient
example of all this. The five countries must make up for the
absence of a civil society independent of the state and the
absence of political, social, economic and human rights
suffered under totalitarian regimes. At the same time all the
social costs of the economic transition process are in evidence,
and emancipation from national ethnocentrism and concepts
of ethnic identification is only just beginning to emerge in the
social fabric and everyday life of local communities.

In short, four mutually-reinforcing factors currently
3.15.
determine the position of organised civil society in the Western
Balkans and the strengthening of their role in political and
social democratisation, namely:

— the autonomous capacity of social and economic players
to modernise and consolidate in the context of the
reforms undertaken in the various countries as part of
the transition process;

(1) For updated information on this subject see the work on Civil
society on the independent website of the Observatory on the
Balkans. Of particular interest is the paper on The role of NGOs
and civil society in European integration, published by Claudio
Bazzocchi, January 2002.

— developments produced by the difficult confrontation of
the various countries with EU policies (and with the
guidelines provided by the ILO and the Economic and
Social Councils);

— developments produced by concrete experiences of inter-
national cooperation and of the independent capacity to
modernise and consolidate all the strands of civil society
other than the economic and social partners;

— the ability of governments and public authorities not just
to respond to these different demands, but to actually
implement institutional, economic and social reforms
that effectively meet needs and satisfy the expectations of
local communities.

4. Organised civil society, democracy and institutional

development

4.1.
The concept of social governance can be defined as the
means by which civil society takes part in the decision-making
processes (2) that are vital to a country.

4.2.
However, the relevance and efficacy of social partici-
pation in political decision-making processes does not depend
solely on the existence of a dynamic, well-structured organised
civil society which is supported by an adequate legislative
framework that sets out remits and spheres of activity. These
things also depend on:

— the degree of administrative and political decentralisation

in effect at local level;

— peace, or rather the absence of conflict;

— respect for human rights and basic freedoms by govern-
ments and also by other players in the international
community (in the context of cooperation programmes
these might be foreign or local NGOs working on behalf
of international bodies or agencies).

This brief account is intended to draw attention to two
4.3.
critical factors, noted in several quarters, relating to the current
state of social participation and dialogue in the countries of
the Western Balkans and the possibility of achieving a strategic
improvement in these areas with a view to future adoption of
Community policies.

(2) This definition is drawn, for example, from the Human Development
Report — Albania 2002. Challenges of Local Governance and Regional
Development, published by the Human Development Promotion
the United Nations
Center (HDPC)
Development Programme
‘Democratic
Governance Framework’, p. A1.

in Tirana on behalf of

(UNDP), Section 5,

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The first critical factor is the attitude of governments
4.4.
and public authorities towards organised civil society and its
components: ‘This was identified as the key deficiency hin-
dering (social and) civil dialogue. Few cases were found where
the authorities were prepared to include CSOs (civil society
organisations)
in real consultations or of authorities who
recognised the need to do this. In some cases a better legal
basis for CSOs is necessary.’ (1)

4.5.
It is important that this attitude should be completely
dropped by governments and public authorities in the
countries of the Western Balkans, on the basis of a new
awareness and guided by the EU. The role of organised civil
society in democratic processes must not be seen to be
ideologically opposed to, or to replace the functions of, state
administrations or institutions; rather, organised civil society
must develop a complementary, synergistic role based on
preferential forms of consultation and negotiation between the
various parties and by virtue of its representation of collective
interests,
its specific or sectoral competence, or terms of
reference, and its direct knowledge of the needs of individuals
and social groups.

4.6.
That organised civil society should be autonomous and
independent of governments and public bodies is an important
democratic principle, but also a value that must be promoted
in material and non-material ways. The possibility of organised
civil society growing and achieving its full potential is to a
large extent dependent on a virtuous circle of economic,
fiscal and social policies at every level of planning and
implementation, and on the existence of open political debate.

The second critical factor concerns the mutual sus-
4.7.
picion between the main representatives of employment and
industrial relations,
i.e. the very parties to social dialogue
currently existing in the countries of the Western Balkans (2).

4.8.
This second factor is closely linked to the more general
problem of the absence of a uniform welfare state model and
of clear norms and guidelines for achieving social dialogue.
The obvious effect, in public opinion and experience, is that a
number of political interpretations and practical approaches
co-exist, which are also conveyed by the various strands of
organised civil society.

4.9.
The Committee has already expressed its views about
the urgent need to pay more attention to such critical issues,
by improving the coordination of Community guidelines and
supporting the implementation and development of social
systems that adhere to unambiguous principles and respond
to the real needs of the individual countries (3).

(1) EESC opinion in OJ C 208, 3.9.2003, p. 82.
(2) See D. Marinkovic, op. cit., pp. 11-18.
(3) EESC opinion in OJ C 85, 8.4.2003, p. 65.

4.10. More generally speaking, in terms of public awareness
and opinion, it is important that high-quality public infor-
mation programmes should speak more openly and impartially
of the social costs of transition, not just in the countries of the
Western Balkans, but also within the European Union.

4.11.
Here too, civil society is the key, and above all those
elements of it that promote the right to information and have
good media contacts.

5. Organised civil society, economic growth and human

development

5.1.
The most modern and widely accepted definition of
development considers it as a global economic, social, cultural
and political process which aims to continuously improve the
well-being of the whole population and all individuals through
active, free and substantial participation in this process and
the fair distribution of resulting benefits (4).

5.2.
Development as a human right is dependent on the
combined operation of civil society and social dialogue — not
only of those components representing the world of work and
industrial relations, but of all the other strands of civil society
too. Civil society’s significance in terms of development is
illustrated by the UNDP, which defines it as ‘the provision for
human development in society’.

5.3.
Economic growth, which is an important factor in
human development, can only turn into human development
if the increase in private income is fair and if economic growth
generates public investment in human development, schools,
basic services, health care and social services. Human develop-
ment also depends on ‘unpaid’ work by men and women
within the family or the community, providing assistance or
carrying out activities of general
interest or value, for the
environment and the natural and cultural heritage (5).

5.4.
Organised civil society is an active entity. It is a sign of a
healthy socio-economic and political context, which promotes
innovation, change, entrepreneurial creativity and inter-
nationalisation. Development, cohesion and integration pro-
grammes between the EU and the Western Balkans should aim
to reflect this.

(4) Copenhagen Declaration — preamble on the right to develop-
ment, which confirms the indivisible and independent nature of
the individual aspects of the development process. For further
information see: C. Turi, op. cit., p. 55.

(5) UNDP, 10th Human Development Report: Globalisation, Rosenberg

and Sellier, 1999, p. 61.

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6. Organised civil society, cultural pluralism and inter-

national cooperation

6.1.
The scale of the socio-cultural change faced by the
Balkan countries over the last ten years extends far beyond the
simple transition to a market economy and the development
of pluralistic and liberal socio-political legislation. The Western
Balkan population has been acutely exposed to:

— the risk of political and social instability;

— poverty;

— abuse of the law and fundamental rights;

— the brutality of organised crime;

rights and fundamental freedoms, and the capacity to rebuild
civil dialogue and social participation to solve local problems
irrespective of ethnicity. This idea can be seen in the initiatives
of many NGOs and international secular or religious voluntary
organisations, involved in work for communities and local
institutions, and in particular to improve the rights of the
underprivileged, young people and women.

6.5.
The experience, knowledge, direct operative capacity
and power of cultural arbitration demonstrated by these civil
society organisations should no longer be used in isolation for
urgent cases, but be institutionalised and benefit the social and
democratic life of local communities. Here the Committee
would again stress the important role which real political
decentralisation (1) can play in the exercise of grassroots
democracy.

— the extreme demographic imbalance caused by the dras-
tic, enforced relocation of entire communities due to
conflict, uncontrolled urbanisation, and large-scale emi-
gration of the workforce;

7. The importance of harnessing the experience gained
in international cooperation for the benefit of civil
society and local communities

— the aggravation of

‘ethnic’ differences,

the cruel
manipulation of historical-cultural
different
languages, religions, traditions and disparate values, mem-
ories and lifestyles.

i.e.
facts:

The heritage of the past and the present has been
6.2.
shaken and twisted for base political and material ends through
conflict, oppression, widespread violence and denial of the
spirit of community and of respect for cultural diversity. The
investment of resources and competences required to remedy
the damage caused should not be considered less than
that earmarked for the development and the economic and
institutional liberalisation of the Western Balkans.

6.3. Much progress has been achieved in terms of the
stability of local institutions and economic growth, although
this differs considerably between the different geographical
areas. However, much still remains to be done for the whole
of the Balkan civil population, with due respect for their
various cultural values and local traditions,
in addition to
guaranteeing democratic life and the rule of law for the whole
region. A single factor could tip the balance and place the
whole region in serious danger.

The Thessaloniki agenda cuts across a key issue: the
local resources and

7.1.
relationship between international aid,
cultural approaches.

In the Western Balkans, a positive relationship needs
7.2.
to be rebuilt between the people and the authorities, between
individuals and communities, and between local residents and
their region, to counter excessive reliance on humanitarian aid
and an irresponsible expectation of foreign investment.

7.3.

The role of organised civil society is crucial here.

7.4.
Alongside the weaknesses and the vulnerability of
organised civil society outlined in point 3 of the present
opinion, there are also strengths and opportunities forged
by ten years of international cooperation for civil society
organisations and local communities in the Western Bal-
kans (2).

These changes, even less so than the others, cannot be
6.4.
imposed from the top-down, but should develop within the
population itself, in the daily life of the community. The idea
of a new civil society is today running through the whole
Balkan region, based on the promotion and defence of human

(1) In the sense of regional branches of government and local

authorities.

(2) Documentation: Guide to central and eastern European and Balkan
countries. Politics and economics yearbook, CeSPI, Il Mulino, Bologna;
C. Bazzocchi, The role of NGOs and civil society in European
integration, on the website: http://auth.unimondo.org, 7.2.2002.

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Such schemes involve ‘bottom-up’ implementation of
7.5.
competences and good practices to strengthen the demo-
cratisation process; economic development based on local
residual resources and the shared use of external resources;
and developing social and human capital, in all its diversity.

form of cooperation essentially takes the form of an ongoing
dialogue, with the setting-up of mechanisms for networking
between civil society bodies with first-hand experience of the
socio-economic, political and cultural problems of the various
regions concerned.

7.6.
An interesting case is provided by Local Democracy
Agencies (LDAs) for south east Europe, and the approach they
use to boost democratic life and local communities.

8. The role of organised civil society with regard to the

Thessaloniki agenda

7.7.
There are currently 11 LDAs, which are part of an
organisation set up in Strasbourg in 1993, with the approval
of the Council of Europe and the Congress of Local and
Regional Authorities of Europe. LDAs work within a network
to strengthen the stabilisation and regional development
process in the context of the stability pact. They promote
decentralised cooperation programmes by establishing part-
nerships with European and Balkan local authorities, NGOs
and other civil society organisations (1).

8.1.
Analysing civil society’s role in the new European
strategy for the Western Balkans means considering European
integration not only as a matter for governments and public
administrations, but as a challenge to be embraced by all social
interest groups.

8.2.
Among the broad fields of action outlined in the
Thessaloniki agenda, there are therefore specific fields of action
for European and Balkan civil society organisations.

7.8.
The above is an instance of decentralised cooperation.
It is not possible to describe all the types of international
cooperation project run by civil society organisations in the
Balkans, but increasingly precise lines of action are open to
them, such as:

— institution building,

— local development,

— training and empowerment of human and social capital,

with regard to equal opportunities,

— peace and a spirit of community, intercultural dialogue

and active respect for cultural differences,

— immigration and mobility, as well as the specific problems

of refugees, deportees and evacuees.

7.9.
All this is to be carried out in a context of horizontal
cooperation between the various countries in the area, and
vertical cooperation with Europe.

7.10.
The cooperation of civil society and local institutions
can have an important strategic role within the broader and
more systematic Thessaloniki agenda if it is properly supported
and harnessed by national and international institutions. This

Institution building

8.3.
In the context of the technical assistance provided by
the Technical Assistance Information Exchange Office (TAIEX)
to adapt legislation to the acquis, and in twinning schemes (in
which officials from Member States can pass on their expertise
in the field of public administration to the Balkan countries),
the role of organised civil society is to pass on information
and check that these types of technical
interventions and
exchanges lead to tangible processes which establish innovative
expertise locally that will have a positive impact on the various
levels of governance.

The fight against organised crime and corruption — establishing the
full rule of law and political cooperation

8.4. Within the cooperation provided for by the Common
Foreign and Security Policy, in justice and home affairs and for
establishing the rule of law, organised civil society has an
active role to promote and spread the culture of the rule of
law at all levels of society, to strengthen the public’s confidence
in the authorities, and to represent the true demands regarding
free movement of people and goods, immigration policy and
the return of refugees. It can report on the progress made as
well as any failures.

Economic development

(1) The LDAs carry out projects in a variety of fields: economic
development, EU integration and cross-border cooperation, local
institution building, humanitarian support and support for human
rights. More detailed information can be found on the website:
http://www.idaonline.org. Also available on this website: 10-year
report on activities, May 2003.

Involvement of organised civil society is the only way
8.5.
to ensure that macroeconomic and infrastructure measures do
not overlook economic and social development objectives that
are rooted in the local area and bring clear improvements for
local communities and individual citizens.

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Access to Community programmes

8.6.
Organised civil society obviously has a role to play in
EU cooperation schemes in the Balkans in the fields of
education,
training, energy resources and non-renewable
resources, such as water. However, the Committee stresses the
urgent need to provide high-quality information on the
arrangements and conditions governing access to Community
programmes for the various civil society organisations and
partnerships.

Horizontal lines of action

Another major role is to spread information and
8.7.
knowledge and raise awareness of the path undertaken by the
EU and the Western Balkans, as well as the difficulties and
opportunities this involves.

9. Suggestions for strengthening organised civil society

9.1. With a view to strengthening cohesion and the inte-
gration of the Western Balkans with the EU, it is important to
overcome the main obstacles to active, effective involvement
of the various strands of civil society. The Committee has
already stressed the need to ensure greater participation and
consultation of the social partners and other civil society
groupings in order to guarantee a social and civil dialogue
which is truly constructive for the Western Balkan countries (1).
This can be done by:

— developing international partnership, guaranteeing conti-
nuity to the initiatives in terms of financing, resources
and competences as set out in the Thessaloniki agenda
action programmes. The success of the Thessaloniki
agenda will depend to a large extent on galvanising civil
society organisations to promote/implement projects
under Community programmes with regional and Euro-
pean partnerships;

— overcoming

ideological

suspicion and

differences
between the working methods of organised civil society
and national and local authorities, and promoting com-
munication and systematic links between civil society
groupings, both within and between the various
countries, in the form of a regional network. At the same
time, there should be a drive to implement common
cohesion and social governance models, in accordance
with EU guidelines;

— promoting networking activities between European
organisations and organisations in the various Balkan
countries.

The World Bank and the IMF should also participate in
strengthening the organisations of social partners and civil
society in cooperation with the EESC and other EU institutions
as well as the ILO.

9.2.
The Committee suggests that the role of organised civil
society in the local environment could be strengthened by
promoting and supporting cooperation and systematic links
between its various members, in order to:

a)

b)

strengthen the consultation and support capacity of
the socio-economic partners, developing independent
support for the needs of citizens and local communities
by forging systematic links with other civil society
groupings, such as community-based and welfare organis-
ations, and NGOs involved in local development projects;

stress the importance of civil society groupings other
than the socio-economic partners (i.e. groupings which
are more independent from centralised state institutions
than the socio-economic partners are, but more likely to
operate in isolation and rapidly run out of opportunities
for action) by forging systematic links with the socio-
economic partners, to help to build up information about
the true needs of citizens and local communities, as well
as successful experiences and practices.

Cooperation between civil society groupings is thus mutually
beneficial and can boost the empowerment and self-reliance
of civil society as a whole vis-à-vis public and centralised
authorities, primarily by:

— providing better representation of collective interests;

— guaranteeing respect for citizens’ rights and free access to
social and civil dialogue, political participation and
mutual support;

(1) EESC opinion in OJ C 208, 3.9.2003, p. 82.

— boosting the capacity for consultation and negotiation,
and for putting forward proposals, between the various
players in political and civil life.

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The Committee would also suggest promoting adher-
9.3.
ence to the European models of cohesion and social govern-
ance. This underscores the need to support
the role of
organised civil society by implementing and monitoring
dialogue and coordination mechanisms, both at national/
regional level and with the EU.

— exchanges of experience and good practice between EU
civil society organisations and their Balkan counterparts,
in cooperation with local authorities and institutions;

— public and sectoral information and communication.

10. Developing mutual understanding, dialogue and

active cooperation

10.1. With the prospect of EU accession now a certainty,
organised civil society must set itself precise, quantifiable
objectives regarding the social aspects of integration, so as to
achieve tangible results at national, regional and European
level.

10.2. While the goal for all the Western Balkan countries is
the same, their paths for achieving it will be very different, as
each country will need different timescales and solutions.
Within the new European strategy for the Western Balkans,
one can envisage medium to long-term processes culminating
in institutional accession agreements, and short to medium-
term processes aimed at pre-accession agreements and focus-
ing on a number of Community reference policies.

10.3.
At the current stage of the Stabilisation and Associ-
ation Process, the present opinion has sought to highlight the
importance of mutual understanding and awareness of cultural
differences and of the specific ways in which local society is
organised.

10.6.
Experience to date provides some ideas that can be
put into effect immediately. First and foremost, it is necessary
to address the fact that investment in human resources takes
some time to produce results and requires a clear commitment
to harness intangible resources such as the knowledge, expert-
ise and knowhow of the civil society professions — the
professions that are the civil expression of democracy (1).

10.7.
The second sphere of action concerns the use of joint
consultative committees (JCC), as already established with
other EU candidate countries. The JCC system (arrangements,
scheduling) should be adjusted to meet the differing require-
ments of the Western Balkan countries (2).

10.8.
Here too, the challenge is how to pursue EU cooper-
ation with the individual countries, in line with their particular
needs and local situations, while also promoting regional
cooperation that has a real European dimension and strategic
importance.

10.9.
In this context the Committee would highlight the
need to establish broad forums for multilateral consultations
between the civil society organisations of the EU and the
Western Balkans. These should cover the main cross-sectoral
issues regarding integration and enlargement, such as trade
and production activities, transport and environmental sus-
tainability, conflict reduction and international security, local
development and the fight against poverty.

10.4.
Passing now from general suggestions to practical
cooperation proposals, the Committee will focus on two
spheres of action that can help to improve information and
make for more effective practical relations between civil society
organisations in the EU and the Western Balkans.

It is important to involve civil society players in
10.10.
consultation and cooperation forums which can mobilise
their respective expertise and organisational capacities in
multilateral partnerships and networks for the conduct of
large-scale cooperation projects.

10.5.
ki agenda, the first sphere of action concerns:

In line with the possibilities offered by the Thessaloni-

— education and vocational training at all levels, spanning
all the key roles in civil society organisations (trade
unions, employers, other interests, NGOs);

(1) See the conclusions and recommendations of the document
approved by the social partners of south east Europe on 3-
5.3.2003 in Zagreb (Appendix B to opinion OJ C 208, 3.9.2003)
and the documents drawn up and updated by the ETF.

(2) In the case of Slovenia, these are covered by Article 115 of the

association agreement.

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11. Conclusions

11.1.
This exploratory opinion makes it clear that organised
civil society provides the only opportunity to ensure that
international cooperation and intervention programmes are
truly significant for their final beneficiaries. Developing the
organisation and coordination of civil society in the EU and
candidate countries (inter alia through the use of
joint
consultative committees) increases this opportunity to benefit
all citizens of the EU and of its neighbours. Civil society
organisation have a vital role to play both in the Western
Balkans and in Europe as a whole, not least in the face of
the major threats the public sees today, with uncontrolled
globalisation and other generalised risks:

— the vulnerability of Europe’s economic and production

systems and labour markets;

— the uncertainty of social protection and security policies;

— cultural miscomprehension of the European tradition of

participatory democracy;

— the distortion of development objectives: these should
focus on human and sustainable development, not merely
increasing economic growth without social progress.

11.2.
The EU can offer a large variety of prospects for the
Western Balkans, in the form of pre-accession agreements that
introduce key conditions geared to each country and encourage
the individual countries to target their efforts on a single
European reference point, thereby lessening the risk of serious

Brussels, 10 December 2003.

institutional or cyclical problems preventing the five countries
from achieving convergence towards the European average.

11.3.
In conclusion, the Committee hopes to see the launch
of well planned and targeted initiatives to ensure a regular and
meaningful dialogue between civil society representatives from
the EU and the Western Balkans. This should include:

— follow-up to the activities undertaken by EESC working
groups, including an update on the implementation of
the Thessaloniki agenda and the partnerships foreseen
therein;

— moves to set up joint consultative committees (JCC), with
appropriate scheduling and arrangements for the different
countries. This means strict respect for the Commission
and Council guidelines on the progress of the EU’s
institutional agreements with each country, following the
practice used for the other applicant countries;

— measures to support a European strategy of targeted
conditions covering agricultural, trade and security poli-
cies, as regards regulatory reference frameworks and in
the transport and energy sectors;

— the holding of an international summit on the role of
civil society in the new European strategy for the Western
Balkans, highlighting both the key role of civil society
organisations and the priorities for action. The summit
should focus on the various accession and pre-accession
processes, and should hold a wide debate on the priority
issues surrounding EU integration and enlargement: social
cohesion and democratic institution-building, economic
development and sustainable development.

The President

of the European Economic and Social Committee

Roger BRIESCH