Communication from the Commission to the Council and the European Parliament - Report on the first year of implementation of the Black sea synergy
Date: 2008-06-19
Institutions: European Commission
Subjects: Black Sea, cooperation policy, cross-border cooperation, regional cooperation, report

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 19.6.2008 
COM(2008) 391 final 

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

REPORT ON THE FIRST YEAR OF IMPLEMENTATION OF THE BLACK SEA 
SYNERGY 

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COMMUNICATION FROM THE COMMISSION TO THE COUNCIL AND THE 
EUROPEAN PARLIAMENT 

REPORT ON THE FIRST YEAR OF IMPLEMENTATION OF THE BLACK SEA 
SYNERGY 

1. 

INTRODUCTION 

In  May  2007  the  Council  adopted  Conclusions  on  the  Commission  Communication  “Black 
Sea Synergy – a New Regional Cooperation Initiative”.1 It invited the future Presidencies and 
the European Commission to continue work on an enhanced and coherent EU engagement in 
and with the Black Sea region2. Given the strategic importance of the Black Sea area for the 
EU, the Council invited the Commission to carry out a review in the first half of 2008 of the 
development of the Black Sea Synergy Initiative. 

The  Black  Sea  Synergy  has  been  a  recurrent  topic  of  discussion  in  the  relevant  Council 
Working  Party  both  under  the  Portuguese  and  the  Slovenian  Presidencies.  This  has  given 
ample opportunities for Member States and the Commission to examine its evolution. 
The European Parliament has adopted a Report on the Black Sea Synergy.3 It underlines the 
need for the EU to concentrate on a limited set of priority objectives, avoiding dispersion and 
duplication  of  efforts.  The  European  Parliament  also  considers  that,  in  order  to  adopt  a 
coherent,  effective  and  result-oriented  regional  policy  approach, the Communication has to be 
followed by further consistent steps to encourage a genuine regional dimension tailored to this area. It 
considers that Bulgaria, Greece and Romania, as EU Member States in the Black Sea region, could 
and should lead the way in promoting enhanced cooperation with and within the region. 

The  Committee  of  the  Regions  has  completed  an  opinion  on  the  Black  Sea  Synergy  which 
was adopted by its Plenary of 6-7 February 2008.4  

At  the  request  of  the  Commission,  the  Economic  and  Social  Committee  is  preparing  an 
exploratory opinion on the 2007 Black Sea Synergy Communication. 

This report on the first year of the Black Sea Synergy describes the progress achieved so far in 
implementing the tasks set by the 2007 Communication. It also renders account of the series 
of  contacts  and  discussions  with  partners  in  the  Black  Sea  region.  These  have  led  to  the 
launch  and  endorsement  of  the  Synergy  as  a  collective  endeavour  and  have  produced  a 
number of forward-looking proposals. 

The Black Sea Synergy Initiative is complementary to the European Neighbourhood Policy, 
the enlargement policy for Turkey and the Strategic Partnership with the Russian Federation. 

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COM 2007 (160) final, adopted 11. 04. 2007 
The  Black  Sea  region  (See  Map  in  Annex)  includes  Greece,  Bulgaria,  Romania  and  Moldova  in  the 
west, Ukraine and Russia in the north, Georgia, Armenia and Azerbaijan in the east and Turkey in the 
south. Though Armenia, Azerbaijan, Moldova and Greece are not littoral states, history, proximity and 
close ties make them natural regional actors. 
Report on a Black Sea Regional Policy Approach (2007/2101(INI))  
RELEX-IV-008 COR 

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2. 

PROGRESS IN CARRYING OUT THE CONCRETE TASKS 

The 2007 Communication formulated concrete goals and tasks in sectors or thematic fields. 
The Commission has started implementing most of these tasks. 

2.1. 

Environment 

The  Commission  is  examining  the  conditions  for  European  Community  accession  to  the 
Convention  to  protect  the  Black  Sea  against  pollution.  It  has  supported  studies  on  the  legal 
changes that would allow for accession. The Ministerial Conference of the Convention to be 
held  in  Kyiv  in  October  2008  is  expected  to  address  this  question.  Full  membership  of  the 
Bucharest Convention is particularly relevant in view of the recently adopted Marine Strategy 
Framework  Directive.  The  latter  relies  largely  on  regional  cooperation,  including  the 
framework of regional sea conventions. 

Work has begun on exploring the feasibility of replicating the approach of the DABLAS Task 
Force5 for other environment sectors, waste being the most promising area. Furthermore, the 
Commission has launched a project to continue and intensify the work of the Task Force. As a 
result, the DABLAS Secretariat will provide services for the full DABLAS region, as well as 
direct investment support to river basin management–related projects. 

The  Commission  will  launch  soon  a  climate  change  technical  assistance  project  which 
includes the Black Sea region. This will focus on enhancing capacity to implement the Kyoto 
Protocol  and  to  participate  in  international  negotiations  on  a  post-2012  agreement. 
Discussions  are  under  way  with  our  partners  about  region-wide  efforts  to  address  climate 
change. 

2.2.  Maritime policy and fisheries 
In the framework of the recently adopted Integrated Maritime Policy for the European Union 6 
the  Commission  is  promoting  better  cooperation  between  national  authorities  responsible  for 
offshore government activities, including in the Western Black Sea region, through the creation 
of an integrated network of maritime surveillance systems. In this context, it will also look at 
the possibility of extending such a network to other non-EU Black Sea littoral states. 

The  Black  Sea  countries  have  already  established  Exclusive  Economic  Zones  and  currently 
prepare  to  develop  a  regional  Strategy  for  Integrated  Coastal  Zones  Management.  The 
Commission  will  complete  a  Road  Map  in  order  to  facilitate  the  development  of  maritime 
spatial planning by the end of 2008. Member States in the Black Sea region are encouraged to 
start their own reflection on maritime spatial planning and learn from the experience of other 
Member States. 

The  Commission  is  in  the  process  of  establishing  a  European  Marine  Observation  and  Data 
Network for all sea basins, including the Black Sea. 

EU  fisheries  management  measures  have  been  established  in  the  Council  Regulation  fixing 
the  fishing  opportunities  and  the  conditions  relating  to  certain  fish  stocks  applicable  in  the 
Black  Sea  for  2008.  These  measures  refer  only  to  Bulgaria  and  Romania  while  fisheries 
management and a correct ecosystem approach need to involve all countries around the Black 
Sea.  Therefore  the  Commission  has  started  working  on  options  for  establishing  regional 

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The Danube-Black Sea Task Force was set up by the countries of the Danube and the Black Sea regions 
to encourage a strategic focus in investments concerning water. 
COM (2007) 575 final - An Integrated Maritime Policy for the European Union  

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fisheries management cooperation. The results of this analysis and the concrete proposals will 
be consulted with the Member States and the Black Sea coastal states. 

2.3. 

Energy 

The  Black  Sea  region  has  made  good  progress  in  mobilising  existing  instruments  and 
resources. The Republic of Moldova,  Turkey and Ukraine have confirmed their intention to 
engage in formal negotiations to join the Energy Community Treaty, which provides for the 
implementation  of  the  Community  acquis  in  the  electricity  and  gas  sectors.  Georgia  was 
accepted as an observer in December 2007. 

Concerning  energy  infrastructure,  the  Commission  has  sponsored  a  feasibility  study  on  a 
Trans-Caspian-Black  Sea  Gas  Corridor  which  is  examining  all  the  transportation  options 
(pipeline and non-pipeline). 

2.4. 

Transport 

The  Commission  has  started  streamlining  the  various  transport  cooperation  efforts.  It  has 
launched exploratory talks with the countries of the region on extension of the trans-European 
transport  networks.  This  involves  the  possibility  of  preparing  the  TRACECA7  structures  to 
serve  as  institutions  for  the  south-eastern  axis.  Together  with  the  TRACECA  countries,  the 
Commission  is  preparing  a  Transport  Ministerial  Meeting  for  the  end  of  2008  that  might 
adopt the relevant decisions. 

Through  a  series  of  related  projects  the  Commission  has  increased  its  focus  on  maritime 
safety and security. Furthermore, it has begun to implement the Motorways of the Sea concept 
in the Black Sea, closely linked to the TRACECA programme. 

Work has started to extend the Common Aviation Area to the Black Sea countries, involving 
improvement of safety oversight and strengthening of the civil aviation authorities. 

2.5.  Managing movement and improving security 

The Conclusions on the Global Approach to Migration adopted by the European Council in 
June  2007  endorsed  a  number  of  priority  actions,  including  the  establishment  of  a 
Cooperation Platform on Migration in the Black Sea region. In April 2008 the EU decided to 
establish  this  platform,  bringing  together  Member  States,  EU  agencies,  countries  bordering 
the Black Sea and regional organisations. The platform will aim to provide for a focused and 
strengthened  migration  dialogue  and  for  improving  practical  cooperation  between  Member 
States and the countries in the region, as well as between those countries themselves. 

There  are  advanced  plans  to  fund  the  further  development  of  the  Burgas  Black  Sea 
Coordination  Centre.8  Each  Black  Sea  country  is  expected  to  establish  national  centres  that 
will feed/exchange relevant information to/through the Coordination Centre. The Commission 
is co-funding two projects against trafficking in human beings through  labour  market  based 
measures and police measures respectively. 

2.6. 

Research, science and education networks 

The  Commission  has  been  supporting  institutional  cooperation  and  structural  reforms  in 
higher  education  via  the  Tempus  programme.  Black  Sea  regional  cooperation  in  higher 
education will benefit from the new phase of the programme that will give priority to multi-

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The TRAnsport Corridor Europe-Caucasus-Central Asia (TRACECA) programme provides assistance 
covering road, rail, aviation and maritime transport connections. 
Black Sea Border Coordination and Information Centre based in Burgas, Bulgaria. 

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country  projects.  Higher  education  cooperation  and  academic  mobility  continues  to  be 
fostered via the Erasmus Mundus programme. 

The  Black  Sea  Interconnection  (BSI)  project  (approved  for  funding  in  2007)  will  build  a 
regional  research  and  education  network  linking  it  to  GÉANT2,  the  high  bandwidth,  pan-
European research network. This flagship project is the largest of its kind in the region. 

The  Commission  also  supports  regional  scientific  cooperation,  i.  a.  through  the  INCONet 
EECA project which started in January 2008. 

2.7. 

Employment and social affairs 

Activities  at  regional  level  started  recently.  They either  address  specific  issues of  the  Black 
Sea  region  (such  as  a  seminar  on social  dialogue  to  take  place  in  2008)  or, in  a  larger 
context, thematic subjects (such as the seminar on gender equality in November 2007). 

2.8. 

Trade 

The EU  has  continued  to  encourage  Black  Sea  regional  trade  liberalisation,  supporting  in 
particular the partner countries' efforts to join the WTO. 

2.9. 

Democracy, respect for human rights and good governance 

The first of a series of Black Sea Synergy civil society seminars on human rights issues took 
place in May 2008 in the Republic of Moldova. This event presented standards on freedom of 
expression  in  a  civil  society  perspective.  Participants  included  government  officials  and 
members  of  civil  society  from  the  Black  Sea  countries.  Recommendations  to  governments 
concerning freedom of expression were adopted. 

2.10.  The “frozen conflicts” 

The  Commission  has  continued  to  advocate  an  active  EU  role  in  addressing  the  underlying 
causes of these conflicts, i. a. in the Black Sea regional framework. Attention has been paid to 
promoting  confidence-building  measures  also 
including 
cooperation programmes specifically designed to bring the otherwise divided parties together. 

in  wider  regional  context, 

3. 

CROSS-BORDER COOPERATION, WORKING WITH CIVIL SOCIETY 

The  European  Neighbourhood  and  Partnership  Instrument  Cross-border  Cooperation 
programmes  promote  cooperation  between  local  authorities  of  bordering  regions  addressing 
common challenges. They also facilitate people-to-people contacts. 

The Black Sea CBC Programme is in its launch phase. A “Joint Operational Programme” has 
been drawn up by the parties (representing the national and regional authorities of 10 states9). 
The programme is allocated € 17.5 million. 10 The first calls for proposals are expected to be 
published before the end of 2008. 

The Romania-Moldova-Ukraine CBC programme covers the north-western coast of the Black 
Sea  with  an  allocation  of  €  126  million.  Its  implementation  should  start  in  the  autumn  of 
2008.  

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Armenia, Azerbaijan, Bulgaria, Georgia, Greece, Moldova, Romania, Russian Federation, Turkey and 
Ukraine 
The participation of Turkey in the programme is financed additionally by funds under the Instrument of 
Pre-Accession 

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The Black Sea Forum11 has increased its focus on civil society. Its first civil society activities 
have already taken place. 

The  Black  Sea  Synergy  has  attracted  considerable  NGO  interest.  An  alliance  of  29 
environmental  NGOs  met  in  Odessa  on  7  February  2008  and  adopted  a  position  paper  on 
“Greening the Black Sea Synergy”. 

4. 

ASSISTANCE 

In 2007 € 837 Million worth of Community assi stance under ENPI and the Instrument of Pre-
Accession were committed for the seven non-EU countries of the Black Sea region. (Details 
are provided in the Annex.) 

In addition, the creation of the Neighbourhood Investment Facility (NIF) offers a vehicle for 
pooling  grant  resources  from  the  Community  and  the  Member  States.  These  resources  can 
also  leverage  additional  loan  financing  from  European  public  finance  institutions  for 
investments in neighbouring countries, including in the Black Sea region. The NIF will make 
it  easier  to  mobilise  additional  funding  for  priority  projects  and  can  thus  also  sustain  Black 
Sea regional cooperation efforts. 

5. 

OTHER COOPERATION WITH PARTNER COUNTRIES, REGIONAL AND INTERNATIONAL 
ORGANISATIONS 

All  Black  Sea  countries  have  been  involved  in  Black  Sea  Synergy  discussions.  The 
Presidencies  and  the  Commission  have  conducted  a  series  of  consultations  with  them  in 
different formats. 

The recent period has seen the rapid development of relations between the European Union 
and  the  Organisation  of  the  Black  Sea  Economic  Cooperation  (BSEC).12  In  June  2007  the 
Commission obtained observer status in the BSEC. Representatives of the EU Presidency, the 
incoming  Presidency  and  the  Commission  joined  the  Foreign  Ministers  of  the  BSEC  at  a 
working breakfast in Kyiv in February 2008. The extended BSEC troika had three meetings 
with  the  respective  Council  Working  Party.  Commission  representatives  attended  all  high 
level BSEC meetings and contributed to the activities of BSEC Working Groups.  

6. 

THE FOREIGN MINISTERS’ MEETING IN KYIV (14 FEBRUARY 2008) 

A Foreign Ministers’ meeting took place at the initiative of the European Union involving all 
regional partners, the EU Member States and the EU institutions. 

The meeting launched the Black Sea Synergy as a common endeavour. A Joint Statement was 
adopted  by  participants.13  It  welcomes  the  Black  Sea  Synergy  and  states  that  greater 
involvement  by  the  European  Union  can  increase  the  potential  of  Black  Sea  regional 
cooperation.  The  Black  Sea  Synergy  will  benefit  from  the  European  Neighbourhood  Policy 
and other EU policies applied in the relationship with countries of the region. EU support to 
Black Sea regional cooperation is aimed at producing tangible results in a number of priority 

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A Romanian initiative 
The  BSEC  was  established  in  1992.  Initially  focusing  on  economic  cooperation,  its  remit  has  been 
gradually widened. Membership includes all Black Sea countries as listed under footnote 2 plus Albania 
and Serbia. 
The Russian Federation did not take part in discussions about the Joint Statement., since it preferred an 
EU-BSEC Statement. However, the Russian Federation stressed that it supported the increased EU role 
contained in the Joint Statement. Therefore it did not oppose the document’s adoption. 

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areas,  notably  energy,  transport,  communication,  trade,  environment,  maritime  policies, 
fisheries,  migration,  law  enforcement  and  the  fight  against  organised  crime.  The  Statement 
adds  that  increased  EU  engagement  has  the  potential  to  bring  benefits  also  in  the  fields  of 
trade, science, research, culture and education as well as employment and social affairs. 

7. 

THE WAY FORWARD 

Experience  of  the  first  year  has  proven  the  validity  of  the  principles  contained  in  the  2007 
Communication.  The  initiative’s  main  goal  remains  to  invigorate  action  at  regional  level 
promoting  stability  and  prosperity  in  the  Black  Sea  area.  It  is  a  flexible,  inclusive  and 
transparent framework, based on the common interests of the EU and of all Black Sea states. 

The Commission welcomes the fact that Black Sea Synergy participants envisage continuing 
the  present  pragmatic  and  project-oriented  approach.  Consequently,  work  should  proceed  to 
accomplish  the  tasks  set  by  the  2007  Communication  and  the  Kyiv  Joint  Statement. 
Interaction with the BSEC and other regional bodies providing added value should continue. 

During the Foreign Ministers’ meeting in Kyiv and the months thereafter, EU Member States 
and Black Sea Synergy partners have made suggestions as to how the Black Sea Synergy co-
operation process can be firmly rooted as a long-term endeavour. These proposals can provide 
new impetus to regional cooperation with our partners to the east of the European Union. The 
Commission intends to explore and actively take them forward to promote more effective and 
ambitious action:  

–  Long-term, measurable objectives in fields like transport, environment, energy or maritime 
safety should be set to spur more concerted action. These would require the support of all 
BSS  members.  In  each  case  a  lead  country  and/or  organisation  should  be  identified  to 
ensure coordination of activities which might be undertaken at national or regional level to 
achieve the objectives set.  

–  To  facilitate  the  realisation  of  projects,  sectoral  partnerships  could  be  established  to 
provide  a  framework  for  co-financing  (including  through  the  NIF)  and  a  basis  for  the 
involvement of IFIs. These partnerships might bring together all or some of the Black Sea 
Synergy participants to cooperate on a series of projects. The successful experience of the 
Northern Dimension14 provides a useful example of how this could work.  

–  The  frequency  of  ministers’  meetings  should  reflect  concrete  needs.  In  some  cases  they 
could  take  place  in  the  existing  sectoral  frameworks  (such  as  TRACECA  or  the  Baku 
Initiative)  or  could  follow  the  Kyiv  model  (back-to-back  with  BSEC  meetings,  with  full 
EU participation or involving an open troika). Foreign ministers could meet as required to 
mark the major milestones of the process. 

There have been a number of other proposals that also deserve further study: 

–  involvement of Belarus in some of the sectoral activities, related to the Synergy 

–  creation of a Black Sea Civil Society Forum  

–  strengthening of academic and student networks 

–  establishment of an Institute of European Studies in the Black Sea Region 

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Northern Dimension Partnerships select and finance projects serving agreed goals and using dedicated 
funds 

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The Commission stands ready to work with Member States and all stakeholders on these and 
other new ideas, strengthening Black Sea regional co-operation that: 

–  complement  the  bilateral,  tailor-made  cooperation  we  have  with  our  partners  under  the 

ENP and other policies applying in the region 

–  are inclusive, involve all Member States and Black Sea countries 

–  provide added value 

8. 

CONCLUSION 

The initial results of the Black Sea Synergy reveal the practical utility and the potential of this 
new EU regional policy approach. The launch phase of the Synergy has been completed and 
implementation has begun. Participants favour the establishment of a long-term Black Sea co-
operation process and have formulated converging ideas about its content and arrangements. 

Experience  in  the  first  year  also  demonstrates  that  the  development  of  EU-supported  Black 
Sea  regional  cooperation  is  a  process  taking  place  in  a  complex  environment.  Continued 
progress  requires  the  consistent  and  active  involvement  of  a  growing  number  of  actors, 
including both Member States and Black Sea partners. As in the first year, the Commission 
will be ready to contribute to this important work. 

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ANNEX I 

Black Sea Country Map 

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EC Assistance to Countries covered by the Black Sea Synergy (Commitments € million) 

ANNEX II 

2000-2006 under 
Tacis and 
instruments for 
Turkey 

2007 under ENPI 
/IPA 

2007 under EC 
humanitarian aid 
instrument 

Bilateral Co-operation 

Armenia 

Azerbaijan 

Georgia 

Moldova 

Russian Federation 

Turkey 

Ukraine 

44,8 

72,6 

65 

86,5 

559 

1040 

501,5 

Total Bilateral 

2369,4 

24 

22 

28,8 

45,7 

13 

497,2 

144 

774,7 

Regional Co-operation 

962,2 

62 

1,35 

2 

3 

19,45 

Total 

3331,6 

836,7 

25,8 

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