Opinion of the Committee of the Regions on Enlargement strategy and main challenges 2007-2008 Pre-candidate countries
Date: 2008-04-10
Institutions: European Committee of the Regions
Subjects: Albania, Bosnia and Herzegovina, Montenegro, Serbia, accession to the European Union, enlargement of the Union, pre-accession strategy

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Official Journal of the European Union

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Opinion of the Committee of the Regions on ‘Enlargement strategy and main challenges 2007-2008
Pre-candidate countries’

(2008/C 172/12)

THE COMMITTEE OF THE REGIONS

— believes that a clearer message to pre-candidate countries about the way they will accede to EU is
needed. Individual accession might inspire and motivate countries to make the overall process faster.
A country's success in implementing required EU benchmarks should be a determining factor in its
pace towards accession;

— notices that further capacity building of local authorities and local government associations in pre-
candidate countries in needed as, presently local and regional authorities are not adequately involved
in EU accession processes;

— welcomes the initialling of the Stabilisation and Association Agreement (SAA) with EU and urges
Bosnia and Herzegovina authorities to work together towards implementing obligations undertaken
by the Agreement;

— welcomes initiation of the Stabilisation and Association Agreement (SAA) with EU and calls on Serbia
to continue working towards fulfilling its obligations towards the International Criminal Tribunal for
the Former Yugoslavia as they remain a condition for further EU integration;

— welcomes the signing of the Stabilisation and Association Agreement with the EU and encourages the
government of Montenegro to continue working on its obligations under the Agreement along the
lines of the draft action plan for implementation.

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Rapporteur: Councillor Martin HEATLEY (UK/EPP), Member of Warwickshire County Council

Reference document

Communication from the Commission to the Council and the European Parliament: Enlargement Strategy
and Main Challenges 2007-2008

COM(2007) 663 final

Policy recommendations

THE COMMITTEE OF THE REGIONS

A General recommendations

General progress and timetable

1.
believes that a clearer message to pre-candidate countries
about the way they will accede to EU is needed. Individual acces-
sion might inspire and motivate countries to make the overall
process faster. A country's success in implementing required EU
benchmarks should be a determining factor in its pace towards
accession;

2.
believes that a fine balance must be found between main-
taining enthusiasm and stability in the potential candidate
country, and a cautious and proper preparation for the acces-
sion process;

believes that whereas enlargement is important for the EU
3.
as well as for the candidate and pre-candidate countries,
in
terms of economic growth opportunities, the securing of vital
transport and energy routes, and other strategic considerations,
without forgetting the EU common values, such as freedom,
democracy and solidarity; in particular, the prospect of accession
is vital to securing peace and stability in the Western Balkans.
Nevertheless, is concerned with ‘enlargement fatigue’ shown in
some EU member states and believes that greater public aware-
ness should be promoted on the opportunities and challenges of
further enlargement;

welcomes

4.
in the general
the marked improvement
economic growth, overall macroeconomic stability and raised
standard of living in pre-candidate countries, however believes
that more effort should be made in strengthening the rule of
law and modernisation of social structures. These macroeco-
nomic improvements should be aimed at increasing the quality
of life of the citizens of these countries. Specifically, calls for the
enforcement of the rule of
law — notably through judicial
reform — and the fight against corruption and organised crime,
including people trafficking, should be top priorities in all pre-
candidate countries;

calls on all pre-candidate countries to maintain and conti-
5.
nually improve good neighbourly relations as they form an
essential part of the process of moving towards the European
Union. Also points to the need for the Western Balkan countries

to step up their efforts to find mutually acceptable solutions to
pending issues with neighbouring states;

Communications

for

stresses that good communication is essential

6.
the
continuing success of the enlargement strategy. It is necessary to
provide better information on the benefits and challenges of the
current enlargement process, as well as to ensure an under-
standing and acceptance that the process is gradual and carefully
managed. All spheres of governments of pre-candidate countries
should be supported in their efforts to better inform their
public about European values and the benefits of getting closer
to EU membership as well as about conditions of EU member-
ship. In this context, the publication of Commission's communi-
cations on enlargement should be assured in the languages used
in the pre-candidate countries, including minority languages;

recommends that the new EU financial

7.
instrument, the
Instrument for Pre-Accession Assistance (IPA), should be used to
improve awareness about EU integration and foster trans-border
cooperation, strengthen capacities of representative associations
of local and regional government in the Western Balkans, and
include them in accession processes;

8.
recommends improving ‘vertical’ communication between
central government offices in charge of EU integration in respec-
tive countries and local and regional authorities as well as local
government associations;

Capacity-building and cross-border cooperation

9.
believes that supporting measures that connect people at
the local and regional level and encourage cooperation between
EU and pre-candidate countries are valuable instruments of
cultural and political understanding, which can overcome
doubts about integration capacity. Recalls the important role
played by twinning and cooperation between twin towns
following the historic events of the 1990s;

10.
calls for increased measures to promote inter-regional
and inter-municipal cooperation between EU Member States and
pre-candidate countries,
in addition to existing cross-border
mechanisms, encouraging, for instance, the inclusion of pre-
candidate countries into EGTCs (1);

(1) EGTC — European Grouping for Territorial Cooperation.

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11.
stresses that administrative capacity building, not least at
local and regional level, is essential for successful fulfilment of
the Copenhagen criteria. Local and regional authorities in the
countries concerned are not informed enough and generally still
lack capacity to absorb EU financial support. In this sense, the
CoR has a major role to play in promoting training seminars in
order to exchange good practices and lessons learned by EU
regional and local authorities;

of women, children and old people against all forms of violence
including human traffic needs strengthening;

19.
encourages further improvement in the status of people
with disabilities. Particularly important element is improvement
of employment opportunities for people with disabilities as it is
an essential step towards their full integration into society;

welcomes

12.
the agreement on visa facilitation signed
between EU and the pre-candidate countries as it is important
step in facilitating people-to-people contacts, not only between
peoples of Western Balkans countries, but also between peoples
of EU and pre-candidate countries as well;

20.
encourages further improvement of minority rights and
creation of conditions necessary for minorities' cultural self-
realisation and development. However, strong action is also
needed to improve attitudes towards ethnic groups and promote
tolerance and reconciliation;

13.
notices that further capacity building of local authorities
and local government associations in pre-candidate countries in
needed as, presently local and regional authorities are not
adequately involved in EU accession processes;

14.
welcomes projects that connect local authorities of EU
member countries and pre-candidate countries such as the
‘Exchange Project’ in Serbia that included one-third of municipa-
lities and exposed them to European practice in project manage-
ment as well as assisting with establishing links between EU and
Serbian local authorities;

encourages

15.
and
capacity building of
regional authorities in pre-candidate countries to align their
environmental policies with EU recommendations;

central,

local

16.
democracy in the pre-candidate countries is young and
fragile. Determined and sustained efforts are needed to develop
and consolidate the institutions and rules of representative
democracy. This is particularly true at the local and regional
levels, given their crucial
importance for a stable and open
democratic society and for good governance;

Civil society and public life

B Country specific remarks

Albania

in better

achievements

administration are

21.
to be
welcomed, notably developments related to the improvement of
civil registry, ID cards and the introduction of biometric pass-
ports; expresses hope this will contribute to an improvement in
the electoral process as the most recent local elections failed to
be in line with international commitments and standards;

welcomes the government's more strategic approach to
22.
the fight against corruption. However, corruption is still very
widespread and constitutes a serious problem in Albania. More-
over, despite some improvements, the judiciary system remains
weak and there is a major need for further reforms, especially in
the areas of independence, transparency and efficiency. That is
why it is particularly important that the planned anti-corruption
strategy for 2007-2013 be implemented and applied vigorously
in line with the Council of Europe/GRECO recommendations;

23.
notes the very positive climate in inter-religious relations
as they represent valuable example in the region, but urges
more improvement in the areas of human rights and freedom
of expression;

believes that the civil sector is a very important element
17.
in building a democratic society. Further development and capa-
city building of this sector is needed in order to facilitate their
significant
role in increasing transparency and promoting
democracy. The civil sector can play important role in informing
inclusion in accession
public on EU and facilitating citizens'
processes;

calls on Albanian authorities

to continue working
24.
towards improvement of in the status of minorities in line with
European best practices and the Council of Europe's Framework
convention for Protection of National Minorities. Strongly
recommends to include representatives of minorities in the
teaching of minority
Albanian parliament and ensure that
languages is extended to include all members of ethnic minori-
ties throughout the country;

calls for further improvement of women's, children's and
18.
old people's rights. Further steps should be taken to improve
equal opportunities, ensure better employment and encourage
more active involvement of women in political life. Protection

25.
acknowledges Albania's effort in maintaining and devel-
oping further good neighbourly relations with Member States
and other pre-candidate countries;

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26.
considers that a further upgrade of administrative capa-
city is needed in order to implement the SAA successfully. Local
authorities' administrations and Albanian Association of Munici-
palities need further capacity building to be able to absorb IPA
funds;

Bosnia and Herzegovina

27.
welcomes the initialling of the Stabilisation and Associa-
tion Agreement (SAA) with EU and urges Bosnia and Herzego-
vina authorities to work together towards implementing obliga-
tions undertaken by the Agreement;

welcomes the declaration on reforms of police forces in
28.
Bosnia and Herzegovina and calls upon all signatories to work
towards reforming the police according to EU principles. Police
reform remains necessary for the signature of the Stabilisation
and Association Agreement (SAA);

29.
welcomes determination of local government structures
in Bosnia and Herzegovina to adopt European best practice in
improvement of service delivery and welcomes readiness of the
local government associations of both entities to work together
in improving the quality of local services to the citizens;

welcomes continuing reforms of local government and
30.
notes that legislation of both entities regarding local self-govern-
ment is compatible with the European Charter for Local Self-
Government;

31.
considers that a further upgrade of administrative capa-
city is needed in order to implement the SAA successfully. Local
authorities' administrations and local government associations
in both entities need further capacity building to be able to
absorb and to fully benefit from IPA funds;

32.
welcomes progress that has been made in return of refu-
gees and internally displaced persons and encourages relevant
organisations and agencies to continue working on improving
conditions for sustainable return;

welcomes improvement in cooperation with the Interna-
33.
tional Criminal Tribunal for the Former Yugoslavia which is
seems as being on generally satisfactory level, but full coopera-
tion shall be required for the signature of Stabilisation and Asso-
ciation Agreement;

Serbia

tional Criminal Tribunal
remain a condition for further EU integration;

for the Former Yugoslavia as they

36.
acknowledges the progress that has been made in the
field of public administration reform which is in line with Euro-
pean standards and notes good administrative capacity that
Serbia has shown in the context of negotiations on the SAA;

37.
welcomes the initiative launched by the Ministry of
Justice to do in-depth analysis of the judiciary system as imple-
mentation of the legal framework provided by the new constitu-
tion is still pending. Further effort is needed to ensure the inde-
pendence, accountability and efficiency of the judicial system;

welcomes

the national
38.
strategy against corruption, but notes that corruption is still
widespread and constitutes a serious problem in Serbia;

implementation of

further

welcomes the improvement

for, and
39.
protection of, minority rights and encourages the government
to focus its efforts in improving the rights of ethnic groups,
particularly in the area of education, social protection, health
care, housing and employment;

in the respect

urges the Serbian Parliament to ratify European Charter

40.
on Local Self-Government;

41.
considers that a further upgrade of administrative capa-
city is needed in order to implement the SAA successfully. Local
authorities' administrations and Standing Conference of Towns
and Municipalities need further capacity building to be able to
absorb and fully benefit from IPA funds;

Kosovo (under UN SC Resolution 1244)

42.
Kosovo's declaration of independence of 17 February is
now a fact; it welcomes the decision to launch ESDP mission on
the rule of law and stability, EULEX Kosovo. Maintaining the
rule of law and stability is in the interest of everyone. Ethnic
groups must coexist peacefully;

welcomes the introduction of

43.
the Strategy and the
Action Plan on Public Administration Reform 2006-2011 as
the public administration is weak and inefficient and reforms
are still at early stages;

44.
believes that whilst certain progress has been made at
the local government level, its administrative capacities remain
weak;

calls on Serbia to continue moving closer towards EU

34.
and to endeavour to live peacefully with its neighbours;

welcomes initiation of the Stabilisation and Association
35.
Agreement
(SAA) with EU and calls on Serbia to continue
working towards fulfilling its obligations towards the Interna-

45.
welcomes the establishment of the Kosovo Anti-corrup-
tion Agency but believes there is a lack of clear political will to
fight corruption, which remains a major problem. Further capa-
city building of the Agency's staff is needed as well as conti-
nuing work on development of the legislative framework and
implementing measures;

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46.
regrets that little progress was achieved in the area of
civil and political rights and liberties and urges Kosovan authori-
ties to undertake further investigations on over 2 000 missing
persons as an important step towards reconciliation;

47.
welcomes the fact that elections in Kosovo in November
2007 took place in a peaceful manner; calls of Kosovan and
Serbian authorities to continue working towards peaceful settle-
ment of the actual political situation and it strongly believes
that there can be no place for violence in Kosovo and that
multi-ethnic Kosovo can only be built through co-operation of
all its communities;

Montenegro

48.
welcomes the signing of the Stabilisation and Association
Agreement with the EU and encourages the government of
Montenegro to continue working on its obligations under the
Agreement along the lines of the draft action plan for imple-
mentation;

49.

welcomes the adoption of the new Constitution;

acknowledges the good record of post-independence
50.
Montenegro in establishing good bilateral relations with enlarge-

Brussels, 10 April 2008.

ment countries and neighbouring Member States as well as
good progress in joining regional initiatives and the Council of
Europe;

51.
welcomes measures introduced by the government to
combat organised crime and corruption but notices that these
issues are still seen as a serious concern and urges the govern-
anti-corruption
ment
measures and increased efforts in combating money laundering.
Particular emphasis should be on continuation of reforms to the
judiciary system;

to continue with improvement of

52.
notices continuing reform of public administration and
recommends further capacity building, particularly in areas of
transparency, accountability, public procurement as well as in
managing of public assets and licensing procedures;

53.
considers that a further upgrade of administrative capa-
city is needed in order to implement the SAA successfully. Local
authorities' administrations and Montenegrin local government
association need further capacity building to be able to absorb
and fully benefit from IPA funds.

The President

of the Committee of the Regions

Luc VAN DEN BRANDE