Communication from the Commission - Common aviation area with the Neighbouring Countries by 2010 : progress report
Date: 2008-10-01
Institutions: European Commission
Subjects: activity report, air space, air transport, cooperation policy, third country, transport policy

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COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, XXX 
COM(2008) YYY final 

COMMUNICATION FROM THE COMMISSION 

Common Aviation Area with the Neighbouring Countries by 2010 - Progress Report 

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COMMUNICATION FROM THE COMMISSION 

Common Aviation Area with the Neighbouring Countries by 2010 - Progress Report 

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WHY A COMMON AVIATION AREA WITH THE NEIGBOURING COUNTRIES BY 2010? 

In its “Conclusions on developing the agenda for the Community’s external aviation 
policy” of 27 June 2005, the Council welcomed the progress in developing a wider 
Common Aviation Area (CAA) with the EU neighbouring countries by 2010. 

The CAA fits into the wider objectives of the Community's air transport policy and, 
together with comprehensive air transport agreements with key global partners of the 
EU and so called "horizontal agreements", constitutes a key pillar of this policy. The 
CAA  also  complements  the  broader  objectives  of  the  European  Neighbourhood 
Policy  (ENP),  through  which  the  Community  promotes  stability  and  sustainable 
development along its eastern and southern borders. 

Efficient transport in general, and efficient air transport in particular can significantly 
contribute  to  economic  development,  technical  cooperation  and  people-to-people 
contacts between the EU and neighbouring countries. In addition, CAA agreements, 
by allowing full participation in one of the key areas of the single market, provide an 
example  and  an  incentive  for  further  economic  integration  of  the  partner  country 
with the EU. 

In  the  context  of  the  enhanced  Union  for  the  Mediterranean1,  and  ever  closer  links 
between  the  EU  and  its  eastern  neighbours,  the  CAA  becomes  even  more  relevant. 
Its  ultimate  objective  should  be  the  establishment  of  a  single  pan-European  air 
transport  market,  based  on  a  common  set  of  rules  and  encompassing  up  to  60 
countries with approximately one billion inhabitants. In 2007 alone, over 120 million 
passengers travelled between the EU and its neighbouring countries in Europe, East-
Europe,  Central  Asia,  the  Mediterranean  and  Middle  East2,  which  represents  an 
increase of over 20% compared to 2004. This volume of traffic constitutes over 45% 
of the air traffic between the EU and third countries3. 

The  European  aviation  is  changing  rapidly,  with  the  EU  becoming  its  main 
institutional  and  regulatory  driver.  This  places  additional  responsibilities  on  the 
Community, which should ensure proper involvement of the neighbouring states. In 

The Barcelona Process: Union for the Mediterranean was launched in Paris on July 13th, 2008. It aims 
to infuse new vitality into the partnership, offering more balanced governance and increased visibility 
(Communication from the Commission - Barcelona Process: Union for the Mediterranean, COM (2008) 
319 (Final)). 
Albania,  Algeria,  Armenia,  Azerbaijan,  Belarus,  Bosnia  and  Herzegovina,  Croatia,  Egypt,  Georgia, 
Iceland,  Israel,  Jordan,  Kazakhstan,  Kyrgyzstan,  Lebanon,  Libya,  Republic  of  Moldova,  Montenegro, 
Morocco,  Norway,  Palestine,  Russia,  Switzerland,  Syria,  Tajikistan,  Tunisia,  Turkey,  Turkmenistan, 
Ukraine,  Uzbekistan,  Former  Yugoslav  Republic  of  Macedonia  and  Serbia,  as  well  as  Kosovo  under 
UNSC Resolution 1244/99. 
The total number of passengers transported by air between airports inside the EU and airports outside 
the EU reached 250 million already in 2006 (Eurostat, Statistics in Focus - Transport, 52/2008). 

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addition,  key  challenges  such  as  maintaining  a  high  level  of  aviation  safety  and 
security,  optimisation  of  Air  Traffic  Management  (ATM)  or  combating  climate 
change are not constrained by the borders of the Community, and the neighbouring 
countries  should  be  invited  to  participate  in  the  projects  deployed  by  the  EU  to 
address these challenges. 

6. 

A  target  date  of  2010  has  been  set  by  the  Community  for  the  development  of  the 
CAA  and  through  this  Communication  the  Commission  is  taking  stock  of  the 
progress  made  so  far.  A  number  of  lessons  have  been  learned  since  the  CAA  was 
launched. These experiences should be used to enhance the efficiency of the project 
and lend it additional impetus. 

2. 

WHAT HAS BEEN ACHIEVED SO FAR? 

2.1. 

Flexible project based on the country-specific approach 

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The  CAA  covers  countries  of  differing  nature.  Although  the  EU's  offer  of 
establishing  deeper  relations  is  the  same  for  all  partners,  the  country-specific 
approach – like the ENP - does provide for flexibility and differentiation. 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 relationship with the EU, 
its reform agenda and achievements. 

The  beginning  of  the  CAA  can  be  traced  back  to  1993,  when  the  most  advanced 
integration  of  third  countries  with  the  EU's  air  transportation  policy  has  been 
achieved within the framework of European Economic Area agreement4. As a result 
Norway,  Iceland  and  Liechtenstein  participate  in  the  single  aviation  market  at  the 
equal  footing  with  the  EU  Member  States.  Similarly,  a  very  high  degree  of 
integration through a specific air transport agreement has been achieved in relation to 
Switzerland  and  is operational since 20025. Since that, a number  of other countries 
have been invited to participate in the project. Currently, there are two main concepts 
on the basis of which the EU is pursuing the development of the CAA – the Single 
Aviation Market concept and the Euro-Mediterranean Aviation Agreement concept. 

The  Single  Aviation  Market  concept  has  been  used  with  the  countries  already 
engaged in the Pan-European aviation institutional framework, such as the Western 
Balkans,  and  which  started  regulatory  approximation  with  the  EU  through  their 
participation  in  organisations  such  as  Eurocontrol  or  the  Joint  Aviation  Authorities 
(JAA). Arrangements based on this concept provide for full integration of a partner 
country into the single aviation market, often in anticipation of its future accession to 
the EU. The Commission has also started, on the basis of the single aviation market 
concept, comprehensive air transport negotiations with Ukraine. 

A  Euro-Mediterranean  air  transport  agreement,  providing  for  a  high  level  of 
regulatory  harmonisation,  gradual  market  opening  and  increased  investment 
possibilities, was concluded with Morocco and sets a benchmark for future aviation 

Agreement on the European Economic Area, OJ L 1/1994, 3.1.1994, p. 3 
Agreement  between  the  European  Community  and  the  Swiss  confederation  on  Air  Transport,  OJ  L 
114/2002 30.4.2002 p. 73 

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11. 

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agreements with the EU partners in the Mediterranean region. Already mandated by 
the  Council,  the  Commission  will  be  pursuing  on  the  basis  of  this  model 
comprehensive air transport negotiations with Israel and Jordan. The Commission is 
supporting  the  development  of  the  CAA  in  the  Mediterranean  region  through  an 
ambitious  "Euromed  Aviation  Project"  -  developed  in  the  framework  of  the  Euro-
Mediterranean Transport Forum6 and aiming at approximation of the regulations of 
the  MEDA  countries  with  EU  aviation  regulations,  improvement  of  air  safety  and 
security in the region, and fostering co-operation on ATM matters. 

Cooperation  around  the  Black  Sea  and  in  Central  Asia  has  focused  on  technical 
assistance and exchanges at expert level, familiarising the partner countries with EU 
aviation legislation and enhancing current levels of safety in the region. In 2009 the 
Commission will start providing additional targeted assistance to the countries in this 
region within the framework of the Civil Aviation Safety and Security project, with a 
budget of € 5 million. 

The  Commission  is  carefully  monitoring  developments  in  the  neighbouring  area, 
where a number of countries could be considered as further potential candidates for 
participation  in  the  CAA.  In  the  Mediterranean  region,  the  next  natural  candidates 
are Tunisia and Algeria, owing to the considerable potential of their markets, as well 
as their strong economic, cultural and historical links with the Community. Amongst 
the  EU's  eastern  neighbours,  the  Commission  sees  Georgia  and  the  Republic  of 
Moldova  as  possible  next  candidates  -  both  countries  already  participate  in  pan-
European aviation organisations and are strongly involved with the EU through ENP 
Action Plans and other dedicated initiatives. 

2.2. 

The specific case of Russia and Turkey 

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15. 

With 23 and 10 million passengers respectively travelling by air in 2007, Turkey and 
Russia  are  among  the  most  important  aviation  markets  for  the  EU  and  are 
experiencing  dynamic  growth.  However,  up  to  now  there  is  still  no  comprehensive 
and legally sound framework for aviation relations with these key partners. 

In  the  light  of  its  status  as  an  accession  country  and  its  importance  as  an  aviation 
partner, Turkey should be fully involved in the CAA. However, up to now progress 
has been slowed down by Turkey's failure to acknowledge the integrated character of 
the single aviation market, as well as by ongoing safety issues in the ATM area. The 
Commission  expects  that  the  situation  should  evolve  in  a  positive  direction,  and  it 
will continue engaging with Turkey in a constructive dialogue. Such progress would 
be equally vital in the framework of the negotiations on the transport chapter as part 
of  the  accession  negotiations  with  Turkey.  As  a  first  step,  bilateral  air  transport 
agreements between the Member States and Turkey should be brought into line with 
Community law. 

Russia is a key neighbour of the enlarged EU and an important aviation market with 
a long tradition in aeronautics. This close relationship calls for the establishment of a 
proper  framework  for  cooperation  in  aviation  matters.  However,  a  prerequisite  for 
this  must  be  the  implementation  by  the  Russian  Federation  of  the  agreement  on 
Siberian  overflight  payments,  which  Russia  is  charging  contrary  to  normal 

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http://www.euromedtransport.org/355.0.html 

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international practice. This agreement was reached during the EU-Russia Summit in 
November 2006 and approved by the Russian government in November 2007 but has 
not yet been signed. Similarly, bilateral air transport agreements between the Russia 
and Member States need to be brought into line with Community law. 

2.3. 

Significant progress in ensuring legal certainty for commercial operators 

16. 

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Significant  progress  has  been  made  in  bringing  bilateral  air  transport  agreements 
between  the  Member  States  and  neighbouring  countries  into  line  with  Community 
law. This increases the legal certainty of operations for airlines of both sides, without 
affecting  the  balance  of  traffic  rights  between  the  Member  States  and  partner 
countries. 

Horizontal  agreements  were  agreed  with  Albania,  Armenia,  Azerbaijan,  Bosnia-
Herzegovina, Croatia, the Former Yugoslav Republic of Macedonia, Georgia, Israel, 
Jordan,  Kazakhstan,  Kyrgyzstan,  Lebanon,  Republic  of  Moldova,  Montenegro, 
Morocco, Ukraine and Serbia. In addition, bilateral agreements of Algeria, Belarus, 
Egypt,  Syria,  Tajikistan,  Turkmenistan,  and  Uzbekistan  with  at  least  one  Member 
State, allow for Community designation.  

3. 

IMPLEMENTATION OF THE CAA AGREEMENTS – LESSONS LEARNED 

3.1. 

A proven, successful formula 

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More  than  two  years  after  the  signature  of  the  European  Common  Aviation  Area 
agreement with the Western Balkans (ECAA)7 and the first Euro-Mediterranean air 
transport  agreement  with  Morocco8, 
regarding 
implementation of CAA are generally positive. The agreements have contributed to 
rapid changes in the air transport sector of the partner countries, and to the increase 
in the number of passengers and airlines flying on new routes. 

the  Commission's 

findings 

Particularly strong traffic growth has been observed between the EU and Morocco. 
In 2007, over 7.8 million passengers travelled under the first Euro-Mediterranean air 
transport agreement; this represents an 18% growth compared to 2006. The growth 
under  the  ECAA  agreement  was  more  modest,  with  over  6.6  million  passengers 
travelling between the EU and the Western Balkans in 2007 (a 5% increase over the 
2006 figures). 

The  progress  of  implementation  is  regularly  monitored  by  the  respective  Joint 
Committees,  which  have  proved  to  be  very  useful  for  periodic  reviews  of  the 
agreements, and in facilitating operations by addressing the practical difficulties that 
arise  from  time  to  time  for  commercial  operators.  A  number  of  Western  Balkans 
partners plus Morocco should be able to complete the first transitional phase under 
their respective agreements in 2009. 

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OJ L285/2006 p.3, 16/10/2006 
OJ L386/2006 p.57, 29/12/2006 

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3.2. 

Two-pillar agenda: opening up of the market and regulatory harmonisation 

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The  Community  aviation  policy  vis-à-vis  partner  countries  is  built  on  a  two-pillar 
agenda  of  creating  new  market  opportunities  and  ensuring  a  harmonised  regulatory 
environment.  As  already  highlighted  by  the  Commission9,  this  two-pillar  agenda  is 
not just a theoretical model but a practical construction allowing to tailor air transport 
agreements  to  the  specificities  of  a  particular  case.  Clearly,  when  dealing  with 
partners with mature markets and robust regulatory frameworks, the approach of the 
Community  needs  to  be  different  from  that  deployed  when  approaching  a  country 
which has great potential, but is still in transition and with immature regulatory and 
business environments. 

CAA  partners  have  a  great  potential  for  development  and  air  transport  can  be  an 
important catalyst in releasing that potential. However, this has to be done on a case-
by-case basis, and after careful assessment of a number of factors such as maturity of 
the  market,  the  level  of  ambitions  of  the  country  concerned,  the  level  of 
harmonisation with EU regulations and standards, as well as the specific interests of 
the  Community  and  its  Member  States.  In  this  respect,  the  phased  approach  with 
clearly  designed  transitional  arrangements  will  in  many  cases  be  the  most  logical 
approach. 

Efficient  and  prompt  implementation  of  the  aviation  acquis  and  its  harmonious 
enforcement across the CAA still remains the main challenge for majority of partner 
countries  and  the  Community.  This  derives  in  particular  from  the  fact  that  the  EU 
aviation legislation needs to be implemented into the partner countries' internal legal 
systems, whereby for the EU Member States the major part of this body of legislation 
is directly applicable and enforceable. This calls not only for technical assistance to 
support  partner  countries  in  implementing  legislation  but  also  for  efficient  and 
innovative  mechanisms  in  the  CAA  agreements,  supporting  the  implementation 
process,  allowing  for  monitoring  of  the  progress  made  and  taking  enforcement 
actions in case of non-compliance when necessary. 

3.3. 

Towards a sub-regional integration in the longer term 

24. 

25. 

It would not be desirable for the Community's ambition to be limited to developing a 
web  of  different  relations  with  the  neighbouring  countries,  as  the  amalgamation  of 
such multilateral and bilateral arrangements could eventually result in different rights 
and obligations across the CAA and, most importantly, between the partner countries 
themselves, thus limiting their chances of closer sub-regional integration. 

It is therefore advisable that, while acknowledging the specificities and sensitivities 
of each particular case, the negotiations with neighbouring countries should lead to a 
measure of coherence. In the longer term and especially when the critical mass of the 
countries  of  the  same  region  has  fully  completed  the  process  of  regulatory 
harmonisation, 
the 
Community  could  be  merged.  This  would  help  to  limit  fragmentation  of  the  CAA 
and differentiation of rights, obligations and market opportunities between the parties 
involved.  To  this  end  the  Community  should  consistently  propose  to  the  partner 

individual  agreements  between 

those  countries  and 

the 

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Developing the agenda for the Community's external aviation policy, COM(2005) 79 final 

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3.4. 

26. 

27. 

28. 

countries specific clauses providing for the possibility of such extension, as was the 
case with the agreements with the Western Balkans and Morocco. 

Closer  involvement  of  neighbouring  countries  in  the  EU  institutional  and 
operational framework 

The  pan-European  aviation  landscape  and  the  role  of  aviation  organisations  in 
Europe  is  changing.  The  High  Level  Group  on  the  future  aviation  regulatory 
framework calls for the EU to position itself as the main vehicle to set the regulatory 
agenda  for  European  aviation  and  to  strengthen  the  relationship  with  the  non-EU 
European states10. 

The CAA and the Joint Committees administering the agreements have proved to be 
highly instrumental in increasing the proactive communication between the EU and 
partner countries. However, to ensure a true pan-European "ownership" of the CAA 
in  this  rapidly  changing  environment,  the  Community  should  provide  for  better 
involvement of the partner countries in its institutional and/or operational framework. 

Fully aware of the legal and institutional constraints deriving from the EC treaty and 
relevant  Community  legislation,  the  Commission  believes  that  the  EU  should 
develop a consistent approach to the issue of participation of partner countries in the 
EU's  aviation 
their  closer 
institutional  framework  with  observer  status  or 
involvement  in  the  Community  aviation  programmes  and/or  operational  initiatives 
when the necessary pre-requisites are met. Two areas that deserve particular attention 
in this regard are aviation safety and ATM. 

3.4.1.  Ensuring the pan-European dimension of aviation safety 

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Aviation  safety  remains  a  key  priority  in  relations  with  a  number  of  neighbouring 
countries and the strengthening of the national oversight functions must continue to 
receive  adequate  priority.  It  is  evident  that  all  the  partners  engaged  with  the  EU  in 
the CAA need to demonstrate their ability to meet at least the ICAO standards and on 
this basis gradually implement more stringent requirements, as envisaged under the 
respective CAA agreements.  

The  extension  of  EASA  competences  and  the  decision  of  European  Civil  Aviation 
Conference to close JAA in mid-2009, calls for appropriate solutions to be found in 
order  to  maintain  the  pan-European  dimension  of  aviation  safety.  The  CAA  offers 
the  most  comprehensive  answer  to  this  issue  by  making  it  possible  for  non-EU 
European  countries  to  cooperate  with  EASA  and  be  closer  associated  with  the  EU 
safety  system.  However,  the  nature  of  this  cooperation  is  different  than  in  JAA,  as 
EASA is not an association of regulators but a specialised EU agency supporting the 
Community regulator and executing a number of safety oversight tasks. 

Non-EU  European  countries  signatories  to  the  Chicago  Convention  which  have 
entered into agreements with the Community whereby they adopt and apply the basic 
EASA regulation and its implementing rules, can participate in the work of EASA, 
which includes membership of its Management Board without voting rights. Partner 

High  Level  Group  for  the  Future  Aviation  Regulatory  Framework,  2007:  "A  framework  for  driving 
performance improvement". 

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countries  can  also  cooperate  with  the  Community  through  working  arrangements 
signed with EASA, or conclude mutual recognition agreements with the Community. 

3.4.2.  Building the Single European Sky (SES) beyond the EU borders 

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34. 

The  creation  of  the  single  aviation  market  in  the  1990s  and  the  resulting  steep 
increase  in traffic volume  in Europe was  not  accompanied  by  the  modernisation  of 
ATM facilities. Moreover, ATM in Europe is still characterised by a high degree of 
fragmentation,  which  adds  unnecessary  flight  length  resulting  in  additional  cost  for 
airspace  users  and  negative  impact  on  the  environment.  To  address  these 
inefficiencies,  the  Commission  has  now  presented  a  second  package  of  legislative 
measures  to  accelerate  the  completion  of  the  SES  and  the  development  of  the  new 
generation ATM system under SESAR11. 

A smoothly functioning ATM system should not be constrained by the borders of the 
Community. To avoid bottlenecks, promote interoperability, and enhance safety and 
environmental  efficiency,  the  neighbouring  states  should  also  be  appropriately 
associated.  Currently,  through  the  CAA,  38  countries  are  already  involved  in 
building the SES and participating in the EU ATM operational initiatives, including 
the  creation  of  Functional  Airspace  Blocks.  All  the  ECAA  partners  as  well  as 
Switzerland  also  participate  in  the  works  of  the  Single  Sky  Committee  with  the 
observer  status.  In  April  2008  an  ISIS  program  has  been  launched  to  support  the 
implementation of the  SES  legislation  in South Eastern Europe  as envisaged in the 
ECAA agreement12. It is in the interest of the Community to further extend the SES 
to neighbouring countries, and the CAA seems to be a logical vehicle to that end. To 
ensure adequate involvement of the partner countries in this project, they should be 
also properly associated with its institutional and/or operational framework. 

Similarly, to  ensure  that the  neighbouring  countries  benefit  from  the  modernisation 
of  ATM,  they  should  be  allowed  to  participate  in  SESAR.  In  the  longer  term,  this 
would  mean  that  the  state  of  the  art  ATM  technologies  and  operational  concepts 
could be implemented in the partner countries, thus ensuring a seamless ATM system 
beyond  the  EU's  borders.  Undertakings  from  third  countries  which  have  signed  at 
least  one  aviation  agreement  with  the  EU  are  already  eligible  now  to  apply  for 
membership in the SESAR Joint Undertaking.  

3.5. 

Sustainable development of the Common Aviation Area 

35. 

Aviation  has  an  impact  on  the  environment  both  at  a  global  and  a  local  level, 
including cross-border impacts. At local level aircraft operations contribute to noise 
and  air  pollution  and  at  a  global  level  aviation  emissions  contribute  to  climate 
change. Although aviation  currently  only accounts for a few percent of greenhouse 
gas emissions, the quantity of these emissions is growing rapidly in many countries 
and is projected to continue to grow in the future. If no action is taken this growth 
will undermine efforts being made by other sectors to reduce emissions. 

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12 

Communication  from  the  Commission:  Single  European  Sky  II:  towards  more  sustainable  and  better 
performing aviation, COM(2008) 389 final. 
Implementation  of  the  Single  European  Sky  In  South  East  Europe  emerges  from  the  previous  SEE 
FABA initiative that has been stopped accordingly. 

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36. 

37. 

The EU has proposed a comprehensive approach to addressing aviation's impact on 
the  climate  which  includes  continuing  to  make  improvements  in  ATM  and  more 
investment in research into greener technologies. However these measures alone will 
not be sufficient to offset the growth in air traffic emissions. Therefore aviation will 
be  included  in  the  EU  Emissions  Trading  Scheme  (ETS).  A  political  agreement  on 
the legislation was recently reached by the Council and the European Parliament. 

It  is  important  to  work  with  third  countries  in  order  to  facilitate  the  sustainable 
development of the aviation sector and to ensure that effective measures are taken to 
address  aviation's  impact  on  the  environment.  CAA  agreements  should  include 
appropriate  provisions  to  achieve  this  and  should  encourage  partner  countries  to 
adopt  effective  measures  to  address  the  environmental  impacts  of  aviation  such  as 
the introduction of an ETS or equivalent measures. 

3.6. 

Need for support and clear priority setting in technical assistance 

38. 

39. 

40. 

41. 

Harmonisation  with  the  EU  standards  may  not  be  an  easy  task.  It  may  entail  a 
comprehensive review of the primary legislation and specific operating regulations, 
the  development  of  new  safety  oversight  tools,  training  of  personnel  or  even 
organisational  changes,  such  as  the  separation  of  service  provision  from  safety 
oversight or the establishment of an independent accident investigation body. 

Reforms  require  an  appropriate  level  of  expertise  and  capacity  from  partner 
countries.  One  of  the  common  obstacles  in  this  respect  may  be  the  lack  of  an 
adequate  safety  oversight  organisation  or  shortcomings  in  skilled  technical 
personnel. These deficiencies, in the majority of cases, are the result of insufficient 
allocation of resources to the national civil aviation bodies. 

Beyond the provision of expertise and technical assistance, the issue of insufficient 
administrative  capacity  and  lack  of  resources  can  be  addressed  through  closer 
cooperation and pooling of resources. This does not necessarily mean that a separate 
organisation  would  need  to  be  established  or  national  sovereignty  relinquished. 
Pooling  of  experts  or  joint  oversight  activities  could  contribute  significantly  to 
eliminating duplication of efforts and achieving economies of scale. In the ATM area 
for example, such cooperation would be most efficiently pursued through the concept 
of Functional Airspace Blocks. Aviation accident investigation is another area where 
cooperation between authorities could bring significant benefits. 

The Commission is providing technical assistance to all the countries participating in 
the  CAA.  A  dedicated  aviation  safety  twinning  project  of  €  1  million  is  being 
provided to Ukraine. The aforementioned "Euromed Aviation Project", with a budget 
of  €  5  million,  was  launched  to  provide 
targeted  technical  assistance  for  the 
Mediterranean partners until 2011. The ISIS Programme is providing support for the 
Western  Balkans  countries  in  implementing  SES  legislation  under  the  ECAA 
agreement. An EASA – CARDS project with a budget of € 0.5 million, implemented 
in  2008,  established  convergence  plans  for  the  implementation  of  EU  safety 
legislation in the Western Balkans, and further assistance is envisaged for the region. 
The  Commission  is  also  helping  the  neighbouring  countries  to  draft  aviation 
legislation and organise experts meetings and study visits. 

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42. 

The  Commission  will  continue  to  provide  technical  assistance  to  the  partner 
countries  and  encourage  pooling  of  resources  to  ensure  that  they  are  optimally 
utilised. Dedicated provisions can be developed under the CAA agreements, dealing 
with  technical  assistance  priorities  and  making  reference  to  available  funds  or 
instruments.  Twinning,  as  a  highly  effective  tool  in  capacity  building  involving 
aviation  experts  from  Member  States,  should  be  considered  as  a  key  instrument  in 
providing support to the aviation administrations of the neighbouring countries that 
have to implement EU legislation. 

43. 

Closer exchange of information between the Commission, Member States and donor 
institutions  are  also  necessary  to  ensure  better  coordination  of  technical  assistance 
provided to the neighbouring countries in support of the CAA. 

3.7. 

Prompt implementation of the CAA agreements 

44. 

45. 

4. 

46. 

47. 

The ECAA agreement with the Western Balkans was signed in June 2006. While all 
except one of the Balkan partners have completed their ratification procedures, more 
than two years after its signature the ECAA Agreement has been ratified by only 14 
Member  States.  Similarly,  the  Euro-Mediterranean  agreement  with  Morocco, 
although  signed  in  December  2006  and  applied provisionally  since  then,  has  so  far 
been ratified by only 13 Member States. 

It  is  important  now  to  step  up  the  process  of  ratification  of  the  agreements  by 
Member States in order to demonstrate the Community's political commitment to the 
CAA  project.  In  the  future,  the  issue  of  prompt  implementation  of  the  CAA 
agreements could be resolved by concluding them as Community agreements on the 
basis  of  Article  80  of  the  EC  Treaty,  rather  than  as  "mixed"  agreements. 
Alternatively,  provisional  application  as  of  a  fixed  date  should  be  proposed  to  the 
partner countries, in order to guarantee prompt implementation of the agreements. 

CONCLUSIONS 

Significant  progress  has  been  made  in  pursuing  the  objective  of  the  wider  CAA. 
Although the goal is challenging, and it will be probably not possible to complete the 
task  by  2010  as  expected  by  the  Council,  negotiations  with  the  majority  of  the 
Eastern and Mediterranean partners are due to be either opened or concluded by the 
end  of  the  decade.  Stronger  efforts  are  however  necessary  to  ensure  effective 
implementation  of  the  EU  aviation acquis  by  the  partner  countries  and  harmonious 
enforcement of these provisions across the CAA. 

The  Commission  will  continue  the  development  of  the  CAA,  both  by  closely 
monitoring  the  implementation  of  existing  agreements,  as  presented  in  this 
Communication, and by identifying the next potential partners for participation in the 
project.  In  this  context,  the  Commission  proposes  to  the  Member  States,  in  the 
accompanying  Communication,  to  launch  comprehensive  air  transport  negotiations 
with Tunisia, and will closely assess the added value of launching negotiations with 
Algeria,  Georgia  and  the  Republic  of  Moldova,  with  a  view  to  proposals  being 
presented to the Council in the months ahead. 

EN 

10 

   EN 

Traffic between the EU and CAA neighbouring regions (million passengers carried by air)13 

2007 

2006 

2005 

2004 

2003 

2002 

2001 

2000 

Western Balkans 

Northern Africa 

Near and Middle East 

CIS European Republics 

CIS Central Asia Republics 

EEA/EFTA 

Turkey 

Russia 

6.6 

30 

7.3 

3.9 

0.7 

39 

23 

9.8 

6.3 

28 

7 

3.5 

0.7 

38 

21 

9.1 

5.5 

26 

7.2 

3.3 

0.7 

34 

24 

8.2 

4.6 

24 

6.9 

2.7 

0.7 

31 

21 

7.5 

3.8 

19 

5.8 

1.9 

0.6 

27 

17 

6.4 

3.2 

18 

5.2 

1.5 

0.5 

25 

18 

5.2 

3.1 

21 

6.6 

1.4 

0.5 

28 

17 

5.4 

2.4 

19 

6.9 

1.1 

0.5 

26 

14 

4 

TOTAL EU – CAA 

120.3 

113.6 

108.9 

98.4 

81.5 

76.6 

83 

73.9 

13 

Geo-nomenclature used only for the purpose of this statistical analysis. 

EN 

11 

EN