Communication from the Commission to the European Parliament and the Council - A Strong European Neighbourhood Policy
Date: 2007-12-05
Institutions: European Commission
Subjects: EU programme, European neighbourhood policy, admission of aliens, conflict prevention, cooperation policy, financial cooperation, foreign policy, third country

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 5.12.2007 
COM(2007) 774 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

A Strong European Neighbourhood Policy 

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COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT AND THE COUNCIL 

A Strong European Neighbourhood Policy 

1. 

INTRODUCTION 

The  European  Neighbourhood  Policy  (ENP)  is  substantially  deepening  the  EU’s  relations 
with  its  neighbours1,  and  has  become  the  established  vehicle  for  cooperation  with  these 
countries across a wide policy spectrum. The premise of the ENP is that the EU has a vital 
interest  in  seeing  greater  economic  development,  stability  and  better  governance  in  its 
neighbourhood.  Spreading  peace  and  prosperity  across  the  borders  of  the  EU  prevents 
artificial divisions and creates benefits for the ENP partners and the EU alike. The ENP is a 
partnership for reform that offers “more for  more”: the more deeply a partner engages with 
the  Union,  the  more  fully  the  Union can  respond,  politically,  economically  and  through 
financial  and  technical  cooperation.  As  the  partnerships  develop,  within  the  common  ENP 
framework, the policy’s operation is becoming increasingly differentiated.  

After  the  first  years  of  experience  with  the  ENP,  the  Commission  concluded  in  December 
20062 that the policy had achieved good early results, but proposed further action to make it 
fully effective. This will require political leadership, a partnership approach and a number of 
sensitive  issues  to  be  tackled.  Ultimately,  what  is  at  stake  is  the  EU’s  ability  to  develop  an 
external  policy  complementary  to  enlargement  that  is  effective  in  promoting  transformation 
and reform. In response to this Communication, following Council deliberations to which the 
Commission  contributed  through  informal  papers3,  the  German  EU  Presidency  produced  a 
report4 that was broadly endorsed by the European Council. The Commission also organised 
an  ENP  Conference  in  September  2007  which  brought  together  Ministers  and  civil  society 
representatives from the EU and its partner countries for the first time. On 15 November the 
European Parliament adopted a report5 on the 2006 Communication.  

Since the last Communication, progress has been made. For example, allocations have been 
made  under  the  Governance  Facility.  The  Neighbourhood  Investment  Facility  is  being 
established. A regional dimension for the East, the "Black Sea Synergy" has been launched. 
Progress has been made towards opening up EC programmes and agencies to ENP partners. 
However,  a  great  deal  remains  to  be  done.  In  most  ENP  partner  countries  the  need  for 
political, social and economic reform is huge.  

The focus in the coming period must be on implementation of existing commitments, both by 
partner countries, and by the EU. Efforts are required on both sides. The priorities for action 
will be set out in two communications, which address on one hand the responsibilities of the 

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The  ENP  covers  Algeria,  Armenia,  Azerbaijan,  Belarus,  Egypt,  Georgia,  Israel,  Jordan,  Lebanon, 
Libya,  Republic  of  Moldova,  Morocco,  the  Palestinian  Authority,  Syria,  Tunisia  and  Ukraine  but  not 
the EEA, the candidate and potential candidate countries or Russia. 
COM(2006) 726, 4.12.2006. 
http://ec.europa.eu/world/enp/strengthening_en.htm 
10874/07 of 15.6.2007. http://register.consilium.europa.eu/pdf/en/07/st10/st10874.en07.pdf 
P6_TA(2007)0538. 

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EU  side,  and  on  the  other,  the  further  efforts  necessary  on  the  part  of  the  ENP  partner 
countries.  

The  present  Communication  concentrates  on  the  actions  needed  and  foreseen  by  the  EU  in 
2008.  It  focuses  on  activities  that  will  be  necessary  by  the  Member  States  and  by  the 
Commission  to  make  a  reality  of  the  proposals  discussed  in  the  course  of  2007.  A  separate 
Communication,  accompanied  by  country-specific  progress  reports,  in  spring  2008,  will 
analyse where further action is needed by ENP partner countries. 

2. 

CONCEPTUAL ISSUES  

2.1. 

Differentiation 

The ENP includes very different countries in a single policy. The EU offer of deeper relations 
is the same for all partners. However, the country-specific approach within the ENP provides 
for flexibility and differentiation, and there are as many possible responses as there are partner 
countries, according to each partner’s political situation, its level of ambition with regard to 
the  EU,  its  reform  agenda  and  achievements,  and  its  level  of  socio-economic  development. 
The  enhanced  agreement  currently  being  negotiated  with  Ukraine6,  the  ongoing  discussions 
with  Morocco  on  an  “advanced  status”  and  with  Israel  on  an  upgrading  of  relations 
demonstrate  this  differentiation.  The  further  the  policy  evolves,  the  more  pronounced  this 
differentiation will become.  

Nonetheless, the common ENP framework facilitates an objective and coherent EU approach 
to these  diverse partners and ensures that  the whole  of the EU is  fully committed  to deeper 
relations with all our neighbours. 

2.2. 

Ownership 

To attain its ambitious objectives, joint ownership of the ENP is essential and must be further 
promoted.  This  will  develop  as  differentiation  increases,  and  as  bilateral  policy  dialogue 
deepens across a wide range of areas. It is important that both the ENP partner country and 
the EU can hold each other accountable for living up to their mutual commitments.  

The  ENP  conference  in  September  2007  underlined  the  EU’s  commitment  to  working  with 
partner countries who co-determine their path in the ENP. A follow-up conference will take 
place in 2008 and Georgia has offered to host it.  

2.3. 

Regional processes  

The  ENP  is  primarily  bilateral  but  interlinks  with  regional  and  sub-regional  processes.  The 
Euro-Mediterranean  Partnership  remains  a  cornerstone  for  the  EU’s  interaction  with  its 
southern  neighbours.  The  ENP  and  the  Euro-Mediterranean  Partnership  are  mutually 
reinforcing:  the  bilateral  frameworks  of  the  ENP  are  better  suited  to  promoting  internal 
reforms, while the Euro-Mediterranean cooperation framework provides the regional context.  

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See Council conclusions 11016/07 of 19.6.2007 - 
http://register.consilium.europa.eu/pdf/en/07/st11/st11016.en07.pdf 

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The  Commission  supports  new  initiatives  to  strengthen  relations  with  countries  of  the 
Mediterranean  region,  provided  they  build  on  existing  processes.  Such  initiatives  could 
include,  among  others,  action  in  the  fields  of  the  environment,  intercultural  dialogue, 
economic growth and security. In this respect, the Commission notes France’s invitation to a 
meeting in June 2008, to give new impetus to relations with the countries of that region. 

In response to calls for the establishment of a regional cooperation framework in the East, the 
Black Sea Synergy has been launched to complement the EU’s mainly bilateral policies in the 
region:  the  ENP,  the  Strategic  Partnership  with  the  Russian  Federation  and  the  accession 
negotiations with Turkey. A Black Sea Synergy Ministerial meeting will be held in February 
2008 in Kyiv with the participation of the EU.  

Similarly, possible synergies will be explored with the EU Strategy for Central Asia and the 
Joint EU-Africa Strategy.  

3. 

SUBSTANTIVE ISSUES – KEY IMPROVEMENTS PROPOSED 

3.1.  Measures towards further economic integration 

Tailor-made deep and comprehensive free trade agreements (DFTAs), including measures to 
reduce non-tariff barriers through regulatory convergence, are the keys to increased economic 
integration  with  ENP  partners.  A  DFTA  should  cover  substantially  all  trade  in  goods  and 
services between the EC and the ENP partner as well as strong legally-binding provisions on 
the implementation of trade and economic regulatory issues. 

Important  steps  have  already  been  taken,  but  determined  efforts  will  be  required  from  all 
parties  to  take  this  agenda  forward.  The  Union  will  continue  to  give  active  support  to  the 
neighbours  in  their  regulatory  convergence  with  financial  and  technical  assistance,  but 
additional incentives are needed. 

In 2007 the negotiation of an enhanced agreement with Ukraine was launched, and this will 
be  extended  to  free-trade  issues  once  Ukraine  has  joined  the  WTO.  The  Commission 
proposed  a  draft  regulation  introducing  autonomous  trade  preferences  for  the  Republic  of 
Moldova. Feasibility studies exploring the possibility of free trade agreements with Georgia 
and  Armenia  will  be  concluded  in  the  coming  year.  Negotiations  on  the  liberalisation  of 
services and the right of establishment as well as on trade in agricultural products continued 
with Mediterranean ENP partners. Work at Senior Officials level will be launched in 2008 to 
draw  up  a  road  map  of  next  steps  in  the  trade  field  to  2010  and  beyond  with  the 
Mediterranean  partners  in  order  to  upgrade  the  existing  agreements.  Preparatory  work  to 
facilitate  trade  in  industrial  products  through  the  conclusion  of  Agreements  on  Conformity 
Assessment and Acceptance of Industrial Products also progressed. 

Further  proportionate  efforts  are  required  from  all  parties  to  conclude  negotiations 
successfully. The EU side needs to show increased political commitment to foster economic 
integration  and  to  improve  market  access.  The  support  of  Member  States  for  the 
Commission’s  effort  to expeditiously conclude  the  on-going  agricultural  and  fisheries 
negotiations, taking into account the different levels of development between partners, will be 
crucial, in particular by limiting the number of products excluded from full liberalisation. This 
should be part of a concerted effort by all sides towards the objective of gradually extending 
the  deep  and  comprehensive  agreements  to  our  partners  as  a  priority  in  the  coming  years. 

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Negotiations should be considered after careful assessment and their pace tailored according 
to the capacity of the countries concerned and the expected outcome. At the same time, the 
Commission will continue to support improvements and further convergence in areas such as 
technical  regulations,  sanitary  and  phyto-sanitary  issues,  customs  and  taxation  as  well  as 
economic  integration  between  the  ENP  partner  countries  themselves.  It  will  encourage 
cooperation  with  institutions  such  as  the  European  Patent  Office.  Business  to  business 
dialogues will be supported, and the Commission will promote improvement of the business 
and  investment  climate  in  the  neighbourhood.  Among  other  things,  the  latter  requires 
attention to governance and sustainability issues.  

3.2.  Mobility  

The  ability  of  people  to  move  and  interact  with  each  other  is  of  the  utmost  importance  for 
many  aspects  of  the  ENP,  from  trade  and  investment  to  cultural  exchanges.  Mobility  is  in 
itself a key foreign policy priority as this is the prism through  which the citizens of partner 
countries perceive the EU.  

The  Commission  proposes  facilitation  of  legitimate  short-term  travel  as  well  as  more 
ambitious  –  longer-term  –  developments  in  the  area  of  managed  migration,  potentially 
involving  the  opening  of  Member  States’  labour  markets  where  this  is  to  the  mutual 
advantage of the sending and receiving countries.  

Obviously,  mobility  can  only  develop  in  a  secure  environment,  and  security  improvements 
will help to create the conditions for greater mobility. The promotion of mobility will go hand 
in hand with the commitment of our partners to increase security and justice and fight illegal 
migration, with efforts to strengthen our neighbours’ capacity to deal with migratory flows to 
their countries, and with the security of documents. 

The Commission urges the Council and the European Parliament to adopt its 2006 “package” 
on legislative proposals aiming at revising the European Visa policy, ensuring a high level of 
security  within  the  common  area  and  simplifying  the  procedures  for  visa  applicants.  These 
proposals will facilitate short-term travel by helping to solve the outstanding problems in the 
delivery of Schengen visas. It will in particular provide an easier proof that a traveller is bona 
fide, improve access of visa applicants to consulates, and ensure better consular presence and 
regional  coverage,  including  the  establishment  of  Common  Application  Centres  where 
needed.  

Existing opportunities to facilitate travel are not being fully used. The Local  Border Traffic 
Regulation  allows  Member  States  to  conclude  bilateral  agreements  with  neighbouring  third 
countries to improve people-to-people contacts in border areas and this should be used to full 
advantage.  Better  use  by  Member  States  of  the  flexibilities  provided  for  under  the  present 
Schengen acquis could contribute to smoother arrangements.  

The  implementation  of  the  2003  Council  Conclusions  on  flexibility  in  issuing  visas  to 
participants in Euro-Mediterranean meetings7 should be extended to include all ENP partner 
countries.  This  extension  would  mainly  concern  Armenia,  Azerbaijan  and  Georgia,  as  visa 
facilitation agreements for Ukraine and the Republic of Moldova are about to enter into force. 
Member States are requested to fast-track the processing of visa applications made by persons 

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5784/07 VISA 32 MED 3 COMIX 101 of 31 January 2007. 

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attending  ENP  events  and,  where  the  applicant  has  previously  complied  with  visa 
requirements,  to  grant  multi-entry  visas  more  systematically.  The  Commission  will  play  a 
more  active  role,  by  providing  letters  of  support  and  encouraging  applicants  to  start  the 
procedure in due time. 

Following  its  Communication  on  Circular  Migration  and  Mobility  Partnerships8  the 
Commission  has  proposed  that  a  limited  number  of  pilot  mobility  partnerships  could  be 
negotiated with selected third countries, in particular ENP countries. Partnerships will require 
pilot countries to commit themselves to cooperating actively with the EU on the management 
of  migration  flows  while  offering  improved  opportunities  for  legal  migration,  help  in 
developing  the  capacity  to  manage  intra-regional  migration  flows,  measures  to  promote 
circular or return migration and improvements in the procedures for issuing short-stay visas. 
Support measures need to be developed to modernise ENP labour market policies. 

A coherent mobility policy must address external and internal policy goals: fostering contacts 
and  exchanges,  projecting  EU  values  and  approaches,  promoting  economic  development, 
security,  responding  to  gaps  in  national  labour  markets.  Since  these  internal  and  external 
dimensions tend to fall under the responsibility of different parts of the Member States’ and 
EU  administrations  it  will  be  important  to  ensure  coherence  and  consistency  in  their 
approaches. 

3.3. 

Regional conflicts and political dialogue 

The number of (frozen) conflicts in the neighbourhood remains high: Transnistria, Abkhazia, 
South Ossetia, Nagorno-Karabakh, the Middle East and Western Sahara. The EU has a direct 
interest  in  working  with  partners  to  promote  their  resolution,  because  they  undermine  EU 
efforts  to  promote  political  reform  and  economic  development  in  the  neighbourhood  and 
because they could affect the EU’s own security, through regional escalation, unmanageable 
migratory  flows,  disruption  of  energy  supply  and  trade  routes,  or  the  creation  of  breeding 
grounds for terrorist and criminal activity of all kinds.  

The  EU  is  already  active  in  preventing  and  resolving  conflicts  but  more  should  be  done.  A 
number of CFSP and ESDP measures have been launched. EU Special Representatives have 
been appointed and police, border control and border assistance missions are developing their 
activities.  

These actions need to be planned and coordinated with longer-term EC policies which address 
the overall institutional and governance context and thus favour stabilisation. The deployment 
of  all  available  tools,  whether  first,  second  or  third  pillar,  would  increase  EU  influence  and 
avoid  the  limitations  of  short-term  crisis  management.  The  EU  can  make  an  important 
contribution by working around the conflict issues, promoting similar reforms on both sides 
of the boundary lines, to  foster convergence between political, economic and legal systems, 
enabling greater social inclusion and contributing to confidence building. The example of the 
EU Border Assistance Mission to Ukraine and the Republic of Moldova integrating EC and 
CFSP instruments in one approach shows how this can work. In other cases, depending on the 
nature of the conflict, increasing the capacities of ministries dealing with refugees, promoting 
instruction,  supporting  post-conflict 
the 

integration  of  minorities 

language 

through 

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COM(2007) 248, 16.5.2007. 

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infrastructure  rehabilitation,  including  cultural  heritage,  or  implementing  local  income 
generation projects can constitute appropriate confidence-building measures.  

The  EU’s  institutional  involvement  in  conflict  settlement  mechanisms  varies  widely.  It  is  a 
full participant in the Quartet (Middle East Peace Process) and participates as an observer in 
the  5+2  talks  (Transnistria),  while  the  Commission  is  an  observer  in  the  Joint  Control 
Commission (South Ossetia). Only individual Member States participate in the Minsk Group 
(Nagorno-Karabakh) and  the  UN  Friends of Georgia (Abkhazia). Given the  EU’s  history of 
peace and stability through regional integration, the EU has added value to bring to the efforts 
of individual Member States and must be prepared to assume a greater role in the resolution 
of conflicts in the neighbourhood.  

Conflicts  should  always  be  a  key  focus  of  political  dialogue  with  ENP  partners.  The  EU 
should  also  ensure  that  the  conflicts  remain  on  the  agenda  of  dialogues  with  relevant 
international organisations and third countries. 

The Commission stands ready to develop, together with the Council, further proposals in the 
field of conflict resolution, using both Community and non-Community instruments.  

The  Commission  will  also  do  all  it  can  to  ensure  that  the  potential  offered  by  political 
dialogue  is  fully  exploited  for  other  issues,  such  as  terrorism,  drugs,  migratory  flows,  civil 
protection, and especially governance. 

It will continue to promote stability notably through  the sustained promotion of democracy, 
human rights and the rule of law throughout the neighbourhood.  

3.4. 

Sectoral reform and modernisation 

Sectoral policy dialogue, underpinned by assistance, will continue to support reform in ENP 
partner countries during 2008.  

Energy  security  and  safety  are  fields  of  growing  interdependence  in  the  neighbourhood.  By 
adopting  an  energy  package  in  March,  the  European  Council  set  the  stage  for  a  common 
external  energy  policy.  The  ENP  brings  together  producer,  consumer  and  transit  countries, 
which have much to gain from closer cooperation and integration. The Commission will focus 
its  efforts  on  implementing  the  Energy  Memoranda  of  Understanding  with  Azerbaijan  and 
Ukraine  and  the  Joint  Declarations  with  Morocco  and  Jordan,  and  work  towards  similar 
agreements  with  Algeria  and  Egypt.  The  Commission  will  also  seek  to  negotiate  binding 
provisions on trade in energy goods, services and investments. 

A feasibility study will be undertaken to examine the potential benefits of putting in place a 
common legal framework for the neighbourhood in the field of energy.  

In  2008,  the  “Baku  Process”  (Black  Sea/Caspian/Central  Asia)  Energy  Ministerial  meeting 
will  further  promote  cooperation  on  energy  security  and  market  integration  in  the  east.  The 
EU  commitment  to  develop  the  Nabucco  pipeline,  including  the  recent  appointment  of  a 
coordinator,  gives  a  strong  impetus  to  the  EU’s efforts  to  develop  networks  of  key  interest. 
The  Republic  of  Moldova’s  and  Ukraine’s  accession  to  the  Energy  Community  is  in 
preparation. Georgia has submitted an application for observer status.  

In the south, work continues to develop an integrated Euro-Mediterranean energy market. The 
Commission  will  work  with  the  Maghreb  countries  to  promote  regional  integration  of  their 

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electricity markets, and with the Mashreq region to enhance security and infrastructures in the 
gas sector. The Commission will build on the results of the EuroMed Energy Forum and the 
recent  Sharm-el-Sheik  EU-Africa-Middle  East  energy  conference,  particularly  on 
development of the Arab Gas Pipeline, and exchange of know-how on clean technologies. 

The  Commission  will  work  with  neighbourhood  partners  to  improve  energy  efficiency,  to 
examine the scope for developing a green energy market and to expand partners’ capacity to 
produce solar, wind and sustainable biomass energy sources.  

The Commission will deepen its climate change dialogue, including in relation to adaptation9, 
on  the  post-2012  climate  change  regime.  The  Commission  will  also  provide  technical 
assistance  to  build  capacity  on  climate  change  policies.  The  Commission  will  promote  the 
Kyoto mechanisms10, which have significant potential to attract foreign direct investment and 
to  foster  development  of  cleaner  technologies.  Experiences  with  the  EU  Emission  Trading 
Scheme will be shared. The Commission will step up support for efforts to achieve a cleaner 
environment  in  the  neighbourhood.  Under  the  umbrella  of  the  Black  Sea  Synergy11,  the 
Danube  Black  Sea  Task  Force  will  further  intensify  its  work  on  water  issues  and  explore 
extension to other areas, such as waste management. EC accession to the Convention on the 
Protection  of  the  Black  Sea  against  Pollution  will  be  pursued,  and  the  Commission's 
engagement  in  the  Environment  for  Europe  process  will  emphasise  implementation  of  the 
UNECE  conventions12.  In  the  Mediterranean  region,  the  EC  will  continue  to  support  the 
Horizon 2020 initiative to reduce pollution levels. Shared environmental information systems, 
environmental  impact  assessments,  integrated  coastal  zone  management  and  sustainable 
tourism will be promoted throughout the region.  

The  EC  will  continue  to  promote  responsible  and  sustainable  fisheries  activities  by 
cooperating closely with partners in relevant fora and through bilateral agreements. 

An  integrated  transport  system  between  the  EU  and  its  neighbourhood  is  vital  to  further 
integration. Member States and ENP partners will need to cooperate closely to complete the 
extension  of  TEN  transport  axes13  to  neighbouring  countries.  Both  Mediterranean  and 
TRACECA  partner  countries  are  adopting  regional  action  plans  to  develop  sustainable 
transport  systems,  the  implementation  of  which  would  benefit  from  Member  States’ 
contributions.  The  implementation  of  the  Council’s  decision  to  develop  a  wider  Common 
Aviation  Area  by  2010  should  be  accelerated.  A  comprehensive  aviation  agreement  with 
Morocco is already operational, while negotiations are underway with Ukraine and due to be 
launched with Jordan. The Commission is requesting negotiating directives from the Council 
for further comprehensive aviation agreements with the ENP partner countries.  

To successfully integrate ENP partners into the European Research Area, more account needs 
to  be  taken  of  partners’  research  priorities  (e.g.  health  and  agriculture,  complemented  by 
socio-economic  and  governance  issues)  and  more  efforts  need  to  be  made  to  encourage 
greater participation in the 7th Framework Programme (FP7). The annual work programmes of 

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13 

In  line  with  the  Commission's  Green  Paper  on  Adapting  to  Climate  Change  in  Europe  -  COM(2007) 
354. 
In particular, the Joint Implementation and Clean Development Mechanism. 
Communication COM(2007) 160, 11.4.2007.  
As per COM(2007) 262. 
The Communication COM(2007) 32, 31.1.2007, outlines a comprehensive policy for closer integration 
of the EU transport system with neighbouring countries. 

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FP7  should  reflect  the  importance  of  the  ENP  and  the  use  of  the  ENPI  budget  line  should 
increase scientific capacity of ENP partners. 

As regards the information society, ENP partner countries would benefit not only from high-
speed  network  interconnections  but  also  from  closer  cooperation  between  the  regulatory 
authorities in the ENP area and European regulators in this sector. 

Education  and  human  capital:  The  Commission  will  further  strengthen  its  support  for  the 
structural development of higher education systems in the ENP partners through TEMPUS, as 
well  as  convergence  with  the  Bologna  process  and  the  Lisbon  Agenda.  A  new  scholarship 
scheme for the ENP enables more than a thousand students and university lecturers to come to 
the  EU  in  2007/08,  and  several  hundred  to  go  to  ENP  partner  countries.  To  enhance  the 
knowledge of how the EU operates and to advocate for an impartial, accountable and efficient 
civil  service,  the  Commission  will  encourage  the  selection  of  trainees  from  ENP  partner 
countries  in  its  own  internal  schemes,  and  will  examine  the  possibility  of  welcoming 
seconded officials.  

Closer  cooperation  on  employment  and  social  development  will  intensify  exchanges  on 
strategies regarding job creation, poverty reduction, social inclusion and protection and equal 
opportunities,  to  address  common  challenges  in  the  context  of  globalisation  and  promoting 
decent work. 

The EU and its neighbours are stepping up health cooperation. The Commission is including 
ENP partners in meetings such as the Network of competent authorities on health information 
and  knowledge;  the  EpiSouth  Network  for  Communicable  Diseases  Control  in  Southern 
Europe  and  the  Mediterranean  and  the  HIV/AIDS  Think  Tank.  The  recently  adopted  EU 
Health Strategy provides for increasing the EU’s voice in global health through strengthened 
cooperation  with  strategic  partners  from  third  countries  including  from  the  neighbourhood. 
The EC and Member States should join forces to tackle health challenges and threats in the 
neighbourhood, 
international  health 
the 
agreements,  in  particular  the  Framework  Convention  on  Tobacco  Control14,  and  the 
International Health Regulations15. 

including  by  promoting 

implementation  of 

The  recently  adopted  Communication  on  “An  Integrated  Maritime  Policy  for  the  European 
Union”16  identifies  the  ENP  as  a  vehicle  for  dialogue  and  cooperation  on  maritime  policy 
issues  and  the  management  of  shared  seas.  The  objectives  of  this  policy  will  be  included 
within the EU’s regular policy dialogue with ENP partner countries. 

The  Commission  will  further  promote  exchange  of  experience  and  bilateral  dialogue  on 
methods  of  formulation  and  implementation  of  regional  policy  including  multi-level 
governance and partnership. It will seek to enhance interaction between national, regional and 
local authorities. 

3.5. 

Participation in Community programmes and agencies 

The opportunity  to  participate in Community  programmes and agencies is an important and 
attractive feature of the partnership under the strengthened ENP. 

14 
15 
16 

WHO FCTC: http://www.who.int/tobacco/framework/WHO_FCTC_english.pdf 
http://www.who.int/gb/ebwha/pdf_files/WHA58/WHA58_3-en.pdf 
COM(2007) 575, 10.10.2007, and the Maritime Policy Action Plan SEC(2007) 1278. 

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In 2007, the Commission began negotiations to establish protocols with Israel, Morocco and 
Ukraine – the three partner countries that the Presidency’s report of June 2007 identified as 
being the most likely to benefit from these measures. The imminent signature of the Protocol 
with  Israel  will  enable  it  to  become  the  first  ENP  partner  country  to  participate  in  the 
Competitiveness and Innovation Programme.  

During  2008,  the  Commission  will  continue  its  contacts  with  ENP  partners  to  identify  their 
interests and capacity to take part in these EC activities.  

3.6. 

Financial Cooperation 

New  financial  tools  are  coming  on  stream,  and  cooperation  with  financial  institutions,  in 
particular  the  EIB  and  EBRD  as  the  EU’s  privileged  partners  in  the  ENP  partner  countries, 
other donors and international organisations will be improved. These developments will make 
it  possible  for  the  EU  to  respond  more  effectively  to  ENP  partner  countries’  needs,  and  to 
reflect their different relationships with the EU.  

An  innovation  under  the  European  Neighbourhood  and  Partnership  Instrument  concerns  the 
implementation of cross-border cooperation (CBC) programmes which is getting underway at 
the  end  of  2007.  The  Commission  has  elaborated  the  programming  framework  covering  15 
programmes  carried  on  the  external  border  of  the  EU  and  adopted  specific  implementing 
provisions.  Joint  task  forces  bringing  together  representatives  of  the  Member  States,  the 
partner  countries  and  their  regions  are  finalising  the  programming  documents  so  that 
implementation of CBC  programmes  can  start  at the beginning of 2008.  These programmes 
are  jointly  managed  by  local  stakeholders  and  will  help  to  foster  genuine  ties  with  the 
neighbourhood,  and  to  reduce  the  dividing  effects  of  external  borders,  leading  to  increased 
volumes of economic exchange and avoiding the creation of a development gap between the 
EU and ENP border regions.  

Progress  has  also  been  made  on  the  two  new  facilities  introduced  by  the  2006 
Communication:  

The  new  Governance  Facility,  with  an  indicative  allocation  of  €  50  million  a  year  for  the 
period  2007-10,  provides  additional  support  to  partner  countries  that  have  made  the  most 
progress in implementing the governance priorities agreed in their Action Plans, particularly 
those related to human rights, democracy and the rule of law. In 2007, the first Governance 
Facility allocations were made to Morocco and Ukraine. The annual Progress Reports on ENP 
partner  countries  will  be  further  refined  in  2008  as  a  basis  for  an  objective  assessment  of 
performance  of  the  partner  countries,  which  will  increase  the  transparency  of  decisions  on 
Governance Facility allocations. 

The Neighbourhood Investment Facility (NIF) has been established with the first € 50 million 
contribution from the Community budget, and will start to support lending to ENP partners in 
2008.  Overall,  the  Commission  will  allocate  to  the  Facility  an  indicative  amount  of  €  250 
million over the next four years and plans to devote a further € 450 million over the period 
2011-13 (in total € 700 million over 7 years). Discussions are ongoing with Member States on 
the establishment of a NIF Trust Fund. Matching the Community contribution with those of 
Member  States  would  generate  a  substantial  leverage  effect.  NIF  operations,  focussing 
primarily  on  projects  of  common  interest  in  the  energy,  environment  and  transport  sectors, 
will be fully compatible with a strengthened FEMIP. The Commission will also take steps to 

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allow using the reflows of past FEMIP operations to the benefit of FEMIP, as well as reflows 
on future operations for the benefit of the NIF and FEMIP respectively. 

4. 

OPERATIONAL ISSUES 

4.1. 

Roll-over of Action Plans 

The ENP Action Plans for Ukraine, the Republic of Moldova and Israel will reach the end of 
their term in early 2008. A roll-over of the current Action Plans for one year, with no change 
in substance, appears to be the most pragmatic way of continuing work on the Action Plans, 
pending  the  outcome  of  the  negotiations  of  a  new  agreement  with  Ukraine,  or  any  possible 
future arrangements with the Republic of Moldova and Israel. In any event, Action Plans are 
updated by agreement between the parties when this is required to maintain their operational 
value.  

4.2. 

Sub-Committee structure 

Since the inception of the ENP, Sub-Committees have become the main institutional venues 
for  conducting  policy  dialogue  with  ENP  partners.  It  is  therefore  essential  for  the  Sub-
Committee structure to cover the entire scope of issues addressed by an ENP Action Plan. The 
Commission intends in particular to encourage partner countries that have not yet done so to 
make operational Sub-Committees or other fora where human rights issues can be addressed. 

4.3. 

Involvement of Civil Society 

Civil society organisations have a valuable role to play in identifying priorities for action and 
in promoting and monitoring the implementation of ENP Action Plans. The participation of 
hundreds  of  civil  society  representatives  in  the  ENP  Conference  was  a  clear  signal  of  the 
Commission’s  intent  in  this  regard.  The  organisation  of  a  platform  for  civil  society 
representation  on  ENP  issues  would  be  a  welcome  development.  The  Commission  will 
encourage  a  wide  range  of  stakeholders  to  engage  in  monitoring  the  implementation  of  the 
ENP Action Plans, will promote dialogue in the partner countries between governments and 
local civil society and seek to bring more stakeholders into the reform process. 

4.4. 

Countries without Action Plans  

The  Commission  will  continue  to  work  closely  with  Algeria  on  the  implementation  of  its 
Association Agreement. While the association agreement with Syria has not yet been signed, 
the  Commission  is  preparing  for  the  future  contractual  relationship  by  way  of  financial 
cooperation. Exploratory discussions have been initiated on a first framework agreement with 
Libya. Efforts will continue to indicate to Belarus what could be on offer to the country under 
the  ENP,  were  key  improvements  to  be  made  in  the  fields  of  human  rights  and  respect  for 
fundamental freedoms. 

5. 

CONCLUSIONS 

Sustained effort is required to ensure that the offer made to ENP partner countries comes up 
to  their  expectations.  This  Communication  draws  attention  to  some  of  the  main  challenges 
that  will  need  to  be  addressed  by  the  EU’s  institutions  and  governments.  In  2008,  the 
Commission,  Council,  European  Parliament  and  EU  Member  States  must  cooperate  even 

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more closely to strengthen the ENP. This may sometimes entail difficult decisions, but their 
costs  will  be  outweighed  by  the  long-term  benefits  to  EU  citizens  and  neighbours  alike.  In 
spring  2008,  the  Commission  will  publish  its  analysis  of  progress  made  by  ENP  partner 
countries and of where further steps might be taken.  

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