Opinion of the European Economic and Social Committee on The future of the Northern Dimension policy
Date: 2006-07-05
Institutions: European Economic and Social Committee
Subjects: EU policy, Iceland, Norway, Russia, cooperation policy, cross-border cooperation, regional cooperation

16.12.2006

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Official Journal of the European Union

C 309/91

Opinion of the European Economic and Social Committee on The future of the Northern Dimen-
sion policy

(2006/C 309/19)

On 17 November 2005, in connection with the activities of the upcoming Finnish Presidency of the Euro-
pean Union, H.E. Mari Kiviniemi, Minister for Foreign Trade and Development of Finland, requested by
letter an opinion of the European Economic and Social Committee on The future of the Northern Dimension
policy.

The Section for External Relations, which was responsible for preparing the Committee's work on the
subject, adopted its opinion on 1 June 2006. The rapporteur was Mr Hamro-Drotz.

At its 428th plenary session, held on 5 and 6 July 2006 (meeting of 5 July), the European Economic and
Social Committee adopted the following opinion by 162 votes, with five abstentions.

Summary

— At their meeting in November 2005, ministers from the
Northern Dimension (ND) countries (EU, Iceland, Norway,
Russia) agreed on guidelines for the continuation of the ND
policy which were to serve as the basis for drawing up a
common policy to take effect from 2007 onwards.

— Finland, as the country due to hold the EU presidency in
the second half of 2006, asked the EESC to deliver an
exploratory opinion on how the ND policy could be
in the
strengthened and how civil society involvement
policy could be improved.

— The EESC supports the guidelines and calls on Finland, as
the country holding the EU presidency, to press for the
achievement of the new policy.

— The EESC proposes the following priority areas:

— existing cooperation projects in the environmental and

national health sectors;

decision be taken on where its operational centre be
located. It further suggests that the existing regional bodies
represent a natural starting point
for administering the
Northern Dimension.

— The EESC proposes that civil society be involved in a
consultative capacity in the formal mechanisms for admin-
istering the Northern Dimension, along the lines of the
the Mediterranean. The EESC is
Barcelona Process for
prepared to make an active contribution to such an
arrangement.

1. Background

A meeting of ministers from the EU Member States and
Northern Dimension partner
(Iceland, Norway,
Russia) was held in November 2005 at which new guidelines
for the continuation of the Northern Dimension (ND) from
2007 onwards were agreed (Guidelines for the development of a
political declaration and policy framework document) (1).

countries

— infrastructure, transport and logistics;

— energy and related safety matters;

The ND parties have set up a joint steering group to carry out
the preparatory work in line with these guidelines. In autumn
2006 the parties will decide on the continuation of
the
Northern Dimension on the basis of this work.

— strengthening civil society and civil society cooperation

networks and improving public information.

— Following on from the previous point, attention needs to
be drawn to the need to establish constructive and open
relations with civil society in Russia and effective social
dialogue.
In addition, cross-border civil society networks
should be supported and public information efforts stepped
up.

— The EESC stresses the need for adequate funding for ND
projects and a related project application procedure which
is clear, swift and simple.

With a view to its EU presidency in the second half of 2006,
Finland asked the EESC in November 2005 — with reference
to its previous contributions on the Northern Dimension policy
— to present an exploratory opinion on the future of the
policy. Finland requested that the opinion set out views and
recommendations in particular about how the policy should be
strengthened from the beginning of 2007 and how civil society
involvement in the policy and its implementation could be
improved.

Brief background information on the Northern Dimension and
the EESC's previous contributions is provided in the Appendix.

— The EESC proposes that strong, joint mechanisms be estab-
lished for administering the Northern Dimension and that a

(1) http://europa.eu.int/comm/external_relations/north_dim/doc/guideli-

nes05.pdf.

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2. The EESC's

recommendations

for developing the

Northern Dimension

The EESC issued an opinion on the development of EU-Russia
relations (2) in July 2005 and an opinion on the future of the
EU's Northern Dimension (3) in September 2005. The conclu-
sions and recommendations presented in these documents
remain topical and relevant even though they are not restated
here. The present opinion complements the above-mentioned
opinions, and these will also be referred to when the recom-
mendations set out
in this opinion are presented to the
Northern Dimension parties.

As part of the preparatory work for the present opinion, the
EESC made a fact-finding mission to St. Petersburg to hear the
the Northern
views of
Dimension. Norwegian and Icelandic
stakeholders were
consulted through the EESC's EEA contacts.

local stakeholders on the future of

2.1 The EESC supports regional cooperation consistent with a high-
profile, common ND policy involving the EU, Iceland, Norway
and Russia

Northern Europe has become increasingly important at Euro-
pean and global
level, for example in terms of the energy
resources it possesses and environmental and climate policy
issues. Northern Europe needs close multilateral regional coop-
eration, with non-EU states in the region also taking part. Such
cooperation complements bilateral relations between countries
in the region and the EU's relations with non-EU states.
Regional cooperation can help to promote stability, economic
growth, well-being and sustainable development in the region
and Europe as a whole.

It is clear that the Northern Dimension needs to be given a
higher profile in the European Union and the partner countries.
It should be made into a clearly structured, high-profile policy
in EU (and EEA) institutions, national governments and civil
society.

The EESC asks Finland, as the Member State holding the EU
presidency, to give high prominence to this issue and to seek
to ensure that resolute decisions are taken and a political
commitment is made to dynamic policy. With EU enlargement,
Member States have joined which constitute a welcome new
resource for developing the Northern Dimension. The EESC
also endorses the proposed guidelines according to which the
Northern Dimension would become an ongoing policy.

At the EU-Russia summit in May 2006, the parties stated that
they were considering the start of negotiations on a new agree-
ment between the EU and Russia. This would provide further
opportunities for developing regional and cross-border coop-
eration based on a dynamic ND policy. A common ND policy
would also provide a framework for building a more soundly
based EU Baltic Sea strategy, which is currently under prepara-
tion by the European Parliament.

The EESC is pleased to note the adoption by the EEA Consulta-
tive Committee in June 2006 of a resolution and report on The
future of the Northern Dimension Policy, which were drawn up in
close cooperation with the EESC during the preparation of the
present opinion.

The idea of the ‘co-ownership’ of the Northern Dimension
process is crucial and should be emphasised from the outset.
Non-EU Northern Dimension countries should play a full part
in the process and be allowed to participate on equal terms in
the planning, implementing and monitoring of policy.

This requires strong mechanisms, namely: a joint standing ND
governing committee, an appropriate number of sub-bodies
working under it and an effective body responsible for opera-
tional functions. The parties should meet annually to monitor
and provide guidance for the implementation of ND coopera-
tion.

is important

As Northern Dimension activities are frequently local initiatives
it
links between local, sub-regional and
national levels of government and regional cooperation bodies
function effectively in planning and implementing the ND
policy.

that

2.2 The EESC's recommended priority areas

The EESC believes that the experience obtained to date from
the Northern
cooperation in the various priority areas of
Dimension should serve as the starting point for future policy.
There is a need to build upon the positive practical experience
gained from private-public partnership projects.

2.2.1 Incr e a se d

foc u s
i n th e

on

e x i sti ng
e nv i r onme nta l

c oop e r a t i on
a nd na ti on a l

p r o j e c ts
h e a lt h se c t or s

The EESC supports the strengthening of the Northern Dimen-
sion as a common policy of the EU,
Iceland, Norway and
Russia. It should be firmly based on key existing instruments
for cooperation: the ND policy should form a regional dimen-
sion of the four Common Spaces between the EU and Russia,
with Iceland and Norway participating in this new overarching
framework in accordance with the EEA Agreement.

As regards existing environmental cooperation within the
Northern Dimension, the main emphasis should be on stopping
water pollution in the Baltic and the Gulf of Finland, immediate
action to reduce the risk of pollution caused by nuclear waste
in the Kola Peninsula and support for cross-border cooperation
projects in the environmental field in the Pskov region.

(2) EESC opinion on EU-Russia relations, OJ C 294 of 25.11.2005, p.33.
(3) EESC opinion on the Northern Dimension and its Action Plan, OJ C

24 of 31.1.2006, p.34.

The prime concern in national health cooperation is action to
combat communicable diseases, in particular HIV/AIDS.

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projects

The EESC urges the ND parties to devote greater efforts to
these priority areas within the framework of existing partner-
ship
in
St. Petersburg, NDPHS). Determined action should be taken to
strengthen and expand these projects
that
increasing attention is paid to them in the EU.

the Vodocanal

and ensure

project

(NDEP

and

2.2.2 De ve lop i ng r e g i ona l

tr a nsp or t
and log i sti cs i s a p r e -r e q ui si te for p r omoti ng
a n d e c onomi c
e n t r e p r e n e u r sh i p ,
g r o w th

i nfr a str u c t u r e ,

i n v e st me n t

A pre-requisite for entrepreneurship, investment and economic
growth in the Northern Dimension region is an efficient trans-
port and logistics system. This calls for dialogue within the ND
framework on how to improve transport and logistics in the
region so as to create effective links to meet the needs of
growing goods and passenger transport in northern Europe.
Joint action should be taken to develop land, sea and air trans-
port routes and to link them together across national borders.
Special attention needs to be paid to transport safety (e.g. at
sea) and cooperation between border authorities (customs clear-
ance, standards, health requirements, visa procedures, etc.) so
as to facilitate legal border crossings. Efforts should also be
made within the ND framework to find effective ways of
preventing all kinds of
illegal border crossings (including
human trafficking, smuggling and illegal immigration).

A new private-public cooperation project is needed in the area
of infrastructure, transport and logistics in the implementation
of the Northern Dimension policy and the EESC proposes that
the parties do all they can to develop a joint project of this
kind.

2.2.3 Pr omoti n g e ne r g y c oop e r a t i on a nd se c u r i t y

EU enlargement and international energy trends underline the
importance of increased cooperation in Northern Europe in the
field of energy. The EESC calls for coordination of regional
cooperation and the EU-Russia energy dialogue so as to
improve energy security and availability. The Committee
recommends that a ND partnership in energy be established
under the new ND policy, with a focus on sustainable use of
existing natural resources, energy efficiency and renewable
energy resources, and the safety and environmental aspects of
energy transport.

As a region with vast energy resources, the Northern Dimen-
sion area is not only important for the countries in the area
itself, but has considerable impact on the EU as a whole. In
view of its potentially crucial role in ensuring the security of
future supplies of oil and gas to the EU, it deserves the atten-
tion of all EU Member States. The increased focus on Northern
Europe in the new energy policy for Europe (EPE) points to the
importance of the new Northern Dimension policy. Indeed, the
Commission in its new green paper on energy (4) specifically

(4) Commission Green Paper on A European Strategy for Sustainable,

Competitive and Secure Energy, 8 March 2006.

mentions Russia and Norway as important partners in a new,
coherent external energy policy for the EU.

The Northern Dimension is an important element
in the
balanced development of Europe's energy infrastructure. A
considerable level of investment will be needed in the Northern
Dimension region to secure a sufficient level of energy supplies
in the future, both with regard to infrastructures for energy
transport and with regard to the exploitation of the area's gas
resources.
Increased investment means economic growth,
including increased employment and higher activity levels in
the
industries not directly linked to the exploitation of
resources in the sea. However, it is important that the exploita-
tion of, in particular, the region's vast gas and oil resources be
based on sustainable development, the highest level of environ-
mental standards and respect for the wishes of the indigenous
people.

A coordinated system for monitoring the marine ecosystems in
the north is needed and should be part of ND cross-border
cooperation. It is important that the exploitation of gas and oil
resources go hand in hand with a viable fishing industry and a
healthy marine environment. The highest possible safety levels
for maritime transport of oil and gas in the ND region need to
be ensured; this need will increase with growth in the transpor-
tation of liquid natural gas (LNG) in the future.

The proposal put forward by the Norwegian government in
March 2006 for a new and more coordinated system for moni-
toring the marine ecosystems in the north is welcome in this
context. In addition, the EESC notes with satisfaction the reso-
lution adopted by the EEA Joint Parliamentary Committee in
May 2006 on Europe's High North: Energy and Environmental
Issues, the conclusions of which are in line with the views
presented in the present opinion.

The EESC would stress that energy cooperation in the Northern
Dimension region must also pay serious attention to energy
transport
in the Gulf of Finland and the Baltic, which is
growing at a rapid pace, particularly with regard to the organi-
sation and safety of transport, and to minimising environ-
mental damage.

2.2.4 F oc u si ng e ffor ts on c i vi l soc i e t y, c oop e r a t i on

ne twor ks and p u bli c inf ormation

2.2.4.1 Strengthening

civil

society,

common democratic

values, human rights and open social dialogue

successful

A precondition for
cooperation between the
Northern Dimension partners is the application of common
values in each ND country. Democratic pluralism, a vibrant
civil society, open social dialogue and a functioning market
economy complement each other. Determined efforts should
be made to promote these aspects, particularly in Russia, where
there is a need for active civil society involvement and demo-
cratic institutions.

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In its opinion on EU-Russia relations issued in July 2005, the
EESC drew serious attention to the prevailing situation in
Russia with regard to this important issue. The Committee
notes that the new law governing civil society organisations
has evidently led to a further deterioration in the situation. This
must be rectified in future application of the law. When the
Russian authorities start developing, in a credible manner, their
policies and practices aimed at building constructive and open
relations with the country's civil society players, broad support
is likely to emerge for close cooperation with Russia. For
example, it would be important for the Civic Chamber set up
in Russia to develop into credible instrument for strengthening
effective social dialogue. Efforts to strengthen the capacity of
civil society players in Russia should be supported so as to also
improve their capability to engage in constructive dialogue.

Efforts to try to find a way forward on these issues should also
be made in the context of ND regional cooperation, with
Russia as a participating party.

2.2.4.2 Promoting cross-border networks

for civil

society

cooperation

Efforts need to be made to strengthen effective and open cross-
border dialogue so as to promote progress in the areas identi-
fied in the previous point. Civil society players have a key
responsibility and role in this regard, and it is essential that
civil society groups themselves put
forward initiatives for
strengthening relations and cooperation in their respective
areas of activity. It should be emphasised that the ‘co-owner-
ship’ of the Northern Dimension is not a matter for govern-
ments alone but that it also applies to civil society and civil
society players in the ND countries. Effective implementation
of the ND policy can only be achieved if civil society players
are actively involved in the process.

Determined action must be taken in the context of
the
Northern Dimension policy to support the establishment of
society
networks, dialogue and cooperation between civil
players in various ND countries and sub-regions, such as
North-west Russia. Cross-border people-to-people cooperation
must be a policy priority. Efforts must be made to promote
mobility, development of human resources, exchange of experi-
ence, know-how and information, and mutual recognition of
diplomas. Cross-border cooperation should cover all civil
society stakeholders, including entrepreneurs, SMEs and other
enterprises, employees, young people and students, women,
scientists and cultural circles, members of minorities, environ-
farming and forestry circles, and
mental protection groups,
consumers. Cross-border
should be geared to
activities
promoting practical projects and proposals for joint projects
involving civil society stakeholders. There must be simple
joint
procedures enabling players
projects within the framework of the Northern Dimension.

to make proposals

for

The development of effective tripartite relations and labour
markets in all parts of the ND area should aim at striking a
balance between fair competition for businesses and decent
working conditions for workers. Tripartite relations and labour

markets are already well developed in many countries and the
associated skills and competence should be shared with organi-
sations
in countries where they are less developed. The
Northern Dimension policy would be a suitable framework
instrument for initiating cross-border projects in this field. The
social partners in each ND country should seek to ensure that
initiatives and legislation aimed at economic and social change
and improving employing take their interests into account in a
balanced manner. For this to happen, they should be involved
in all discussions dealing with labour market issues.

2.2.4.3 Strengthening public information efforts

The Northern Dimension's public profile is very poor. In all
countries, both within the EU and in non-EU countries in the
ND region, very little is known about it. Therefore the ND
parties should try to significantly improve information efforts
and information channels. Adequate public information on the
Northern Dimension is essential because it is through this that
it is possible to stimulate wider interest in the ND within civil
society and encourage civil society players to participate in and
contribute to the process. Civil society players should also be
involved as disseminators of information in society, and neces-
sary education and training measures must be taken to this
end.

It is clear that a centre is needed in the Northern Dimension
region to take care of the information needs referred to above
and the practical coordination of networks, contacts and
funding. The ND parties should take a decision on the estab-
lishment of such a centre. The EESC suggests that the European
Commission office in St. Petersburg, which was recently closed
down, be re-opened for this purpose and that it be assigned the
operational functions which are jointly recognised as falling
under the Northern Dimension. The possibility should also
explored that these functions could be entrusted to the secre-
tariat of one of the regional bodies referred to in point 2.4.

2.2.5 A tte nti on ne e ds

to p a i d to r e la ti on s w i th

B e la r u s

In discussions about the future development of the Northern
Dimension policy it has been suggested that it should also
cover Belarus in one way or another. Although this is justified
for geographical reasons, the country's current political situa-
tion rules out the possibility of official cooperation. However,
the EESC would stress that the issues mentioned above, particu-
larly in point 2.2.4, are relevant to Belarus as well.

The Committee feels that these issues can be influenced by
promoting contacts between civil society players and their
counterparts in Belarus. The Committee, for its part, intends to
continue to consolidate such contacts and suggests that action
along these lines also be supported within the framework of
the Northern Dimension.

The EESC is in the process of drawing up a separate opinion
on EU-Belarus relations.

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2.3 Consultation of civil society as an essential element of

the
Northern Dimension's cooperation mechanism — EESC ready to
lend its expertise

An effective consultation mechanism must be created within
the Northern Dimension so that key civil society players can
influence the implementation and monitoring of the Northern
Dimension through their views, recommendations and exper-
tise.

The EESC feels that an annual meeting of civil society stake-
holders, with a role similar to that which for years has been a
feature of cooperation in the Mediterranean, would be an effec-
tive solution here. The experience gained from cooperation in
the Mediterranean has been very positive, as too has been the
experience with the Consultative Committee in the context of
EEA cooperation. In addition, it would be appropriate to set up
a civil
society consultative body subordinate to the ND
governing committee proposed in point 2.1.4, which would
participate regularly in policy monitoring and prepare the
annual meeting.

This arrangement would enable those responsible for the ND
policy to benefit from the contributions of civil society players
to the implementation of the ND in the economic and social
sphere.

The EESC has already organised two conferences bringing
together civil society stakeholders from ND countries. Over the
years the Committee has strengthened its contacts with key
civil society players in all non-EU ND countries. It therefore
has a pool of practical experience of civil society cooperation
in the region which can be drawn upon immediately.

Consequently the EESC is prepared to take an active part in
involving civil society players in the implementation of the
future ND policy. The Committee intends to set up a special
monitoring group and would play a leading role in organising
annual meetings of civil society stakeholders. At the same time,
existing cooperation within the framework of the EEA would
be taken into account. The purpose of the meetings would be
to set out guidelines for the implementation of the ND, mainly
in the areas identified in point 2.2.4, which have a bearing on
the functioning of civil society. The Committee proposes that
this arrangement be incorporated into the formal ND coopera-
tion mechanisms.

2.4 Regional bodies — a natural starting point for administering

the Northern Dimension

The EESC supports the idea that the existing mechanisms for
regional cooperation, mainly the Council of Baltic Sea States
(CBSS), the Barents-Arctic Council (BEAC), the Nordic Council
of Ministers (NMC) and the Arctic Council, should play a
central role in implementing the Northern Dimension. Steps

Brussels, 5 July 2006.

should be taken to actively promote closer coordination and
cooperation between these bodies and between them and the
proposed ND governing committee referred to in point 2.1 as
they constitute a natural starting point for the overall adminis-
tration of the Northern Dimension.

This framework would give civil society players a genuine
opportunity to participate in ND cooperation through the
contributions they make via their own regional cooperation
networks (e.g. the BASTUN for employees, the BAC for the
business community, the BCCA for chambers of commerce and
various NGO circles) and the links these networks have estab-
lished with the above-mentioned organisations.

2.5 Arrangements for financing ND activities must be clear

The priority areas should be given practical expression in the
form of ND private-public partnerships (PPP), with clearly
defined partners, programmes, timetables and budgets.

Even where, for a given priority area, the partners are not yet
in a position to undertake a partnership project, they should,
for example, try to agree annually on programmes of measures
that are as specific as possible and on their implementation and
funding.

As far as concerns measures that are proposed and imple-
mented by civil society players (see, in particular, point 2.2.4),
it is of the utmost importance to create a procedure for finan-
cing small-scale activities that
is based on an application
process which is as simple as possible. Technical assistance will
be needed to provide advice and guidance on application skills.
Similarly,
the process for handling and
approving project proposals be swift and simple. The EESC
believes that civil society representatives could also share in the
responsibilities involved in operating this procedure.

is essential

that

it

The European Neighbourhood and Partnership Instrument
(ENPI) should be a key source of EU financing for ND activities.
An adequate share of ENPI funds should be earmarked for ND
projects and activities and adequate resources should also be
provided for administering the Northern Dimension.

Funding from Russia and Norwegian and EEA funding mechan-
isms are needed for implementing regional and cross-border
cooperation in the ND region. Similarly, other international
and national financing sources that already participate in the
ND projects (EBRD), EIB, NIB, etc.) will continue to be crucial
for ensuring the implementation of a meaningful and successful
common ND policy in the future.

There is a need for the effective dissemination in civil society of
readily understandable information on the availability of
funding, the sources of this funding and the procedures for
applying for funding for project proposals.

The President

of the European Economic and Social Committee

Anne-Marie SIGMUND