Opinion of the European Economic and Social Committee on the Situation of civil society in the Western Balkans
Date: 2006-05-17
Institutions: European Economic and Social Committee
Subjects: European citizenship, Western Balkans, cooperation policy, foreign policy, promotion of the European idea, the EU's international role

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Official Journal of the European Union

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Opinion of the European Economic and Social Committee on the Situation of civil society in the
Western Balkans

(2006/C 195/23)

By letter dated 14 June 2005, Ms Margot Wallström, Vice-President of the European Commission, asked
the European Economic and Social Committee, under Article 262 of the Treaty establishing the European
Community, to draw up an opinion on the Situation of civil society in the Western Balkans.

The Section for External Relations, which was responsible for preparing the Committee's work on the
subject, adopted its opinion on 27 March 2006. The rapporteur was Mr Dimitriadis.

At its 427th plenary session, held on 17-18 May 2006 (meeting of 17 May), the European Economic and
Social Committee adopted the following opinion by 95 votes, nem. con. with one abstention.

The following opinion is in line with Article 9 of the Protocol
of Cooperation between the Commission and the European
Economic and Social Committee and meets the request of Euro-
pean Commission Vice-President Ms Margot Wallström for an
opinion on the situation of civil society in the Western Balkans
as a contribution to its strategic deliberations under the Stabili-
sation and Association Process (SAP).

The purpose of the present opinion is to:

national actor which is still not fully aware of the real situa-
tion in the Western Balkans and is still unable to coordinate
its various agencies.

— In a number of regions of the Western Balkans, and espe-
cially in Kosovo, a feeling of security has not been estab-
lished while ethnic disagreements lead to extreme animosity
in the region.

— give the best possible assistance to the Commission and the
in framing and implementing sound policies to

Council
support realistic and measurable objectives;

— The Union of Serbia and Montenegro does not meet the
expectations for the expected democratic federation of
states.

— enable European public opinion to gain a better under-
these policies and hence of
the positive
the EU and give the policies its informed

standing of
elements of
support;

— Bosnia-Herzegovina and Kosovo are constructed political
entities which have been imposed by international organisa-
tions, and there is no certainty that they will be viable in
the long term.

— make it easier to assess and, consequently, to improve or
revise the applied policies and measures when required,
insofar as their objectives are clear and uncontroversial,
particularly with regard to their direct beneficiaries;

— boost the EU's international image and weight, especially in
the troubled Western Balkans, by demonstrating that it is
sensitive to the real and urgent needs of
the region's
peoples, offering them know-how to help them achieve
prosperity;

— explain the role the EESC can play in the region as a bridge
between European civil society organisations and the corre-
sponding local organisations.

1. Summary

1.1 The EESC's comments

— The Copenhagen criteria are regarded as fundamental and

non-negotiable.

— The best way of developing a relevant integrated European
strategy is through civil society — which has tentatively
begun to play its role — and its organisations.

— The countries of the Western Balkans need constant direct
and substantial support both in terms of know-how and in
economic terms (support for direct and indirect foreign
investments).

— There is a need for a many-voiced and many-sided social
dialogue, and to establish a democratic legal operating
framework for civil society.

— An immediate priority is stamping out corruption and

making the judiciary a mainstay of society.

— Civil society organisations need to be financed.

— The EU lost a large part of its credibility at international
and local level during the Yugoslav crisis, with the result
that it is perceived in the region as a politically weak inter-

— The EESC considers it necessary to establish Joint Consulta-
the Western Balkan countries

tive Committees with all
when the conditions are favourable.

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1.2 The role and responsibilities of the EESC

— the EU should assess the statutes and aims of the social

partners' organisations.

— The EESC, with its substantial know-how and considerable
human resources, regards itself as particularly suitable to
play a more active role in the development of the above
policies, as evidenced by its major initiative of organising a
Forum in 2006 at its headquarters with the participation of
civil society organisations of the Western Balkans.

To the Member States of the Union bordering on the

C)
Western Balkans and the European civil society organisations:

— the Member States of the EU should take measures to

support civil society.

— It intends to offer its good offices as required to bring the
the Western Balkans into

civil society organisations of
contact with their EU counterparts.

— It can be used by the Commission to organise local infor-
mation meetings with civil society on subjects of special
interest and form a bridge of communication between civil
society and international organisations such as the IMF, the
World Bank, the EIB, etc.

— Systematic analyses-studies on the social situation in the
Western Balkans and the progress of civil society should be
planned, implemented and supported in cooperation with
the European Commission.

1.3 The EESC recommends and proposes:

To the national and regional political

A)
Western Balkan countries:

forces of

the

— that they align themselves more closely with the Com-
munity acquis, and that their governments accelerate their
efforts at democratisation;

— that all

the parties concerned show special respect

for

national and religious minorities.

B)

To the political bodies of the Union:

— the Commission should intensify efforts to complete proce-
dures on the stabilisation and association agreements with
the remaining states of the region and show stronger poli-
tical will and better coordination to enable its political and
consultative bodies to promote all the subjects on the Thes-
saloniki Agenda;

— the EESC regards education as the most important field for
supporting and developing society in the Western Balkans;

— a definitive settlement of the constitutional status of Kosovo
is of vital importance for security, peace and stability in the
region;

2. Historical background to the situation of civil society

in the Western Balkans

This opinion looks at civil society (1)

2.1
in the Balkans,
focusing on the following countries: Albania, Bosnia-Herzego-
vina, Croatia, FYROM and Serbia and Montenegro, and
including Kosovo in accordance with Resolution 1244 of the
Security Council of the United Nations.

At the summit meeting in Thessaloniki (June 2003), the
2.2
EU reaffirmed its commitment to integration into the Union of
the countries of the Western Balkans (2) when the situation
allows. The Stabilisation and Association Process (SAP) was
enhanced with new instruments to support the reform process.
Short-term and medium-term priorities were identified, and the
first set of European Partnerships was approved in 2004.

However, the political situation in the region is still
2.3
unstable: the final status of Kosovo has not yet been resolved,
relations between Serbia and Montenegro are in flux, and the
slow progress
in Bosnia-Herzegovina could stop at any
moment.

2.4
The missions of the EESC Contact Group to Croatia, to
Bosnia-Herzegovina (21-22 March 2005), to Serbia and Monte-
negro (26 May 2005), to the Former Yugoslav Republic of
Macedonia and to Albania reported a positive response to the
Civil Society Forum organised by the EESC. However, they also
highlighted the difficulties in achieving constructive social
dialogue and dialogue involving civil society organisations
given that there is no real representative participation of the
social partners, and that certain organisations claiming to
represent civil society lack legitimacy (3). Interaction between
governments and civil society has gradually increased, but it
has not yet reached the level needed in practice to produce
substantial results and cooperation.

i.e.:

(1) The definition of civil society here is the same as in previous EESC
opinions,
(2)
organisations representing other economic and social interests, (3)
non-governmental organisations (NGOs),
(4) grassroots organisa-
tions, (5) religious associations.

(1) organisations of employers and employees,

(2) EESC opinion on Promoting the involvement of Civil Society Organisa-
tions in South-East Europe (SEE) – Past Experiences and Future Challenges
(rapporteur: Mr Wilkinson, OJ C 208 of 3.9.2003, p. 82).

(3) EESC opinions on The role and contribution of civil society organisations
in the building of Europe (OJ C 329 of 11.11.1999) and on Organised
civil society and European governance: the Committee's contribution to the
drafting of the White Paper (OJ C 193 of 10.7. 2001).

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2.5
The weakness of democratic institutions, the political
environment and the security situation in the countries of the
region have so far prevented structured social dialogue with
independent and representative social partners, which must be
based on internal discussion among the social partners and
should continue to be supported by the EU with its rich experi-
ence and expertise.

3. General situation of civil society organisations

3.1 Social partners

This opinion is based on the follow-up to the summit
2.6
meeting in Zagreb (November 2000), the Thessaloniki Agenda
(June 2003) and all other EU initiatives on this region, focusing
on economic, political, social and cultural issues.

2.7
The current situation of civil society organisations has
not changed significantly from that described in the EESC's
opinion on The role of civil society in the new European strategy for
the Western Balkans (4). The situation can be summarised as
follows:

With the conclusion of free-trade agreements in the Balkans it
is now necessary to establish formal representation of
the
social partners in the region and at the same time establish
integrated representational structures at national level.

The European capacity-building programmes (5) are essential, in
relation especially to trade unions' and employers' associations
operating on the periphery. Best practice is needed for interre-
gional cooperation since the social partners should address
regional issues through cooperation in the run-up to a single
Free Trade Agreement in 2006.

Engaging the public sector in the countries concerned is often
a struggle, and public-private dialogue must be ensured and
promoted.

— ongoing and strenuous efforts by trade unions to establish
their new role in free-market economies and societies in
which the private sector now contributes to growth;

3.2 Other organisations

— efforts to release employers' organisations from the stric-
tures of state control, due to previous public ownership; the
situation has changed now because after the collapse of the
old regimes, the state played a special role in setting up
new businesses and helping people to become entrepre-
neurs, who have received generous support from interna-
tional investors;

Existing civil society organisations in the Balkans can be
grouped into four general categories: (a) organisations set up to
oppose the old regimes,
(b) NGOs whose operations are
depend entirely on donations and which were set up to imple-
ment international development aid programmes,
(c) highly
specialised organisations which usually work with the most
vulnerable groups and (d) farmers' unions.

— diverse — but in certain cases ineffective — efforts which

require more coordinated cooperation.

2.8
The social situation more generally in the Balkans
remains problematic. Despite steps forward, social and political
institutions and structures are not yet consolidated. The war
created very deep rifts which have not yet been bridged. This
means that the efforts of international and European organisa-
tions have not had the expected impact, which is due among
other things to the lack of a single model of social dialogue
and dialogue involving civil society organisations in which the
various groups and organisations of civil society should play
distinct, very clear roles in terms of their rights, remits and
obligations.

(4) EESC opinions on The role of civil society in the new European strategy
for the Western Balkans (rapporteur: Mr Confalonieri, OJ C 80 of
30.3.2004, p. 158) and on Promoting the involvement of Civil Society
Organisations in South-East Europe (SEE) – Past Experiences and Future
Challenges (rapporteur: Mr Wilkinson, OJ C 208 of 3.9.2003, p. 82).

Sustainability and donor independence are the most
important issues that must be addressed in the immediate
future. Since organisations of the first type have generally
existed for longer and are directly involved in the political
debate, they have become widely recognised. However, they are
facing serious difficulties in ensuring financial sustainability.
Organisations in the second group are much less visible and
very numerous, and seem to have been set up to meet the
wishes of the donor community. The majority of these are
certain to disappear owing to lack of donors.

Capacity-building and inter-NGO and regional cooperation
must be addressed, but the most important issue is how to
bridge the critical gap as international funds are reduced and
local funding is not yet available. There is a risk that much of
the social capital built up by civil society will be lost and that
there will be a return to violence.

(5) CARDS (Community Assistance for Reconstruction, Development
and Stabilisation), Council Regulation (EC) No 2666/2000 of
5 December 2000.

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4. Structural problems of the Western Balkans and their
effect on the development of organised civil society

4.1 Corruption

This is the most serious structural problem, and is due to ineffi-
cient public administration, the lack of a serious and effective
institutional and legal framework, the absence of an indepen-
dent judiciary, the unfavourable economic conditions, poverty
and the absence of substantial action by civil society organisa-
tions.

4.2 Violation of human, individual and social rights

Despite the efforts of international organisations — which are
not always successful — violations of individual rights by the
authorities are still regularly observed. The biggest problem,
however, is that the judiciary appears quite unaware of the role
it should play here.

The countries' accession in principle to the institutional frame-
work of the Council of Europe is a positive development.
However, in many situations the absence of a political will to
see implementation through, and the intrusion of minority and
religious divisions into the social dialogue, make it particularly
difficult
rapprochement and
communication.

to achieve a broad climate of

4.3 Ineffective governance — public administration

instability caused by radical

The political and social
internal
political conflicts is the main cause of poor governance in the
region, manifest in serious malfunctioning of public administra-
tion, which in turn encourages lack of accountability and
corruption.
International and European efforts to modernise
public administration have not yet brought about any signifi-
cant improvement.

4.4 Absence of dialogue with civil society

Social dialogue (6) with civil society organisations requires not
just a legal framework, but also mutual respect between the
parties concerned and efforts to understand and moderate
opposing views, and above all a culture of conflict resolution.
The Western Balkans region has never had real social dialogue
because of the authoritarian regimes and sham organisations
which were strictly controlled by the state. Undoubtedly, suffi-
cient time must be allowed to achieve the necessary quality and
depth in social dialogue.

4.5 Need for authenticated, representative civil society organisations

The plethora of civil society organisations raises legitimate
questions as to the actual social situation in the region. Many
of the organisations in question were set up at the request or
insistence of international bodies, which fund them, and often

(6) Conference on Strengthening Social Dialogue in the Western Balkan
Countries, DG Employment, Social Affairs and Equal Opportunities,
6–7 Oct. 2005, Skopje.

provide the social welfare and assistance that should be deliv-
ered by the state. Yet others were set up on the initiative of
international civil society organisations and other NGOs, which
also directly influence their activities. And some are the result
of local initiatives that conceal party-political, ethnic, minority
or religious interests.

5. Comments of the EESC on the social, political and
economic situation in the Western Balkans and the
European strategy

5.1
The EU lost, at international and local level, a large part
of its credibility in the Yugoslav crisis and in the course of the
war in the formerly united Yugoslavia, because of its lack of
specific intervention policies.

In the context of

5.2
the stabilisation and association
process, the European Commission will need to define a clearer
political strategy to confirm its presence in the region. The
European Commission will need to increase its commitment to
improving the quality of its actions and its image in the region.

5.3
It should be pointed out that in a number of regions of
the Western Balkans, and especially in Kosovo (7), a feeling of
security has not been established and peace has not been
consolidated, because of ethnic tensions; the Union of Serbia
and Montenegro does not meet the criteria for the creation of a
democratic Union of States (8).

5.4
Bosnia-Herzegovina and Kosovo are constructed poli-
tical entities which have been imposed by international organi-
sations and there is no certainty that they will be viable in the
long term. There is therefore an immediate need for their poli-
tical problems to be substantially solved in ways which will
guarantee economic prosperity, protection of
the rights of
minority and religious groups and the strengthening of demo-
cratic structures guaranteed by international organisations. The
of multilateral negotiations which started in 2005 under UN
auspices, on the future of Kosovo, constitutes the only hope of
solving this intractable problem.

The EESC believes that

the EU should increase its
5.5
presence in the region through strong, practical
information
and communication policies, and that it should clarify on the
one hand its policy in the region, and on the other the cost for
the countries concerned of their integration into the EU (9).

the countries of

The Copenhagen criteria should also be regarded as
5.5.1
fundamental and non-negotiable for
the
Western Balkans which wish to accede to the EU. However, for
the process to make substantial progress and for these criteria
to be met, the EU will need to use its mechanisms to intervene
directly not only in the institutional frameworks of the coun-
tries concerned, but also in putting the Community acquis into
practice.

(7) EP Resolution P6_TA(2005)0131: Regional

integration in the
western Balkans – EP resolution on the state of regional integration
in the Western Balkans.

(8) The Austrian EU Presidency 2006 – Federal Minister of Foreign

Affairs – 23 November 2005 – European Foreign Policy.

(9) EESC opinion on The role of civil society in the new European strategy
for Western Balkans, 10 December 2003 (rapporteur: Mr Confalonieri,
OJ C 80 of 30.3.2004, p. 158).

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5.6
In this context, the best way to develop a relevant inte-
grated European strategy is through civil society and its organi-
sations. More specifically, organised civil society provides a
unique opportunity to ensure order in the long-term transition
process and to guarantee that the cooperation and intervention
programmes will prove to be genuinely effective for their final
beneficiaries.

5.7
The information available to the EESC and the relevant
knowledge it has acquired about the region — especially after
the setting up of the Western Balkans contact group — lead it
to make the following conclusions and comments:

5.7.1
Racial and ethnic disagreements can at any moment
lead to extreme animosity in the Western Balkans; the tension
is smouldering under the surface and can suddenly flare up.

Civil society (10) has tentatively started to play its role,
5.7.2
but this is usually based on foreign financing while know-how
and credibility are absent in some cases.

5.7.3
Acceptance of the EU's Charter of Fundamental Rights
is a basic precondition which should be accepted by all the
states of the region which wish to join the EU.

5.7.4
The countries of the Western Balkans need constant
direct and substantial support, both in economic terms and in
terms of know-how, in order to strengthen their newly estab-
lished institutions and acquire the necessary democratic sensi-
tivity. Provision of this assistance will need to be better coordi-
nated and, in the case of the EU, require closer cooperation
between the European Agency for Reconstruction and the EU
delegations in the area.

for putting

Basic preconditions

5.7.5
and
economic life of the countries concerned back onto a normal
footing are to strengthen the many-voiced and many-sided
social dialogue and to create a democratic legal operating
framework for civil society which will be applied in practice.

social

the

In particular, strengthening the social dialogue requires:

a) recognising the role of the social partners;

b) recognising the role of the autonomy of the social partners;

c) respect for the right of the representative organisations to
be well informed, to be consulted and to express a view on
all economic and social subjects.

5.7.6
There is also a need to stamp out corruption by estab-
lishing strict but, as far as possible, simple rules and to adhere
to them rigorously through the use of new technologies.

5.7.7
Finally, civil society organisations need to be financed;
this is the greatest problem for their development and particu-
larly for the development of the dialogue.

(10) EP Resolution P6_TA(2005)0131.

5.7.8
The judiciary must become a mainstay of society. To
that end it must be particularly supported and strengthened so
that it can play its institutional role according to European
models.

Economic cooperation between the states of the area
5.7.9
is the key to an overall integrated process of transition to the
Community acquis. This cooperation will also help substantially
to reduce tensions and create further opportunities for develop-
ment and prosperity.

5.7.10
The intercultural, interfaith and interethnic dialogue
will facilitate the creation of channels for rapprochement and
communication between the countries of the Western Balkans.
The religious leaders of the area are called upon to play a vital
role in this field, defusing tensions and supporting attempts to
strengthen the dialogue.

5.7.11
The EESC takes the view that the economic develop-
ment of the area can be achieved through support for direct
foreign investment and the necessary privatisations which will
transfer capital and know-how, will help to reduce the public
sector and will constitute the beginning of substantial positive
developments
remaining social and political
problems. For this aim to be achieved, it is necessary for the
banking sector, as well as the institutional
to
operate reliably, applying the recognised and certified interna-
tional rules, in order to stamp out corruption in all its forms
(money laundering, smuggling etc.).

framework,

for all

the

The European Central Bank and the EIB are called upon to play
a special coordinating role in the area.

International organisations (IMF, World Bank, ILO,
5.7.12
UN, etc.) need to cooperate more closely with the representa-
tive organisations of civil society to strengthen their role within
each society in the Western Balkans area.

The EESC notes

5.7.13
the coordination between
that
various EU bodies in the area has improved substantially. The
(EAR) manages
for Reconstruction
European Agency
programmes involving hundreds of millions of Euro, some of
which depend on or lead to the development of human
resources or more specifically workforce training. Mention
should also be made of the work of the European Training
Foundation (ETF) and CEDEFOP (European Centre for the
Development of Vocational Training), which,
thanks to its
excellent cooperation with the ETF and its direct proximity,
could put its rich experience and know-how at the disposal of
the countries of the region. In addition to the EU agencies, the
role of the Stability Pact should also be emphasised, although
its future remains unclear, and this could weaken its influence
in the region.

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6. Proposals and recommendations of the EESC

6.1

Role and responsibilities of the EESC

support this particular initiative by every suitable means, to
back up its initiatives in support of representative civil society
organisations at national and regional
level and to take due
account of the results of the Forum.

With a view to bringing the economic, social and cultural
reality in the Western Balkans closer in civil society terms to
the corresponding Community acquis, a new view of
the
process is required. First and foremost, the experience acquired
in the major enlargement
through the Joint Consultative
Committees (JCCs) must be put to good use, and there should
be greater involvement of organised civil society in all stages of
formulation and development of the relevant policies. Also
needed is a more systematic and clearly institutional involve-
ment of organised civil society from both sides in the political
negotiations between the EU and the Balkan Governments.
Finally, integrated measures are required according to region
and objective.

6.1.1 With its considerable human resources and important
know-how (11) acquired during the EU accession negotiations of
the ten new Member States in the Joint Consultative Commit-
tees, but also in the Joint Consultative Committees with
Bulgaria, Romania and Turkey which are still operating, the
EESC feels it is particularly well-placed to play a more active
role in the development of the above policies in conjunction
and in cooperation with the Committee of the Regions and
through the joint organisation of initiatives in the region.

6.1.2
The EESC has good information and contacts, particu-
larly since the setting-up of the Western Balkans contact group
and the visits of some of its members to the region; this infor-
mation and these contacts enable it to serve the aims of the
Thessaloniki Agenda on the more important economic, social
and cultural subjects on which more active and more rapid
adoption of European rules and positions in the countries of
the Western Balkans is needed.

In line with the above, the EESC attaches importance
6.1.3
to its initiative for a Forum with the civil society organisations
of the Western Balkans, to be held at its premises in 2006,
because it will bring all the major civil society organisations of
the Western Balkans into direct contact with the EESC and
European bodies in general. It calls upon the Commission to

(11) The EESC has so far made the following contributions on the
Western Balkans: (1) Information report on Relations between the
European Union and certain countries in south-east Europe, adopted on
(2)
23.7.1998 (rapporteur: Mr Sklavounos, CES 1025/98 fin),
Own-initiative opinion on Development of human resources in the
(rapporteur: Mr Sklavounos, OJ C 193 of
Western Balkans
10.7.2001, p. 99), (3) Action plan 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, in cooperation with
the European Institute for Vocational Training (EIVT) and the Inter-
national Labour Organisation (ILO), (4) Own-initiative opinion on
Promoting the involvement of Civil Society Organisations in South-East
Europe (SEE) – Past Experiences and Future Challenges (rapporteur: Mr
Wilkinson, OJ C 208 of 3.9.2003, p. 82), (5) Exploratory opinion
on The role of civil society in the new European strategy for the Western
Balkans (rapporteur: Mr Confalonieri, OJ C 80 of 30.3.2004, p.
158), (6) EESC Opinion on a Wider Europe – Neighbourhood: A New
Framework for Relations with our Eastern and Southern Neighbours
(rapporteur: Ms Alleweldt (OJ C 80 of 30.3.2004, p. 148).

6.1.3.1
The EESC is prepared, if asked, to make its services
available to put civil society organisations in touch with their
European counterparts, for the purposes of transferring know-
how and making their activities in the Western Balkans more
productive.

6.1.3.2
The EESC is specifically interested in those civil
society organisations that are in financial difficulty and have
trouble covering their operating costs with their own funds. It
therefore also supports their reinforcement as part of
the
implementation of the Stability Pact.

6.1.3.3
The EESC is similarly interested in the problems of
agricultural communities in the Western Balkans. For this
reason,
it urges the Commission to pay greater attention to
these issues and offer the appropriate know-how and expertise
necessary to bring the primary sector up to date.

The EESC takes the view that

6.1.3.4
the promotion of
economic reforms and economic development in the region is
a very basic factor in solving structural problems. Support for
SMEs (12) via their
is a basic
precondition for the economic prosperity of the region and can
be achieved through the application of best practice already
applied in the EU Member States. The EESC has the necessary
know-how and human resources to back any such efforts.

representative organisations

In this respect and in cooperation with the European
6.1.3.5
Commission, the EESC could participate in national and local
information meetings with civil society.

6.1.3.6
The EESC could contribute to the dissemination of
information on the activities of international organisations in
the region which are linked with civil society organisations. In
addition, in the context of the joint declaration between the
Director-General of the ILO and the President of the EESC, it
could develop joint activities with the ILO in the region, parti-
cularly to strengthen the social dialogue.

(12) Communication from the Commission to the Council and the
European Parliament: The Western Balkans and European integra-
tion. COM(2003) 285 final – 21.5.2003.

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6.1.3.7
The European Commission and the EESC should
plan, initiate and support systematic analyses of the social situa-
tion in the Western Balkans and the progress made by civil
society, centring in the main on the ‘investment effort/effective-
ness’ relationship. ‘Performance indicators’ can be used (or new
ones designed where none exist) for both hard and soft invest-
ment, so as to pinpoint any weaknesses or gaps in current EU
policies and actions and make the necessary improvements or
adjustments; for instance classifying the various civil society
organisations according to certain basic characteristics (e.g.
their raison d'être, aims, articles of association, geographical
cover, operating methods and controls, sources and level of
funding, etc.).

6.2
The EESC is prepared to set up Joint Consultative
Committees with all the states of the region as soon as condi-
tions allow.

6.3
The EESC, on the basis of the relevant experience and
knowledge it has acquired through its contacts with civil
society organisations in the countries of the Western Balkans,
urges and recommends the following:

6.3.1 Recommendations to the national and regional poli-
tical forces of the countries of the Western Balkans:

The EESC recommends to the countries of

6.3.1.1
the
Western Balkans that they pursue their alignment with the
Community acquis more actively, and particularly that part of it
which concerns protection of individual, social and collective
through provisional National Development Plans
rights,
comparable to the plan prepared by Turkey,
in order to be
ready to absorb assistance from the EU in future.

6.3.1.2
The EESC calls upon the governments of those coun-
tries to intensify their efforts in favour of democratisation, and
to support social cohesion by strengthening the dialogue with
civil society organisations.

The EESC calls upon all the parties involved to show
6.3.1.3
respect particularly for national and religious minorities, safe-
guarding their individual, religious and political rights and
protecting religious and cultural monuments.

6.3.1.4
The EESC welcomes the progress towards comple-
tion of the procedures with all the countries of the stabilisation
and association agreements.

6.3.2 Recommendations to the political bodies of

the

Union:

6.3.2.1
Given that the absence of know-how and of a legal
framework leads to considerable problems of gender equality,
environmental protection, and protection of consumers and
disadvantaged groups in the region, the EESC calls upon the
Commission to help the countries of the Western Balkans to
achieve the necessary modernisation in a shorter time.

6.3.2.2
The EESC calls upon the Commission to initiate
procedures for further strengthening of links between the EU
and the states of the region following on from the individual
stabilisation and association agreements concluded with the
Former Yugoslav Republic of Macedonia and with Croatia, to
step up efforts to complete the procedures also with the
remaining states of the region and to demonstrate stronger
political will and better coordination to promote all aspects of
the Thessaloniki agenda (13).

6.3.2.3
important
constant updating.

The EESC regards the Thessaloniki agenda as an
requires
text on cooperation which, however,

The EESC regards education as the most important
6.3.2.4
field in which the EU should support
the societies of the
Western Balkans. Better education and reducing illiteracy can
substantially mitigate the strong ethnic, religious and minority
differences and, in conjunction with economic prosperity and
the strengthening of democratic institutions, can lead the
peoples of the Western Balkans to better levels of governance.
The Commission can play an exceptionally important role in
the field of education and culture, especially by developing
support programmes for exchanges between scientific staff and
training of new scientists.

6.3.2.5
In this context it is necessary to draw particular
attention to the EU's growing geopolitical, economic and social
blind spot due to the absence of the Western Balkan countries
from its structures.

6.3.2.6
The EESC therefore recommends complete incor-
poration of the Western Balkans in the development strategy of
the EU,
through the strengthening of the Stabilisation and
Association Process and further measures if necessary, because
of the region's special difficulties.

6.3.2.7
By the same token, better coordination between the
political institutions of the Union is recommended, as well as
between its consultative bodies (EESC and Committee of the
Regions) with the aim of creating conditions for more effective
development of the programme in question.

6.3.2.8
The EESC takes the view that the definitive settle-
ment of the question of Kosovo's sovereign status is of vital
importance for security, peace and stability in the region, and
calls upon the Council, the Commission and the European
Parliament, in keeping with their respective responsibilities, to
contribute to the efforts of the UN and of the UN Secretary-
General's Special Mediator.

6.3.2.9
The EU should provide special visas for the represen-
tatives of organised civil society and those of representative
organisations, and display greater general flexibility (14).

(13) The Thessaloniki agenda for the Western Balkans: Extracts from
successive General Affairs and External Relations Council, 16 June
2003.

(14) EP Resolution P6_TA(2005)0131.

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Official Journal of the European Union

C 195/95

6.3.2.10
The EU must proceed with an assessment of
workers' and employers' organisations in order to assess their
articles of association, goals, organisation and working prac-
tices, sphere of activity (public or private sector), level of repre-
sentation (among all businesses and workers or by sector), etc.,
with a view to the European Union having reliable organisa-
tions with which to cooperate. Analyses of this kind would be
further facilitated were the EU to make the compilation and
publication of the necessary data (i.e. transparency) a precondi-
tion for the approval of each type of support granted to public
and private organisations and representative organs of civil
society.

This work could be conducted internally,
i.e. by the institu-
tional bodies of the EU (Commission, EESC, etc.) or, where
necessary, entirely or in part by an external agent.

6.3.3 Recommendations

to EU Member States bordering the

Western Balkans and European civil society organisations

6.3.3.1
The EESC recommends that EU Member States (such
as Italy, Hungary Slovenia and Greece) act to strengthen civil
society there, particularly regarding strategy, making the most
of human resources, management and the Europeanisation of
institutional and legislative structures.

6.3.3.2
At the same time, the EESC calls for greater aware-
ness and dynamism on the part of European employers' and
workers' organisations and European organised civil society
more generally regarding the need to involve corresponding
organisations in the Western Balkans in relevant European
structures and operations.

6.3.3.3
This means that both the action taken by Member
States surrounding the Western Balkans and the corresponding
work of European civil society organisations must tie in with
the above-mentioned medium-
to long-term programme of
economic, social and political development.

6.4 Financing

The EU possesses a range of financial tools aimed at
6.4.1
strengthening civil society in the Western Balkans. Meanwhile,
other international organisations and countries grant develop-
ment aid to a number of civil society organisations in the
region. Although this type of aid is generally a good thing,
there are a number of dangers relating mainly to the way in
which it is given. The main problems with the application of
foreign development aid in the Western Balkans are the
following:

6.4.1.1
International aid to the Western Balkans may be
relatively substantial in economic terms but more often than

the interests of

not it is tied to priorities laid down by the donors that do not
take into account
local stakeholders and
confuses initiatives for institutional change with isolated initia-
tives that do not tie in with the existing power and social struc-
tures or the interests and traditions of the countries receiving
help. Frequently, all the work is given to NGOs in the countries
receiving assistance and those NGOs are entirely dependent on
the international aid programmes and propose initiatives that
tie in with the priorities of the donors rather than the benefici-
aries' needs.

changed their

6.4.1.2
The performance of international development aid
programmes in the Western Balkans is undermined in particu-
lar by the lack of coordination between the various donors and
the extremely short time-scale of programmes often funding
one-off initiatives. In many cases initiatives that are starting to
show positive results are abandoned because donors have
suddenly
their
programming on much smaller time-scales than those really
needed in the countries of the Western Balkans. The funding
mechanisms of the EU and the other international organisations
must take on board the fact that the frequent changing of
funding priorities
is not effective. Training and capacity
building programmes usually fall within this category. Simi-
larly, support for institutions is increasingly piecemeal, often
involving conferences and small seminars rather than genuine
technical assistance.

funding priorities, basing

6.4.1.3 Many NGOs work on social initiatives in order to
generate an income. This has lessened the ability of such NGOs
to forge real links with society and achieve their stated goals.
Many NGOs mistake their role for that of technical support
programme managers and operate on the basis of private-
sector economic criteria aiming to secure greater funding.

In view of the need to address the above-mentioned
6.4.2
problems so as to provide civil society organisations with more
practical support, the EESC recommends the following with
regard to the funding of such work:

The EU must

6.4.2.1
aid
target
programmes and those planned for 2007-2013 mainly at the
areas of democratic governance, economic administration and
environmental management.

current development

the Western Balkans must
6.4.2.2
The governments of
develop clear operational programmes
to empower civil
society, and these programmes must be discussed with the EU.
It is therefore proposed that regular contact should be estab-
lished between the Commission, the EESC and local govern-
ments for the development of such programmes.

C 195/96

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Official Journal of the European Union

18.8.2006

6.4.2.3
A particularly robust system is needed to monitor
the results of development aid programmes in the field of civil
society. The EESC could play a major role in such a system.

6.4.2.4
The planning of development aid programmes must
be tailored to the practical needs of civil society. Development
aid aimed at the creation of new civil society institutions could
make extensive use of EESC technical support.

6.4.2.5
After the Forum on the Western Balkans to be orga-
nised by the EESC, a permanent management working group
could be set up by the EESC Contact Group and representatives
of organised civil society in the Western Balkans. This group
would help civil society organisations shape their strategies and
operational agenda, and would supply best practice and know-

how to bolster civil society in the EU Member States and the
countries of the Western Balkans.

In the EU's Financial Perspective for 2007-2013 the
6.4.2.6
‘territorial cooperation’ objective must give consideration to the
financial means earmarked to assist third countries. Financing
mechanisms for third countries must be simplified, without of
course sacrificing existing transparency, and be strengthened in
neighbourhood policies. The experience of programmes such
as CADSES must be put to use and propagated.

6.4.2.7 While planning development aid programmes for
civil society, the EU must take into account the development
programmes of other international organisations. Cooperation
with the programmes and special services of the UN should be
deepened and extended to operational level.

Brussels, 17 May 2006.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND

Opinion of the European Economic and Social Committee on the EU campaign to conserve biodi-
versity: position and contribution of civil society

(2006/C 195/24)

In a letter dated 13 September 2005, the Austrian presidency, acting under Article 262 of the EC Treaty,
asked the European Economic and Social Committee to draw up an exploratory opinion on the: EU
campaign to conserve biodiversity: position and contribution of civil society.

The Section for Agriculture, Rural Development and the Environment, which was responsible for preparing
the Committee's work on the subject, adopted its opinion on 26 April 2006. The rapporteur was Mr Ribbe.

At its 427th plenary session, held on 17 and 18 May 2006 (meeting of 18 May), the European Economic
and Social Committee adopted the following opinion by 125 votes to none, with four abstentions:

1. Summary of the Committee's conclusions and recom-

mendations

The EESC welcomes the commitment of all the Euro-
1.4
pean institutions and, as contracting parties to the Convention
on Biological Diversity, of the EU Member States not only to
halt but also to reverse this decline.

Biodiversity is the foundation and guarantee of life on
1.1
our planet. Economic self-interest alone dictates that humanity
must strive to keep ecosystems stable. We also owe a debt of
responsibility to the natural world to maintain species diversity.
Protecting biodiversity is not some ‘luxury’ to be indulged in or
dispensed with at will.

Humanity itself is the greatest beneficiary of biodiversity;
1.2
yet it is humanity that is, at the moment, the main cause of its
decline.

1.3
As the EESC sees it, biodiversity in Europe remains
under extreme threat. EU action to date has not been enough
to halt the decline of the past few decades.

That said, however, the EESC laments the huge gulf that
1.5
has grown up between ideal and reality: public authorities have
so far failed to make the contribution to conserving biodiversity
that might have been expected of them. In fact, in this field, it
is their duty to be role models; instead, planning decisions and
support schemes are often instrumental in imperilling biodiver-
sity still further. Moreover, in the 2007-2013 funding period,
particular savings are to be made in precisely those EU policy
areas that are of key importance for biodiversity protection.