Communication from the Commission to the Council and the European Parliament on the future of relations between the European Union and the Republic of Cape Verde [SEC(2007) 1415]
Date: 2007-10-24
Institutions: European Commission
Subjects: Cabo Verde, European Community, cooperation agreement

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 24.10.2007 
COM(2007) 641 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

on the future of relations between the European Union and the Republic of Cape Verde 

[SEC(2007) 1415] 

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1. 

INTRODUCTION 

In recent years, the Government and civil society of Cape Verde have expressed the wish on a 
number  of  occasions  to  see  Cape  Verde's  relations  with  the  European  Union  develop  into  a 
special partnership. 

Cape  Verde  is  showing  increasing  interest  in  closer  links  with  the  European  Union,  in 
particular  with  the  EU's  outermost  regions  in  the  North  Atlantic.  Cape  Verde  and  the 
European islands of the Azores, Madeira and the Canaries make up Macaronesia, a group of 
island  chains  sharing  complementary  features  and  with  longstanding  historical,  cultural  and 
linguistic ties that still characterise their relations and cooperation to this very day. 

This  situation  owes  its  origins  to  the  ancient  and  recent  history  of  Cape  Verde  and  Europe, 
marked  by  close  human  and  cultural  links,  the  common  experience  of  major  events  and 
strong,  shared  socio-political  values.  Thus  Cape  Verdean  society  developed,  in  the  process 
forging  inextricable  historical,  human,  religious,  linguistic  and  cultural  bonds  with  Europe. 
Cape  Verdean  society  is  the  product  of  the  fusion  of  European  and  African  peoples  and  of 
dialogue  between  their  respective  cultures.  The  country  likewise  embraces  the  values  of 
democracy,  human  rights,  good  political  and  economic  governance,  and  the  guarantees 
offered by the rule of law in force in Cape Verde, but also seeks to promote peace, security 
and the fight against terrorism and crime. Cape Verde is in essence naturally suited to serve as 
a bridge between the continents of Africa, Europe and America, the key factor around which 
Europe and Cape Verde share common interests and face common challenges. 

Closer  ties  between  Cape  Verde  and  the  European  Union  will  in  particular  strengthen 
relations and bring about further integration between it and the outermost regions; Cape Verde 
also  shares  a  number  of  strategic  priorities  with  the  European  Union,  especially  as  regards 
certain  security  issues,  for  instance  action  to  tackle  trafficking  (drugs,  illegal  immigration, 
etc.). In this connection, Cape Verde is expected to become a partner in increased police and 
judicial cooperation with Europe. Because of its geographical location, the country can make 
an important contribution to tackling illegal trafficking, and its open approach on security is 
one of its key strengths in its efforts to build closer ties with the EU. 

The special partnership is therefore intended to strengthen dialogue and policy convergence 
between  the  two  parties,  so  enhancing  the  traditional  donor-beneficiary  relationship  with  a 
framework of mutual interests. 

2. 

THE EU-CAPE VERDE "SPECIAL PARTNERSHIP" 

The special partnership represents a political approach that goes beyond the ordinary 
donor-beneficiary  relationship,  thus  meeting  other  mutual  interests  in  the  areas  of 
the 
security  and  development.  It 
implementation of the Cotonou Agreement and is designed to exploit every aspect of 
the Agreement in order to define a new model for EU-Cape Verde cooperation. 

the  framework  for 

in  keeping  with 

is 

The  EU-Cape  Verde  special  partnership  is  not  intended  to  be  an  alternative  to 
Cotonou, but to deepen and widen cooperation between the two parties. 

Cape  Verde  wishes  to  go  beyond  the  existing  relationship  to  attain  a  significant 
degree  of  enhanced  cooperation,  the  priority  being  closer  links  with  the  outermost 
regions,  including  access  for  Cape  Verde  to  the  internal  market.  In  the  light  of  the 

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above, and of the emerging risks presenting common challenges, it is envisaged that 
Cape Verde will gradually be included in a number of EU policies and programmes, 
in particular in the areas covered by the action plan. 

3. 

THE EU-CAPE VERDE SPECIAL PARTNERSHIP APPROACH  

The  approach  adopted  is  innovative,  pragmatic,  progressive  and  complementarity-
oriented, all key facets of the special partnership: 

3.1. 

Policy  approach:  The  aim  of  the  special  partnership  is  to  develop  an  open, 
constructive  and  pragmatic  dialogue  by  means  of  practical  measures  which  will  be 
the very essence of the partnership.  

3.2. 

3.3. 

3.4. 

3.5. 

The  overall  strategic  framework  of  the  special  partnership  will  be  implemented 
through  an  action  plan  covering  the  priorities  for  the  development  process  of  the 
special partnership and including the traditional cooperation instruments provided for 
in the Cotonou Agreement. 

Complementarity approach: The special partnership will seek forms of cooperation 
to  complement  and  reinforce  the  traditional  measures  currently  implemented  under 
the  Cotonou  Agreement.  The  10th  EDF  country  strategy  paper  and  national 
indicative  programme  will  reflect  the  "special  partnership  approach".  Other 
instruments will also be used to support the special partnership, e.g. the ERDF 
for  cooperation  with  the  outermost  regions,  thematic  budget  lines,  other  lines 
managed by the Commission and the EU/Africa partnership for infrastructure. 

Progressive  approach:  Priority  will  be  given  to  promoting  an  evolving  process,  a 
series of new, practical cooperation measures to complement existing cooperation in 
the area of poverty alleviation; these activities would further deepen EU-Cape Verde 
relations. The action plan will be flexible so that it can gradually be adapted to the 
development  of  the  country  and  of  its  relations  with  the  European  Union  and  third 
countries.  

Approach  founded  on  principles  of  good  governance:  the  high  level  of 
governance  achieved  by  Cape  Verde  underpins  the  special  partnership.  Subsequent 
progress in this respect is one of the pillars of the partnership, in line with the priority 
that the European Union and Cape Verde reserve for issues of governance.  

Regional  integration  approach:  Taking  account  of  the  specific  circumstances  of 
Cape  Verde,  the  special  partnership's  role  will  be  to  push  for  closer  ties  with  the 
outermost  regions  and  the  rest  of  the  EU,  while  at  the  same  time  developing  the 
country's relationship with the West Africa region and within ECOWAS (Economic 
Community of West African States). 

3.6. 

Approach of convergence on EU norms and standards: Convergence will help to 
facilitate the gradual forging of closer ties with the EU, and the outermost regions in 
particular, and to develop the country's comparative advantages. 

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4. 

NEW PERSPECTIVES OFFERED BY THE PARTNERSHIP 

The special partnership will in particular offer the following new perspectives: 

•  an increase in the scope and intensity of political cooperation; 

•  the deepening of economic and trade relations which will be gradually expanded 
to  produce  conditions  conducive  to  the  development  of  the  private  sector  and 
increased investment and exports; 

•  convergence  between  EU  and  Cape  Verdean  legislation  on  economic  and 
technical standards, resulting in the opening of their economies to each other and, 
in particular, the continued reduction of trade barriers, also with countries of the 
region,  in  conjunction  with  the  upgrading  of  the  economy  and  increased 
competitiveness; 

•  the  prospect  of  going  beyond  the  existing  relationship  to  attain  a  significantly 
enhanced degree of cooperation, the priority being closer links with the outermost 
regions, including access for Cape Verde to the internal market, and the gradual 
inclusion  of  Cape  Verde  in  a  number  of  EU  policies  and  programmes,  in 
particular in the areas covered by the action plan;  

•  developing administrative and judicial cooperation; 

•  the  systematic  creation  of  common  databases  and  information  networks;  the 
promotion  of  exchange  and  twinning  activities  with  a  view  to  the  alignment  of 
Cape Verde's laws, regulations, standards and practices on the Community acquis 
in all of the areas covered by the action plan. 

5. 

STRUCTURE OF THE SPECIAL PARTNERSHIP ACTION PLAN 

The  special  partnership  action  plan  will  be  structured  around  the  following  six 
pillars: 

5.1. 

Good governance 

The  programme  will  be  based  on  the  governance  policies  pursued  by  the 
Government  and  will  relate,  inter  alia,  to  the  schedule  of  commitments  annexed  to 
the above-mentioned country strategy paper (point 3.2). 

Special  attention  will  in  particular  be  paid  in  this  connection  to  strengthening  and 
consolidating  democracy,  the  rule  of  law  and  civil  society  participation  in  the 
political  life  of  the  country.  Enhanced  policy  dialogue  and  cooperation  will  be 
pursued, especially in the areas of democracy and human rights.  

There  will  be  an  increased  focus  on  the  rights  of  children  and  women,  the 
regularisation  of  immigrants  and  tackling  domestic  violence.  The  Government  will 
undertake  a  reform  of  the  justice  sector  and  implement  a  national  plan  to  tackle 
corruption. 

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Public finance reform will be pursued, along with government reform and capacity-
building,  including  the  statistical  field.  The  Government  will  implement  initiatives 
designed  to  improve  the  business  climate,  social  governance  and  sound  natural 
resource management.  

5.2. 

Security/stability  

This  pillar  will  mainly  cover  the  following  areas:  security  and  action  to  tackle 
transnational  organised  crime  (cooperation  on  counter-terrorism,  human  trafficking 
and  the  smuggling  of  immigrants,  illegal  trafficking  in  drugs,  arms,  money-
laundering),  whilst  promoting  respect  for  human  rights;  effective  management  of 
migration, including improving the contribution of the Cape Verdean diaspora to the 
development  of  the  country  (remittances)  and  action  to  tackle  illegal  migration; 
maritime safety.  

Initiatives under this pillar, by their very nature, can only be organised and arranged 
on a cross-boundary and regional basis, in particular by means of closer ties with the 
outermost regions within the special partnership. 

5.3. 

Regional integration 

(1) 

to  a  more  efficient  structure  and 

In the context of the outermost regions, the integration of Macaronesia with a 
view 
increased  dynamism  and 
competitiveness  is  in  the  same  vein  as  the  "wider  neighbourhood"  policy. 
Every  encouragement  should  therefore  be  given  to  measures  designed  to 
strengthen relations between the outermost regions and Cape Verde in all the 
areas covered by the action plan, in particular increased participation by Cape 
Verde  in  the  transnational  Madeira,  Azores,  Canaries  (MAC)  cooperation 
programme  2007-2013,  and  in  the  existing  consultation  and  cooperation 
mechanisms and forums of the outermost regions.  

(2)  West Africa Region:  

– 

– 

examine  the  possibility,  together  with  the  ECOWAS  Commission,  of 
taking  account  of  the  special  circumstances  of  Cape  Verde  in  the 
Economic Partnership Agreement (EPA); 

ensure  as  far  as  possible  that  Cape  Verde  is  effectively  included  in  the 
take-up  of  resources  under  the  EDF  regional  indicative  programmes 
(RIP) for West Africa.  

Special  attention  will  be  paid  in  both  of  the  above  contexts  to  the  development  of 
conditions  favourable  to  the  growth  and  sustainable  development,  foreign  direct 
investment  and  to  the  development  of  competitive  businesses  and  a  more  effective 
administration, by means of improving the business climate, alignment on EU norms 
and  standards,  the  development  of  security  and  safety  conditions,  especially  in  the 
transport, communications and energy sectors, and the strengthening of national and 
regional infrastructure. 

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5.4. 

Technology and standards convergence 

Convergence  of  technology  and  standards  policies  in  the  sectors  covered  by  the 
action plan in order to facilitate alignment on EU standards and support Cape Verde's 
comparative advantages with a view to its development. 

5.5. 

Knowledge-based society 

The aim of this pillar is to encourage Cape Verde's progress towards the "knowledge-
based society". It prioritises economic, social and cultural development, in particular 
through  education,  research  and 
information 
technology (a sector in which Cape Verde possesses some notable assets in the area 
of  e-government);  these  factors  are  particularly  important  in  view  of  the  country's 
profile, its lack of traditional natural resources and reliance on the development of its 
human resources and on its intangible assets, such as its geo-economic situation. 

the  ownership/development  of 

5.6. 

Poverty alleviation and development  

The  poverty  alleviation  component  will  contribute  in  particular  to  carrying  out  the 
Cape  Verdean  Government's  programmes  under  its  Growth  and  Poverty  Reduction 
Strategy  Paper.  At  a  more  general  level,  this  pillar  will  also  support  the  special 
partnership  action  plan  and  the  building  of  closer  ties  with  Europe  which  the 
partnership is intended to embody. 

Poverty  alleviation  activities  will  include  the  area  of  environmental  protection,  e.g. 
the  protection  of  natural  resources  and  preservation  of  the  marine  environment, 
including action to tackle marine pollution. Closer cooperation in support of national 
fisheries  policy,  in  particular  on  tackling  IUU  fishing,  will  contribute  to  the 
sustainable development of fishery resources and preserve them for the benefit of the 
local communities that depend on the sea. 

The action plan measures can be identified by means of studies, the terms of which have yet 
to be decided; the measures will qualify for technical assistance to facilitate their 
implementation. Care should be taken to ensure that the gender dimension is taken into 
account in the identification of these measures. 

6. 

FINANCING THE ACTION PLAN 

The EDF, including the EIB-managed investment facility, will contribute significantly to the 
financing of the special partnership. Other instruments will also be used to support the special 
partnership, e.g. the ERDF in the framework of cooperation with the outermost regions (MAC 
Transnational Cooperation Programme 2007-2013).  

Some  specific  activities  may  be  supported  by  external  actions  financed  from  the  general 
budget of the European Communities and EIB own resources under the 2007-2013 financial 
framework.  However,  this  financing  is  subject  to  special  procedure  and  depends  on  the 
availability of funds. The activities financed from the general budget will include programmes 
financed by the development cooperation instrument, e.g. the thematic programmes "investing 
in  people",  "non-state  actors  for  development",  "migration  and  asylum  policies", 
"environment  and  sustainable  natural  resource  management"  and  "food  security".  Also 
included  are  activities  financed  by  other  instruments,  e.g.  the  stability  instrument,  the 

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instrument  for  the  promotion  of  human  rights  and  democracy  or  the  humanitarian  and 
emergency aid instrument. 

The  above  funding  will  reinforce  the  Cape  Verde's  Government's  own  resources  for 
implementing the action plan. The Member States of the European Union will be invited to 
contribute to financing the action plan. 

7. 

DURATION OF THE ACTION PLAN  

The special partnership is a process for which the action plan constitutes the framework and 
the means of its implementation. The action plan will be of indefinite duration and regularly 
reviewed in accordance with jointly agreed arrangements. 

8. 

MONITORING IMPLEMENTATION OF THE ACTION PLAN 

The  implementation  of  the  action  plan  will  be  monitored  by  means  of  meetings  at  political 
level, to be organised at an interval to be determined, and annual technical-level meetings in 
Cape Verde or in the European Union.  

The EU will be represented by the troika. 

At local level the inter-ministerial group set up by the Government of Cape Verde, chaired by 
the  foreign  minister,  will  hold  regular  special  partnership  monitoring  meetings  with  the  EC 
Delegation and Member State diplomatic missions.  

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