Opinion of the European Economic and Social Committee on  the Northern Dimension and its Action Plan
Date: 2005-09-29
Institutions: European Economic and Social Committee
Subjects: Northern Europe, Russia, company constituted under civil law, cooperation policy, cross-border cooperation, regional cooperation

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Opinion of the European Economic and Social Committee on ‘the Northern Dimension and its
Action Plan’

(2006/C 24/11)

On 10 February 2005, the European Economic and Social Committee, acting under Rule 29(2) of its Rules
of Procedure, decided to draw up an opinion on: Northern Dimension and its Action Plan.

The Section which was responsible for preparing the Committee's work on the subject, adopted its opinion
on 8 September 2005. The rapporteur was Mr Hamro-Drotz.

At its 420th plenary session, held on 28 and 29 September 2005 (meeting of 28 September), the European
Economic and Social Committee adopted the following opinion by 163 votes to 2 with 9 abstentions.

The European Union's Northern Dimension Policy (ND) was
established in 1999. ND is part of the EU's external relations
policy, whose objective is to improve welfare of the northern
part of Europe through regional and cross-border cooperation.
ND covers the Baltic Sea Region and the Arctic area. The ND is
implemented within the framework of
the Partnership and
(PCA) with Russia, as well as the
Cooperation Agreement
Agreement on the European Economic Area (EEA — Norway,
Iceland). ND has, after the enlargement of the EU, enhanced
activities with Russia, especially towards the north-western
regions.

The EU-Russia relations have been strengthened by the adop-
tion of the ‘Four Common Spaces’. In May 2005 an under-
standing was reached (the Road Maps) on how to proceed with
the establishment of the common spaces. Russia is also nego-
tiating accession to the World Trade Organization (WTO),
which would facilitate
cooperation
between the EU and Russia. The general development in the
EU-Russia relations brings also an impetus to the Northern
Dimension.

and economic

trade

Linking the ND tighter to the cooperation between the EU and
Russia is foreseen. This aspect is noted in the Conclusions of
the European Council's meeting on June 16-17, 2005:
‘The
European Council expresses its satisfaction at the outcome of the 15th
EU-Russia Summit, which was held on the 10 May 2005, and,
particularly, at the adoption of the road maps for the creation of four
common spaces… Their implementation will strengthen the strategic
partnership between the EU and Russia, as well as regional coopera-
tion, in particular in the framework of the Northern Dimension’.

ND is also referred to in the EU-Russia Road Maps for the
Common Spaces, particularly under the heading of Common
Economic Space: ‘… The implementation of actions under the CES,
priorities jointly identified in the framework of regional organisations
and initiatives, such as the Council of Baltic Sea States, the Northern
Dimension etc., will be taken into consideration’.

The EESC decided in spring 2005 to prepare, as a continuation
of the Committee's previous ND work, an opinion about the
Northern Dimension. The opinion will be the EESC's contribu-
tion to the ND Ministerial Conference, which will take place in
November 2005.

1. The objectives and priority sectors of the NDAP II,

2004-2006

The Northern Dimension

1.1
(NDAPII) (1) entered into force in January 2004.

Second Action

Plan

1.2

The NDAPII covers five priority sectors:

— economy, business and infrastructure;

— human resources, education, scientific research and health;

— environment, nuclear safety and natural resources;

— cross-border cooperation and regional development;

— justice and home affairs.

The NDAPII also pays attention to specific regions: Kali-
1.3
ningrad and the Arctic region. It encourages concerted actions
by all partners involved to reinforce economic, employment
and social policies.

1.4
The NDAPII describes different possibilities for action in
these sectors, leaving the practical conduct of actions to inter-
ested stakeholders. The ND has no separate budget, but is
financed from various EU programmes (i.e. Tacis), the govern-
ments concerned, and the International Financing Institutions
(NIB-Nordic Investment Bank, EBRD-European Bank for Recon-
struction and Development, etc.).

The European Commission prepares annual progress
1.5
reports on the implementation of
the NDAPII. The 2004
Annual Progress Report refers to a vast number of activities in
the five priority sectors. The report also makes reference to the
EESC's conclusion that civil society organizations are poorly
aware of the ND activities and calls for enhanced public infor-
mation and further involvement of regional organizations in
the implementing and monitoring of the ND activities.

(1) Source the NDAPII available at: http://europa.eu.int/comm/exter-

nal_relations/north_dim/ndap/com03_343.pdf.

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The

implementation of

1.6
is monitored
annually: a meeting of Senior Officials took place in 2004; the
Ministerial Conference in 2005, and a Senior Officials' meeting
scheduled to take place in the second half of 2006.

the NDAPII

2. The Northern Dimension and the European Economic

and Social Committee (EESC)

2.1
The NDAPII requests a contribution of the European
Economic and Social Committee (EESC) in the implementation
of the NDAP: ‘To provide for the broad participation of civil society
groups in reviewing progress under the Action Plan, it would also be
helpful if the EESC would be able to organise annual Forums on the
implementation of the Action Plan, bringing together representatives
represented in the
from the
Committee’ (2).

social and economic organisations

2.2
The request was based on the EESC's contributions in
previous years: the opinions on relations between the European
Union and the countries bordering the Baltic Sea (3), on the
EU's Northern dimension including relations with Russia (4), on
Northern Dimension: Action plan for the Northern Dimension
in the external and cross-border policies of the European Union
2000-2003 (5) and on the EU/Russia strategic partnership:
What are the next steps? (6); the statements to the ND Minis-
terial meetings in 1999, 2001 and 2002; the conclusions from
the two ND Conferences (Forums) arranged by the EESC in
2001 and 2003.

2.3
The EESC responded positively to the Commission's
request and decided to gather information about the CSO's
views on:

— the awareness and involvement of civil society organisations
in the implementation of NDAPII, either through requested
or own initiative activities;

— the civil society organisations' opinions and recommenda-
tions, regarding the contents and the implementation of the
NDAPII.

2.4
The CSOs' views were in 2004 collected with a ques-
tionnaire, which was widely distributed to civil society organi-
sations in all the countries concerned, and through fact-finding
missions to Gdansk, Kaliningrad and Riga.

The general conclusion about the CSOs involvement in

3.2
the Northern Dimension Action Plan II was that:

— they are generally poorly aware of the ND;

— they are only marginally engaged in the implementation of

the NDAP II;

— they have no role (except the EESC's activity) in the moni-

toring of the implementation.

The situation in these three aspects seemed to be more positive
in ‘the old’ EU-Member States in the region than in the other
states.

There was a general
interest among the CSOs, which were
contacted, to get more information about the ND and the
NDAPII, to be engaged in projects and to participate in the
monitoring, both at national and European level.

The EESC proposed that spreading of information to the CSOs
about the NDAPII, as well as engaging them in the implementa-
tion and the monitoring, should be improved.

The EESC offered assistance in information and monitoring
activities at European level, but, at the same time, underlined
that the ND activities should be, primarily, at sub-regional,
levels, with the intention to involve the
national and local
authorities and interested CSOs in a constructive interaction.

The EESC supported the principle stated in the NDAPII (8), that
representatives of civil society should be encouraged to partici-
pate in the annual meetings of the Senior Officials.

It was also proposed that the EU should consider some addi-
tional aspects during the NDAPII:

— raising the ND profile in the EU-Russia relations and in the

development of the EU Neighbourhood policy;

3. The conclusions and recommendations by the EESC in

2004

The EESC was

3.1
represented in the Senior Officials'
meeting in October 2004, and it presented conclusions and
recommendations in a report to the meeting (7).

(2) COM(2003) 343 final, 10.6.2003, p. 16.
(3) OJ C 73, 9.3.1998, p. 57.
(4) OJ C 368, 20.12.1999, p. 39.
(5) OJ C 139, 11.5.2001, p. 42.
(6) OJ C 125, 27.5.2002, p. 39.
(7) The EESC report 2004 concerning the EESC findings under the EU's

NDAPII.

— arranging a ND meeting in the region, including Kalinin-
grad (the CSOs in the region would highly benefit from
this);

— improving the arrangements to facilitate the funding of
small projects with the intention to encourage cross-border
contacts between the CSOs in the region;

— clarifying the available EU resources for financing of ND
projects (CSOs have difficulties to find funding sources);

(8) COM(2003) 343 final, page 16.

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— spreading information in the region, including Kaliningrad,
about the EIB and other financial resources, which may be
partners in potential ND projects;

NDAPII, b) the opinion of the CSOs about the ND, and c) the
involvement of CSOs in the implementation and monitoring of
the NDAPII.

— considering an appropriate handling of

the ND in the
preparation of the EU's new financial framework 2007-
2013.

3.3

These recommendations are still relevant.

4. The EESC's continued contacts with the ND-related

CSOs

4.1
The EESC expressed in the 2004 report its intention to
provide a contribution to the Ministerial Conference in 2005,
as well as to the Senior Officials' meeting in 2006, based on
the same criteria as in 2004.

4.2
The EESC has in the context of the newly established
Eastern Europe Contact Group (EECG) carried on its activities
in the field of the Northern Dimension. The EECG is composed
by members of the EESC and handles the Committee's activities
towards the Eastern European countries. The aim of these activ-
ities is to support the EU's policies to improve relations with
the East-European countries, to contribute with the views of
the civil society organisations in this context, and to establish
direct contacts with CS actors in these countries.

4.3
The EESC has spread information about the Northern
Dimension through own contacts and by referring to the
Commission's Northern Dimension Information System (NDIS).

4.4
The EESC has, as part of the preparation of the opinion,
distributed a questionnaire to approximately 100 civil society
organisations. The Committee has also discussed ND with
Russian CSOs during the preparation of the EU-Russia opinion.
The conclusions in this opinion, therefore, also reflect views of
CSOs in Partner Countries.

5. Conclusions based on the EESC's survey in 2005

5.1 General knowledge on Northern Dimension

5.1.1
The survey on general public awareness of the NDAPII
was conducted in June 2005. The questionnaires were sent out
to various civil society organizations in the countries that are
mainly covered by the activities of the Action Plan (the Baltic
and Nordic countries, Germany, Russia, including Kaliningrad
and Poland). The questionnaire asked for information and
views about the same aspects as it did in the previous year: a)
the awareness of civil society actors about the ND and the

5.1.2
Only 20 responses were received — an indicator that
general awareness about the ND and the NDAPII is still very
low. This was further supported by the results of the question-
naire — while most of the CSOs answered that they had some
awareness of
the ND&NDAPII, only in some cases it was
obvious that the CSOs had real knowledge about the NDAPII.
A third of the CSOs replied that they had heard something
about the ND&NDAPII, but, clearly, they had little idea about
the aims and contents of it.

Some actors seem to be aware of

5.1.3
the few public
private partnerships (PPP) in the ND, above all the environ-
in addition,
mental partnership (NDEP). Several CSOs have,
noted the ND through various regional organisations in the
Baltic Sea Region, above all the Council of Baltic Sea States
(CBSS). The employers' (BAC-Business Advisory Council) and
the trade unions' networks (BASTUN-Baltic Sea Trade Union
Network) have also promoted awareness on ND among their
members.

NDAPII

5.1.4
is seen by some actors as a programme,
which is not concerning CSOs, but rather intended as a poli-
tical project for regional cooperation between the governments
and relevant authorities. This seems to be the case, regardless
the Commission's efforts
information
through the NDIS-initiative.

to improve public

5.2 Information and involvement of CSOs in ND activities by local

authorities

5.2.1
Results of the questionnaires clearly show that there
have been very few initiatives by the governments, authorities
or other associations to inform and involve the CSOs in
NDAPII. There were only a few responses that confirmed such
in some
an engagement. Relevant authorities have, however,
countries
initiated seminars and workshops, which have
addressed the implementation of the NDAPII. This is also the
case with regional bodies.

5.2.2
Only a few CSOs have been involved in NDAPII by
own initiative. This concerns activities related to strengthening
investment conditions in the ND area, cooperation with other
associations in the ND countries, debate on future of ND, and
generally following the ND developments.

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5.3 General opinion on ND&NDAPII

— Enhancing the conditions for cross-border investments

Overall, the opinion on the ND&NDAPII is rather positive,
albeit with some exceptions. A majority of the CSOs had either
a positive or fairly positive opinion of the ND&NDAPII, while a
few of the CSOs had negative evaluation, and some CSOs had
no opinion, primarily, due to lack of knowledge about the
activities of the ND and NDAPII.

— Interlinking infrastructure and improvement of transport

networks

The CSOs, in addition, underlined the need for other comple-
mentary measures:

5.4 The most important fields of NDAPII

There seems to be a general convergence of views on the most
important fields of NDAPII for the CSOs' countries. The fields
of economy, business,
infrastructure; environment, nuclear
safety, and natural resources; cross-border cooperation and
regional development were mentioned by the CSOs as having
the greatest importance within the NDAPII. The fields of justice
and home affairs, Kaliningrad, and the Arctic cooperation
seems to be of less concern to the CSOs.

— Actions to involve civil society actors in the implementa-

tion of NDAPII

— Establishment of

structures

for

implementation of

the

NDAPII

— Allocation of sufficient resources for NDAPII

— Distribution of progress reports on implementation of

NDAPII.

Fields of NDAP II

Number of times
mentioned

Economy, business, infrastructure

**************

6. Recommendations on the Northern Dimension

Human recourses, education, scientific research,
and health

******

Environment, nuclear
resources

safety,

and natural

************

Cross-border cooperation and regional develop-
ment

**********

***

*****

****

Justice and home affairs

Kaliningrad

The Arctic co-operation

5.5 Actions of priority

The CSOs were of the opinion that following actions should be
given precedence in the above-mentioned fields:

— Labour market issues, employment and social dialogue

— Promotion of small and medium sized enterprises

The EESC supports the continuation of regional coop-
6.1
eration in the northern part of Europe through structured,
multilateral, cross-border cooperation, which also includes non-
EU states in the region. The Northern Dimension seems to be
well suited for this aim.

6.2
The EESC supports intentions to link the ND to the EU-
Russia cooperation and the Four Common Spaces. The EESC
has in its recent opinion ‘The contribution of civil society to
EU-Russia relations’ (9), para 3.2.5. stated:
‘The EU and Russia
should also work together to revamp regional cooperation — the
Northern Dimension… The EESC is pleased to note that this aspect
in the Road Maps and
has also been duly taken into account
encourages further measures to develop regional cooperation as part of
the EU-Russia relations’.

6.3
Successful regional ND cooperation would require that
Russia properly participate in the preparation and implementa-
tion of future ND policy. Mechanisms for cooperation in this
context, for instance a joint steering council should be consid-
ered, also taking into account the other non-EU countries in
the region.

the

recommendations

The EESC underlines

in its
6.4
opinion on EU-Russia relations that civil society matters should
be upgraded in the EU-Russia Road Maps, and that civil society
actors should be involved in the EU-Russia cooperation. One
should among others consider ways to establish a structured
consultation of CSOs in the future ND mechanisms.

— Facilitation of trade and economic relations

(9) JO C 294, 25.10.2005, p. 21.

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6.5
The five sectors of ND cooperation are relevant for the
future. One should, above all, take advantage of the positive
experiences of the concept of ND partnerships (environmental,
social and health, information-technology). Serious considera-
tion should, in this respect, be given to the creation of partner-
ships in the following areas:

— infrastructure and logistics

— employment, human resources and social issues, including

civil dialogue

— cross-border and people-to-people cooperation,

including

youth, education and culture.

Existing regional bodies in the Baltic Sea Region, above
6.6
all the CBSS, should have a central role in the forthcoming ND
exercise. The civil society organisations would in this context
have a fair opportunity to be involved in and to contribute to
the ND through their own regional cooperation networks and
their established links to the aforementioned bodies.

6.7
spreading of public information about
strengthened. Upgrading of

The EESC reiterates its recommendation from 2004 that
the ND should be
this

the NDIS is needed for

Brussels, 28 September 2005.

purpose. The EESC also stresses that information should, above
all, be spread nationally and locally, as it is the responsibility of
the governments
states
concerned. Better information would stimulate broader interest
in the ND and encourage civil society actors to increase their
participation and contribution.

and relevant

authorities

in the

6.8
The financing of ND-partnerships should be determined
on case by case basis, and also the governments and the Inter-
national Financing Institutions (IFIs) should have a central role
in this respect. The Norwegian and EEA financial mechanisms
would as well be beneficial in spurring above all joint cross-
border ND-actions. The European Neighbourhood and Partner-
ship Instrument (ENPI) should become topical from beginning
of 2007.

6.9
The EESC will carry on its ND-related activities and has
the intention to contribute to the Senior Officials' meeting in
2006. The contribution may reflect also conclusions, based on
the Committee's discussions with CSOs in the partner coun-
tries. The EESC would be prepared to contribute to further
considerations on the future implementation of the Northern
Dimension.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND